A S S E S S M E N T O F D E V E L O P M E N T R E S U L T S

ASSESSMENT OF DEVELOPMENT RESULTSRepublic of EVALUATION OF UNDP CONTRIBUTION Tajikistan T a j

i effectiveness k HUMAN DEVELOPMENT COORDINATI istanefficiency COORDINATION AND PARTNERSHIP sust NATIONAL OWNERSHIP relevance MANAGING FOR sustainability MANAGING FOR RESULTS responsivene AN DEVELOPMENT responsiveness NATIONAL OWN NATIONAL OWNERSHIP effectiveness COORDINATI United Nations Development Programme efficiency sust Evaluation Office COORDINATION AND PARTNERSHIP One United Nations Plaza New York, NY 10017, USA NATIONAL OWNERSHIP relevance MANAGING FOR Tel. (212) 906 5059, Fax (212) 906 6008 Internet: http://www.undp.org/eo sustainability MANAGING FOR RESULTS responsivene HUMAN DEVELOPMENT effectiveness COORDINATI ASSESSMENT OF DEVELOPMENT RESULTS Republic of EVALUATION OF UNDP CONTRIBUTION Tajikistan

Evaluation Office, May 2009 United Nations Development Programme REPORTS PUBLISHED UNDER THE ADR SERIES Afghanistan Jamaica Argentina Jordan Bangladesh Lao PDR Barbados Montenegro Benin Mozambique Bhutan Nicaragua Bosnia & Herzegovina Nigeria Botswana Rwanda Bulgaria Serbia China Sudan Colombia Syrian Arab Republic Republic of the Congo Tajikistan Egypt Ukraine Ethiopia Uzbekistan Guatemala Turkey Honduras Viet Nam India Yemen

Evaluation Team Team Leader Leif Manger

Team Members Olga Lukashenko Rakhmat Khakulov Usufovich

EO Task Manager and Team Member Vijayalakshmi Vadivelu

EO Research Assistant Nidhi Sharma

ASSESSMENT OF DEVELOPMENT RESULTS: Republic of Tajikistan Copyright © UNDP 2009, all rights reserved. Manufactured in the United States of America. Printed on recycled paper.

The analysis and recommendations of this report do not necessarily reflect the views of the United Nations Development Programme, its Executive Board or the United Nations Member States. This is an independent publication by UNDP and reflects the views of its authors.

Design: Green Communication Design inc. FOREWORD

The Evaluation Office of the United Nations maternal and child mortality and the number of Development Programme (UNDP) conducts infectious diseases, and enhance social and gender independent evaluations of UNDP contribu- equality. While there has been an overall decline tions to development results through its country in poverty level, the percentage of the population programmes. These evaluations are titled living below the poverty line remains high. The Assessments of Development Results (ADRs). civil war contributed to the deterioration of the An ADR evaluates the relevance and strategic physical infrastructure and an already weak institu- positioning of UNDP support and contribu- tional capacity. A landlocked country, Tajikistan tions to the country’s development over a period also remains highly dependent on its rich natural of time. The purpose of the ADR is to generate resources. Recurrent humanitarian crises have lessons for future country-level programming and slowed down development and diverted the focus to contribute to the effectiveness and substantive from long-term development issues. accountability of UNDP. This report presents the findings and recommendations of an ADR The evaluation looked at the range of support that was conducted in Tajikistan with a scope provided by UNDP to Tajikistan in the areas of covering the period of two country cooperation poverty reduction, democratic governance, reducing frameworks (2001 to 2008). More specifically, vulnerability to infectious diseases, and disaster the ADR provides forward-looking recommen- management. The evaluation found that, in the dations to assist the UNDP country office and its context of transition, UNDP quickly established partners in formulating an action plan for the next itself as a capable and reliable implementing agency programming cycle (2010-2014). of the government and donors. The government considers UNDP as a trusted partner. The evalua- The report examines the context in which UNDP tion found that UNDP has contributed to policy operates in Tajikistan, mainly with regard to development and dialogue, and played a key role in economic and human development. Following the incorporating the MDGs and pro-poor concerns national independence and civil war, Tajikistan into national development planning. UNDP support faced formidable challenges in political restruc- to infrastructure development has been important in turing, reorganizing the economy, and responding addressing social service needs in rural areas. to the socio-economic needs of the people. The government has been pursuing institutional Through support to data systems, strategic research reforms for the past decade, and there have been on key issues and other initiatives, UNDP has measures towards macro-economic stabilization, contributed to capacity development in the govern- restructuring financial systems, privatization and ment to carry out high-level policy. The contribution controlling inflation. Tajikistan is one of the first of UNDP in developing disaster management pilot countries of the Millennium Project and policy was found to be noteworthy. However, became a signatory to the Millennium Development there are still areas where UNDP can assist the Goals (MDGs) in 2000. government, such as in the field of governance— strengthening coordination mechanisms in social The international community, including United service sectors, particularly the health sector and Nations organizations active in Tajikistan, played disaster management. In the areas of environment an important role in reconstruction and transi- and sustainable development, more could be done tion to development. The development strategy to incorporate related issues into policy dialogue pursued by the government is aimed to lower the in order to optimize the sustainable use of natural poverty and extreme poverty rates, create employ- resources for the benefit of the country. ment, increase school enrolment levels, reduce

FOREWORD iii One of the key roles UNDP has played in Tajikistan led by Resident Representative Michael Jones. is supporting the government in managing the I would like to offer special thanks to Farid Global Fund to Fight AIDS, Tuberculosis and Garakhanov, Deputy Resident Representative, Malaria. This has contributed to reducing the who acted as the country office focal point for incidence of malaria and there are important the evaluation and Rastilav Verbrensky, the ongoing efforts to minimize the incidence of Country Director. I wish to thank Sukhrob tuberculosis and risk of HIV/AIDS. However, Khoshmukhamedov, Assistant Resident the evaluation found that UNDP can play a more Representative, and Tahmina Anvarova for proactive role in enhancing government capaci- organizing the various missions for the ADR. ties in the health sector and in coordinating I would also like to thank the UNDP Regional donor contributions. As governance reforms and Bureau for Europe and the Commonwealth of efficient management of environment and energy Independent States, particularly Kori Udovicki, will continue to be an essential precondition for Assistant Secretary-General and Director of the sustainable development, the evaluation recognizes Bureau, Christine Roth, Director, Central Asia, the importance of the continued engagement of Sanjar Tursaliev and Yulia Oleinik for their UNDP in priority areas where enhanced national efficient support. capacity and ownership of development processes can lead to significant results. Most importantly, this report would not have been possible without the strong interest and support To maximize results in areas central to the UNDP of numerous officials from the Government of mandate and build on its comparative advantages, Tajikistan at both the national and local levels. the evaluation recommends that UNDP emphasize I would like to offer sincere thanks to Sukhrob policy support and strengthening government Sharipov, Head of the Strategic Research Centre systems. UNDP should be more responsive to under the President of the Republic of Tajikistan; governance needs in the country and coordinate Abdugaffor Rakhmonov, First Deputy Chairman, with other agencies working in the area. It is also State Committee on Investment and State Property recommended that UNDP make an assessment Management; Muzaffar Khuseynov, Head of of the role it can play in energy, environment and Department of International Organizations, climate change concerns in Tajikistan. Sufficient Ministry of Foreign Affairs; Azamjon Mirzoev, measures need to be taken to integrate environ- Deputy Minister, Ministry of Health; and Yahyo ment and climate change issues in the poverty and Vahobov, Head of the Department of International disaster management interventions. Organizations, Ministry of Labour and Social A number of people contributed to the evalua- Protection of the Population. The team is also tion, particularly the evaluation team composed indebted to the representatives of civil society of Leif Manger, Team Leader; Olga Lukashenko and non-governmental organizations, the donor International Evaluator; Rahamat Khakulov community of Tajikistan, and the United Nations Usufovich, National Consultant; and Evaluation Country Team, who generously gave their time Office Task Manager and Team Member and frank views. Vijayalakshmi Vadivelu. I would also like to I hope that the findings and recommendations extend my appreciation to Johannes Linn and of this report will assist UNDP in responding Yasemin Aysan, the external reviewers of the to the country’s challenges and provide broader ADR report. I wish to thank Nidhi Sharma for her background research and Kutisha Ebron, lessons that may be of relevance to UNDP and its Thuy Hang To and Anish Pradhan for partners internationally. their administrative support. I wish to thank Margo Alderton for the copy-editing.

The research and preparation of the evaluation was also completed thanks to the collaboration Saraswathi Menon and openness of the staff of UNDP Tajikistan, Director, Evaluation Office iv FOREWORD Contents

Acronyms and abbreviations vii

Executive summary ix

Chapter 1. Introduction 1 1.1 Rationale for the evaluation 1 1.2 Purpose and scope 1 1.3 Method 2 1.3.1 Review of documents 3 1.3.2 Semi-structured stakeholder interviews 3 1.3.3 Site visits 5 1.3.4 Evaluation criteria 5 1.3.5 Phases of the ADR process 5 1.4 Limitations 6 Chapter 2. National context 7 2.1 Economic context 8 2.2 Poverty reduction and MDGs 10 2.3 Social sector 11 2.4 Agriculture sector 11 2.5 Energy and water—Central Asia dynamics 12 2.6 Governance reforms 12 2.7 Civil society 13 2.8 Gender and access to development resources 13 2.9 Development assistance 14 Chapter 3. UNDP in Tajikistan 17 3.1 First country programme 17 3.2 Second country programme (1999-2000) 18 3.3 UNDAF (2005-2009) 18 3.4 Third country programme (2005-2009) 18 3.5 Third country programme outcomes 20 3.6 Source and application of funds 20 3.7 Programme delivery modalities 22 Chapter 4. Contribution to national development results 23 4.1 Overall assessment of country programme 23 4.2 Anti-corruption initiatives 24 4.3 Poverty alleviation and rural development 24 4.3.1 Community linked development and JRCs 25 4.3.2 Microfinance 27 4.3.3 Public infrastructure in rural areas 29 4.3.4 Strengthening local governance 31

CONTENTS v 4.4 Reducing vulnerability to infectious diseases 32 4.4.1 HIV/AIDS 32 4.4.2 Malaria 34 4.4.3 Tuberculosis 35 4.4.4 Performance of GFATM grant 36 4.5 Reducing vulnerability to disasters 38 4.5.1 Enhancing disaster management 39 4.5.2 Emergency response and disaster mitigation 41 4.5.3 Strengthening disaster management information systems 42 4.5.4 Support to institutions and policy 43 Chapter 5. Cross-cutting issues 45 5.1 National human resources and capacity development 45 5.2 Millennium Development Goals (MDGs) 46 5.3 Gender equality 47 Chapter 6. Strategic position of UNDP 51 6.1 Donor coordination 52 6.2 Development partnerships 53 6.3 UN coordination 55 6.4 Responding to future needs 56 Chapter 7. Conclusions and recommendations 57 7.1 Main conclusions 57 7.2 Recommendations 60 7.2.1 Programme strategy and approach 60 7.2.2 Programme management 63 Annexes Annex 1. Terms of reference 65 Annex 2. List of persons consulted 73 Annex 3. Resource mobilisation 2005-2008 77 Boxes and figures Box 1. Checklist of questions 4 Box 2. Selected indicators for Tajikistan 7 Box 3. Geographic and social profile 8 Figure 1. Core and non-core funds (USD thousands) 20 Figure 2. TRAC funds (USD thousands) 20 Figure 3. Allocation of funds across programme areas 21

vi CONTENTS ACRONYMS AND ABBREVIATIONS

ADR Assessment of Development Results CCF Country Cooperation Framework CCM Country coordination mechanism CIS Commonwealth of Independent States CoES Committee of Emergency Situations CP Community Programme CSO Civil Society Organization DCC Donor Coordination Council DDC District Development Committee DOTS Directly Observed Treatment, Short-course GDP Gross Domestic Product GFATM Global Fund to Fight HIV/AIDS, Tuberculosis and Malaria IMAC Information Management and Analytical Centre JCSS Joint Country Support Strategy JDC Jamoat Development Centre JRC Jamoat Resource Centre MDG Millennium Development Goal NDS National Development Strategy NHDR National Human Development Report NGO Non-governmental Organization OCHA Office for the Coordination of Humanitarian Affairs ODA Official Development Assistance PRS Poverty Reduction Strategy RC Resident Coordinator REACT Rapid Emergency Assessment and Coordination Team RRDP Rehabilitation, Reconstruction and Development Programme SRC Strategic Resource Centre SWAp Sector-wide Approach TB Tuberculosis UN United Nations UNAIDS Joint United Nations Programme on HIV/AIDS UNCT United Nations Country Team UNDAF United Nations Development Assistance Framework UNDP United Nations Development Programme UNICEF United Nations Children’s Fund UNIFEM United Nations Development Fund for Women USD United States Dollar WHO World Health Organization

ACRONYMS AND ABBREVIATIONS vii

EXECUTIVE SUMMARY

Introduction country programmes have been completed in Tajikistan and the ongoing country programme Since its national independence in 1991 and will conclude in 2009. subsequent civil war until 1997, Tajikistan has faced formidable challenges in political restruc- turing, reorganizing the economy and responding Purpose of the Assessment of Development Results (ADR) to the socio-economic needs of the people. There was a steep economic decline with disruption of An ADR is an independent country-level trade with countries in Central Asia, withdrawal evaluation carried out by the UNDP Evaluation of subsidies from Moscow, and decline in both Office to evaluate and validate the contribution industrial and agriculture production. The civil of UNDP interventions to national development war contributed to the deterioration of the results. This ADR assesses UNDP contribu- physical infrastructure and an already weak institu- tions in Tajikistan between 2001 and 2008. The tional capacity. After a decade of political unrest findings and recommendations of the ADR are and social and economic instability, institutional intended to inform the preparation of the next country programme. The purpose of the ADR reforms have been underway since 1997. The is to assist UNDP in continuing to build on government has been pursuing measures towards its strengths and enhance its contribution to macro-economic stabilization, restructuring national development results. financial systems, privatization and controlling inflation. While there has been an overall decline The objectives of the ADR in Tajikistan include: in the poverty level, 64 percent of the popula- tion lives below the poverty line. Recurrent „„ Provide an independent assessment of humanitarian crises have slowed down develop- the progress, or lack thereof, towards the ment and diverted the focus from long-term expected outcomes envisaged in the development issues. UNDP programming documents. Where appropriate, the ADR will also highlight In response to post-war reconstruction unexpected outcomes (positive or negative) and development needs, the United Nations and missed opportunities. Development Programme (UNDP) has supported „„ Provide an analysis of how UNDP has the United Nations (UN) in establishing peace positioned itself to add value in response to and security in the region and has implemented national needs and changes in the national programmes in Tajikistan since 1993. Since the development context. signing of the Peace Agreement in 1997, UNDP efforts have been more focused on reconstruction „„ Present key findings, draw key lessons, and and development. The aim of UNDP assistance provide a set of clear and forward-looking in Tajikistan is to provide quality policy and options for management to make adjust- programme support in alleviating poverty, share ments in the current strategy and next best practices and enhance government capaci- country programme. ties to address development challenges. The Poverty Reduction Strategy (PRS) I and II, and UNDP support National Development Strategy (NDS) provided a framework for UNDP to design development The ADR evaluated the second and third support for the Government of Tajikistan. Two country programmes during 2001 to 2008.

EXECUTIVE SUMMARY ix The programme emphasis during 2001 to development needs perceived by the government 2004 (the second country programme) was on and civil society. Because destruction and the governance and capacity building, rehabilitation impact of civil war were severe in rural areas, and reconstruction, and environment protection UNDP made a considered decision to work at and sustainable natural resource management. the district and sub-district level. The microfi- UNDP has been the principal recipient of the nance initiatives of UNDP provided credit for Global Fund to Fight HIV/AIDS, Tuberculosis livelihood and enterprise development at the and Malaria (GFATM). Programme and policy community and household level. support was provided for reducing vulnerabili- ties in the area of disaster management and mine Support was provided to reconstruct local public action. The programme delivery for the second infrastructure that was destroyed or damaged country programme period was USD 18 million. during the war or neglected since Soviet days. UNDP is one of the main actors in the rehabili- The third country programme (2005 to 2009) tation of the water infrastructure and supported aligned with the United Nations Development drinking water and irrigation infrastructure. Assistance Framework (UNDAF) for the same This has been highly relevant considering low period. The programme areas include: poverty public spending for infrastructure development alleviation (through microfinance, business in rural areas. support services and development of public infrastructure); strengthening institutions of local The participatory approach introduced by UNDP and central government; enhancing the capaci- brought elements of responsiveness to local needs ties of health institutions to minimize the risk and community responsibility to contribute to of HIV/AIDS, malaria and tuberculosis (TB); service delivery at the sub-district. This was a furthering mine action and reducing vulnerability change from earlier thinking that the state is to natural disasters; and promotion of sustainable responsible for providing services free of cost. energy and the environment. The programme UNDP supported formation of Jamoat Resource delivery for the period 2005 to 2008 has been Centres (JRCs) at the sub-district level, which USD 93.6 million. were registered as non-governmental organiza- tions (NGOs) and served as a community-level forum for the local government and NGOs. Development results The JRCs functioned as intermediary organiza- UNDP annual operations have been tions with operational links with the sub-district approximately 6 percent of the total Official government and furthered community partici- Development Assistance (ODA) in Tajikistan. pation in infrastructure projects. The execution The government was the principal partner of of most of the projects implemented by UNDP UNDP. There were also partnerships and close at the local level was supported by JRCs. The engagement with civil society organizations and JRCs also provided a similar function for other multilateral and bilateral agencies. Many donor development agencies implementing programmes agencies channeled their funds through UNDP in rural Tajikistan. due to its well established local presence and its role as a UN organization in the post-conflict UNDP was successful in bringing the stabilization and reconstruction. Millennium Development Goals (MDGs) into the national development agenda. The govern- ment was forthcoming in owning the process and Relevance and responsiveness ensured that it was reflected in all the national UNDP contribution has been significant in strategies and action plans. UNDP has been the post-war reconstruction and transition. proactive in furthering MDGs in Tajikistan and The programme emphasis corresponds to the played a key role in ensuring that MDGs are x EXECUTIVE SUMMARY incorporated in NDS and informing pro-poor of international donor response in Tajikistan. policies. Along with other international agencies, Many donors channeled their funds through UNDP supported the government in designing UNDP due to its well established local presence the PRS-I, PRS-II and NDS. and important role as a UN organization in the post-conflict stabilization and reconstruction UNDP played an important role in supporting the process. However, the dependence on external government in the areas of controlling infectious funds considerably influenced the prioritization disease and disaster management. UNDP has of activities and continuance of UNDP interven- been significant in enabling government access tions to enhance local capacities. The leverage to GFATM, which comprises 25 percent of UNDP has among the international agencies the ODA in the health sector. GFATM has has been challenged, as most interventions are been crucial for controlling malaria and TB joint programmes. in Tajikistan. The interventions in disaster management demonstrated the potential for Results were manifested in public infrastructure strengthening institutional systems and policies. support. There was also the potential to achieve The government indicated it is keen to develop results in minimizing the incidence of malaria disaster management systems and responses. and TB. UNDP support in developing a socio- economic profile at the district level and monitoring There were areas where UNDP has been less the MDGs has been effective, although sustain- responsive. Governance issues, both at the ability of these activities beyond the programme national and local level, did not receive the period is a concern. While it is too early to say attention they required. A strategic approach was whether the desired outcomes have been achieved not followed to strengthen institutions of local in disaster management policy and strategy, efforts government. Opportunities to strengthen govern- are needed to adequately link disaster manage- ment institutions and capacities—particularly in ment and development. Emergencies such as the health sector—and enhance transparency and winter crisis, food crisis, energy management and accountability mechanisms were not optimized. small scale floods are all development issues. A Addressing gender-related concerns did not long-term strategy is important to avoid repeated received the emphasis it deserved. While efforts flash appeals and temporary solutions. were occasionally made to address women’s issues, a gender equality dimension was not Contributions to results were less evident in the integrated into the programme process. areas of poverty alleviation, local governance, and policy support. While UNDP established UNDP developed a governance strategy in effective cooperation with the national level state 2005. The strategy is in alignment with the institutions such as the Ministry of Economic national approach to local governance, and there Development and Trade, State Statistics is emphasis on capacity building and introducing Committee, Strategic Research Centre under the new practices in social-sector service delivery. Office of the President, and Institute for Civil A Gender Equality Strategy 2008-2011 for the Servant Training, further efforts are required Communities Programme (CP) was implemented to enhance linkages between local programmes in 2008. It is too early to observe the results of and macro processes. Until recently, there were these initiatives. limited efforts to demonstrate new products as part of the microfinance project and inform Effectiveness and efficiency national policy on microfinance. The ADR did not have sufficient evidence to demonstrate the UNDP Tajikistan has been effective in mobilizing contribution of microfinance interventions in funds and expanding the scope of programme alleviating poverty at the household level and interventions. The local presence of UNDP enhancing gender equality at the household and through its area offices is exceptional in the context community level.

EXECUTIVE SUMMARY xi With some exceptions, the UNDP programme and implementing agencies, efforts were not did not adequately address policy and governance adequate to facilitate strengthening of the health issues, and there was a lack of strategic approach agencies in a more holistic way. to enhancing government capacities. Reforms in the area of health are critical in Tajikistan. One of the recurrent issues has been the The GFATM provided means and opportunity programme implementation modality followed for UNDP to enhance sector-wide approaches by UNDP. UNDP interventions in Tajikistan (SWAp) and donor coordination in the health are entirely implemented by the country office sector, but it did not take advantage of these. with different levels of involvement of govern- UNDP was also less proactive in the area of ment counterparts. The nature of the programme reforms and donor coordination. (for example, in microfinance initiatives at the household level) and the donor specifications (for Sustainability example, in GFATM) limited the possibility of implementation through government agencies. Sustainability of project outcomes has been a Lack of government capacity to implement concern in the interventions of UNDP. While development projects and procedural delays the sustainability of microfinance institutions is constrained following a national implementa- largely determined by the evolving microfinance tion approach. While the country office intends sector in Tajikistan, the microfinance activities to shift to a national implementation modality, are stable with a high percentage of repayments. there was no indication of efforts to enable such In the programme design, infrastructure develop- a process. Capacity development is an important ment was seen more as a humanitarian response component of UNDP support, and direct and institutional sustainability was not adequately execution curtailed opportunities to strengthen emphasized. Lack of a clear legal framework and government systems. financial and human resources at the district level for maintaining infrastructure has contributed to poor maintenance. The Water User Associations Social equality formed by UNDP have ensured sustainability in Addressing issues of livelihood, rural a few areas. While the Water User Associations development, and the MDGs has been core to helped increase communities’ understanding of UNDP interventions in Tajikistan. UNDP has how to use water resources efficiently, the role of implemented programmes in the less developed the Associations needs to be strengthened within regions of Tajikistan and made efforts to reach the legal framework of the local government. the economically disadvantaged sections of the The participatory processes that were piloted by rural population. The microfinance activities UNDP were not institutionalized, and it was not were aimed to provide micro-credit to poor evident that they would be sustainable after the households without traditional collateral. UNDP project period. made a valuable contribution to the promotion of Resolution 111, which allowed farmers to plant It is too early to determine sustainability of crops other than cotton. A large local presence interventions under GFATM. However, provided UNDP with the opportunity to further adequate efforts are required to enhance the practices that enable social equality. government ownership of the assets created. UNDP could have been more proactive in There was considerable opportunity for UNDP furthering donor coordination in the health to address issues related to gender, migration sector. One of the issues in sustaining interven- and cotton farming and link them to develop- tions is the lack of capacities of government ment and policy discussions. However, it was agencies to continue with the preventive practices not evident that UNDP addressed these issues in beyond the project period. While there was a its programmes. Cotton farming is a politically small component for training government staff sensitive issue in Tajikistan, and UNDP made xii EXECUTIVE SUMMARY a considered decision not to have interventions Disaster management is an area where there related to concerns in the sector. The opportu- is potential for contributing to results. UNDP nity to enhance gender equality in programme is supporting the Information Management interventions and in influencing policy was lost. and Analytical Centre (IMAC) in developing The microfinance programme was not used an information system and updating data on to reach the most economically disadvantaged disasters regularly. It also supports the Rapid sections of the population and cotton farmers. Emergency Assessment and Coordination Team (REACT) in coordinating international The poverty and MDG initiatives could have humanitarian assistance. Both the government been better used to address the issues of migration and IMAC strongly support improving disaster of a large working population to countries such information systems. More effort is required as Russia. While there are joint initiatives with on the part of UNDP to ensure the govern- the International Organization for Migration to ment actively engages in this process. UNDP channel remittances into development, further supported the government in preparing action efforts are needed to address social and economic plans in the areas of environment and climate dimensions of large-scale migration. change and revising legislation on Protected Areas and Forestry Code, which is important in the context of Tajikistan. Cross-cutting issues

National human resources and Managing the GFATM provided UNDP with capacity development the opportunity to enhance the capacities of the Weak government capacity is one of the key issues health sector. However, little effort was made in Tajikistan that constrained development and to systematically engage in strengthening the reform processes. The civil service lacks skilled capacities of the Ministry of Health. The health human capital and appropriate reporting systems. sector reforms and SWAp process has been slow The administrative systems are undermined by in Tajikistan. UNDP, in coordination with other lack of transparency and accountability. UNDP UN organizations such as the World Health capacity development initiatives were largely in Organization (WHO) and United Nations the form of training, introducing new practices Children’s Fund (UNICEF), had the potential and, to a lesser extent, policy support. While to support the government in improving aid there were initiatives for strengthening institu- coordination in the health sector and defining tional systems and practices, they lacked strategic its strategy. This was not optimized during the emphasis in the programme framework. programme period. Transparency and account- ability mechanisms and government procurement UNDP supported the government in the areas procedures are weak. These mechanisms are of aid coordination, monitoring MDGs and important to acquiring a health infrastructure. PRS, anti-corruption, mine action environment More efforts are required to strengthen health protection and disaster management. In the administration and procurement procedures. past six years, there were initiatives to improve the statistics capacity of the government and Across the programme, results in capacity financial support was provided to the Strategic development were undermined by the programme Resource Centre (SRC) and State Committee on implementation modality followed by UNDP. Statistics. However, there are limitations in the Approximately 98 percent of the programme was periodic collection and analysis of data on social implemented directly by UNDP. The limited sectors and poverty. The reliability of state statis- capacity of the government agencies to plan tics and data collection systems for social sectors and implement projects and the donor require- needs to be further strengthened. ments for implementation of programmes such as GFATM contributed to this direct

EXECUTIVE SUMMARY xiii implementation approach. An assessment by funds. UNDP stopped short of providing the GFATM found that government capacities leadership required for ensuring that policy and a were not adequate to manage the funds, and reform agenda is linked to the process of achieving UNDP was assigned as the role of Principal the MDGs. While UNDP prepared sector Recipient of GFATM. Despite such limita- papers for the NDS to improve understanding tions, project interventions should be used to of MDG issues, more consensus and a sustained strengthen government implementation systems approach is required for moving the MDG by working through them, including negotiating agenda forward. While the international financial with GFATM for a modality where part of the institutions agree on the importance of achieving programme is implemented by the government. the MDGs, there is lack of sufficient coordina- During the planning of the next programme, tion in furthering government efforts. The JCSS sufficient measures need to be taken to adopt a process provided an opportunity for UNDP to national implementation modality. Enabling a build consensus on some of these issues and national implementation modality requires prior influence the priority to be accorded to achieving discussions and agreement with the government, the MDGs. UNDP engagement in the JCSS and UNDP should start planning for this. could have been more active.

Millennium Development Goals (MDGs) Gender equality At the macro level, UNDP support to bringing Addressing gender related concerns was the the MDGs into the development agenda has weakest area of the UNDP programme. There been important. Tajikistan became one of the were indications that women were not adequately first pilot countries in the Millennium Project reached by UNDP development initiatives. In in 2000, with the government signing the UN all the regions where UNDP is working, gender Millennium Declaration to achieve the MDGs. inequality is a challenge—constraining women’s UNDP, along with the World Bank and Asian access to development benefits and social services. Development Bank, supported the government Although the Constitution provides for gender in designing PRS-I, PRS-II and the NDS. equality, in practice, women do not enjoy the NDS is a long-term strategy to achieve develop- same rights as men. It is too early to make ment results by 2015 and furthers the priorities observations about the outcome of the develop- identified in the PRS-II. UNDP supported the ment strategies outlined by the government to government in carrying out the needs assess- further gender equality. ment for achieving the MDGs, which informed the NDS. The MDGs are incorporated in the While rigid gender structures in rural Tajikistan NDS and were endorsed by the international is a constraining factor in achieving results donor community. Difficulties in achieving the in enhancing gender equality and empowering MDGs are perceived in the areas of education women, sufficient efforts were not made by and health. For better aid effectiveness and UNDP to link lessons from micro interventions furthering the NDS, the Donor Coordination to further the MDG commitment to promoting Council (DCC) was preparing a Joint Country gender equality. Women were included as Support Strategy (JCSS) at the time of the ADR. beneficiaries in micro-finance programme and UNDP, as member of the DCC, has participated GFATM programme as a vulnerable group. in the preparation of the JCSS. There were however missed opportunities in the CP in analysing and addressing gender inequality One of the issues that was not sufficiently at the household and community level. UNDP addressed in the MDG debate following the did not use the extensive programme at the local needs assessment was the accountability of the level to address gender issues in a structured way. government to enhance fiscal discipline and carry Opportunity was lost to make linkages between out reforms for better management of public poverty and gender inequality, implications of xiv EXECUTIVE SUMMARY male migration, and in informing measures to UNDP is one of the main organizations working reduce greater incidence of poverty amongst on disaster management, more sustained efforts are women and female children. required to ensure adoption and implementation of disaster management policy. UNDP recently developed a Gender Mainstreaming Strategy for 2008-2011 for the Despite being well positioned to play a major role CP. It is too early to observe its implementa- in heath sector reform, UNDP confined its activi- tion. It is imperative for UNDP to pay specific ties to the GFATM programme agenda and did attention to the gender dimension in poverty and not actively engage in ongoing deliberations in development in the next programme, both in SWAp, donor coordination in the health sector, programme planning and implementation. or effective joint work with UN organizations.

Support to reforms in the area of governance Strategic positioning did not receive adequate attention in the country The programme decisions UNDP made were programmes. Transparency and accountability in largely guided by the post-war transition and public expenditure, institutionalizing procure- development needs in Tajikistan. UNDP has been ment procedures and reforms, implementation implementing programmes in Tajikistan since of the amended Civil Service Law, reforms that the civil war, which started in 1993. UNDP has would further merit-based civil service and wage significantly contributed to bringing the MDGs classification, measures to minimize corruption, into the development agenda to further human and implementation of local government law development and human security. The govern- are some of the governance issues where UNDP ment has taken full ownership of the MDG contributions could have been a valuable addition. agenda, although further efforts are required to UNDP has not been consistent in supporting translate government commitment into action. anti-corruption efforts in the country. There Responding to the critical infrastructure needs in were limitations in carrying out activities that rural areas, in the ongoing and previous country have policy relevance, even in areas such as local programmes, UNDP decided to emphasize governance where UNDP is well positioned. local infrastructure development. In terms of It is crucial that UNDP be more responsive to programme presence, the scale of operations furthering institutional and governance reforms has been extensive at the sub-district level and at the national level. UNDP addressed approximately 30 percent of the infrastructure needs at the local level. Local Recommendations development activities have given UNDP a niche at the district and sub-district level. UNDP UNDP has a significant role in informing was responsive to the needs of the Tajikistan development policy, reforms and strengthening water sector and concerted efforts were made to institutions in Tajikistan. The lessons for the strengthen water infrastructure. country office mainly pertain to the nature of interventions (micro versus policy interventions Disaster management is an important dimension and institution building), strategic approach to of development in Tajikistan, which is highly programme emphasis, and developing national prone to natural disasters. UNDP is well human resources and capacity. positioned in the area of early recovery and has been supporting the strengthening of disaster Programme strategy and approach management institutions and policy. UNDP is supporting the preparation of the National 1. UNDP should emphasize policy support Disaster Management Strategy and National and strengthening government systems. Disaster Management Action Plan. While Interventions in the area of governance

EXECUTIVE SUMMARY xv should be further strengthened. UNDP UNDP is recognized in Tajikistan as the should be more responsive to governance lead agency in mainstreaming the MDGs needs in the country and coordinate with in the national development strategy. There other agencies working in the area. has also been success in government owner- ship to achieve the MDGs. While UNDP Weak administrative and public finance should continue its support to monitoring management systems undermine development the MDGs, further efforts should be taken to in Tajikistan. UNDP interventions need to ensure there is donor facilitation in the area focus on policy enhancement and governance of MDGs, particularly in the health sector, issues. UNDP should prepare a strategy for where achieving the MDGs by 2015 is chal- interventions in the area of governance with lenging. There is need for sustained efforts an adequate time-frame (a minimum of five to ensure adequate attention is paid by the years). Some of the governance issues where government to achieving the MDGs among UNDP can add value include implementa- diverse development priorities. tion of civil service reforms, mechanisms to strengthen the capacity of government staff, Human development is the guiding strengthening budget systems, and local principle of UNDP interventions. UNDP governance reforms. should further strengthen its role in advo- cating for poverty reduction and human UNDP should broaden its earlier work in development. There should be continuous the area of anti-corruption, and should have support to the National Human Development specific interventions to enhance transparency Report (NHDR) which is a useful tool for and accountability in government adminis- advocating pro-poor strategies. trative and financial management. UNDP has already outlined local governance as one 3. Use programme partnerships to strengthen of its priority activities. The time-frame of donor coordination for achieving such efforts should be realistic to contribute development results. Strengthen UNDP to strengthening institutions and informing positioning in donor coordination. local government reforms. Donor coordination in several areas of UNDP is well positioned to further government development in Tajikistan can be further capacities in disaster management. Adequate enhanced, and UNDP is well posi- measures should be taken by UNDP to tioned to play this role. In the GFATM strengthen the role of the Committee of HIV/AIDS Project, UNDP should take suf- Emergency Situations (CoES) within the ficient measures to strengthen the country disaster management structures in Tajikistan. coordination mechanism (CCM). UNDP There are weak linkages between disaster should further coordination in the health management and development efforts in sector and actively engage in the SWAp Tajikistan. UNDP interventions should be process. While the role of UNDP in the aimed at strengthening the capacity of CoES functioning of REACT is critical, UNDP to coordinate mitigation, preparedness and should work out ways to shift the REACT response needs; and integrating disaster Secretariat to CoES and strengthen the CoES management in national development strategy. capacity to lead coordination. Functioning of REACT needs to be gradually handed over to the CoES. 2. There should be more substantial support to the government in the area of MDGs. UNDP should be more active in UNDP should strengthen its role in coordination forums such as DCC and advocating for implementation of pro-poor JCSS. At the time of the ADR, the DCC policies and strategies. was scheduled to function until September

xvi EXECUTIVE SUMMARY 2008. It was not clear if it will be extended government institutions, UNDP should work beyond that period. UNDP should be proac- through the existing government systems tive in ensuring the continuation of forums in the next country programme and avoid such as DCC and should adequately engage creating parallel structures such as JRCs. other UN organizations in the process. 5. Develop a programme strategy for The programme partnerships should be consistency in interventions and for furthered for more effective coordination in raising funds. different sectors. It is important that UNDP develops a 4. Implement programmes through programme strategy to raise funds. UNDP government agencies to improve national should shift from the present approach of ownership and enhance local capacities. responding to project priorities of donor UNDP should, in a phased manner, move agencies to a more coherent approach of from direct implementation of the pro- long-term and sustained interventions. The gramme to national execution modality. strong presence of UNDP at the local level Executing through government agencies should be used as an advantage to mobilize enhances national ownership and is an funds to achieve results in the Country opportunity to strengthen government Programme Action Plan. administrative systems and capacities. UNDP should take adequate efforts to Considering that financial and administra- strengthen micro-macro linkages. With tive systems in Tajikistan are weak, UNDP exceptions such as district development should work with the government to discuss plans, several projects were essentially pilots and plan measures to be taken to implement that were localized and were neither scaled programmes by the government. up nor informed government planning and All projects and programmes should be practices.. UNDP should be selective in defined by what they contribute to enhancing piloting new practices and ensure such pilots national human resources, development policy are linked to policies and strengthening and government institutions. In designing government capacities. the projects, sufficient measures should be 6. UNDP should make an assessment of the taken to follow the approach that will further role it can play in energy, environment national capacities. The large project staff of and climate change concerns in Tajikistan. UNDP currently substitutes for government Integrate environment and climate capacities. Alternate approaches, such as sec- change issues into poverty and disaster onding staff to the government departments, management interventions. should be followed. UNDP supported the government in Developing capacities of civil society preparing several action plans—such as organizations (CSOs) should be a comple- the 2007 National Environmental Action mentary process to enhance the performance Plan, National Action Plan on Conservation of institutions of local government. The of Biodiversity, National Action Plan on JRCs had a specific purpose to mobilize Mitigation of Climate Change, and revising participation of communities and facilitate the legislation on Protected Areas and project implementation in the transition Forestry Code. Environment and climate from humanitarian activities to develop- change is an area where UNDP can define ment. However, this short-term solution did a structured response to further national not sufficiently address strengthening the policies and plans. There are other inter- capacities of the Jamoat administration. national agencies in Tajikistan working in As a long-term measure of strengthening

EXECUTIVE SUMMARY xvii the area of energy and environment. UNDP of the PRS, NDS and JCSS in relation should carry out an assessment of the national to their impact on gender equality and needs, gaps in support to the government, women’s rights. UNDP should work with and the role UNDP can play in supporting other UN organizations (such as UNIFEM the government, in the areas of environment and UNICEF) to further government and climate change and efficient energy and commitment to international agreements on water management. women’s rights and development, such as the Convention on the Elimination of All Forms The forthcoming programme should take of Discrimination against Women, MDGs, adequate measures to integrate environ- and the Beijing Platform for Action. ment and climate change issues into poverty alleviation and disaster management inter- ventions. At the macro level, the World Programme management Bank is a major player in providing support 8. Strengthen monitoring systems. in the area of energy. UNDP should initiate interventions to further practices and policy The monitoring and evaluation systems should in cost-effective energy efficiency and facili- be strengthened for the entire programme. tate government support to energy efficiency Except for the GFATM programme, investments. UNDP should have an advocacy baseline information was not available for strategy for furthering government efforts to other projects. Baseline data was also lacking adopt and implement cost-effective energy for outcomes outlined in the country pro- efficiency as a high priority resource. Lessons gramme. Baseline information data should should be learnt from the ongoing pro- be prepared for all outputs and outcomes. gramme to ensure that micro-interventions Gender analysis and gender disaggregate data in this area are not fragmented and compart- should be made available for all interventions. mentalized. Efforts should be made to ensure There should be adequate human resources that interventions such as demonstration of allocated for monitoring and evaluation of energy efficiency technology have sufficient the programme. linkages with the government programme to Results-based management also needs to be enable scaling up. further strengthened both in the national 7. Strengthen gender mainstreaming in and area offices. In the present monitoring programme interventions. system, programme performance is largely tied to activities and outputs and perfor- UNDP should pay immediate attention to mance indicators related to results are mainstreaming gender in its programme not properly defined or monitored. It is interventions. UNDP should diversify its important to develop outcome monitoring activities to include interventions that are systems to establish linkages between pro- critical for gender equality and women’s gramme outcomes and UNDP contributions rights, such as support to capacity building to national development results. UNDP for women to participate in development, should also carry out periodic analysis of measures for confidence building and legal contributions to results for more efficient services. UNDP should facilitate the gov- programme management. ernment in monitoring the implementation

xviii EXECUTIVE SUMMARY Chapter 1 INTRODUCTION

Tajikistan is the poorest among the countries of implications for UNDP operations and strategic the former Republics of the Soviet Union and the positioning. Since the end of the civil war, Commonwealth of Independent States (CIS). the situation in the country is one of ‘cautious A large section of the population in Tajikistan reform’. The process of linking economic and was directly affected by the disintegration of political reform and recognizing the importance the Soviet Union in 1991 and the subsequent of this linkage for human development has civil war. While the country returned to peace been long drawn. Further, the development and political stabilization in the late 1990s, process in Tajikistan is closely linked to the the transition to development poses several political dynamics in Central Asia. The current challenges. Development challenges include: transition phase in Tajikistan brings with it post-war reconstruction, targeted assistance to the many challenges and opportunities for UNDP poor and reducing poverty, generating employ- to contribute to the national reform process and ment, and strengthening public institutions human development. and governance. 1.2 Purpose and scope 1.1. Rationale for the evaluation The UNDP programme in the Republic of In response to post-war reconstruction and Tajikistan was selected for an ADR in 2008 development needs, UNDP has implemented through an agreement between UNDP senior programmes in Tajikistan since 1993, working with management, the Government of Tajikistan the United Nations to establish peace and security and the UNDP Evaluation Office. The ADR is during the years following the war. Since the an independent evaluation that aims to analyse signing of the Peace Agreement in 1997, UNDP how and to what extent UNDP has addressed efforts focused on reconstruction and development. available opportunities and related challenges, Two country programmes have been completed in and how this is reflected in UNDP strategic Tajikistan and the ongoing one will be concluding positioning and contributions to overall develop- in 2009. The completion of 2005-2009 UNDAF ment results in the country. Tajikistan is in the and the country programme for the same period process of transition from a post war situation. It present an opportunity to evaluate the contri- is unclear how the process to achieve development bution of UNDP to development results and goals and priorities will play out strategically and the strategic positioning of UNDP during the politically. The evaluation also takes this issue ongoing and previous programme cycles. UNDP into account. is in the process of designing its new country programme for 2010-2015, within the context of The ADR seeks to ensure UNDP substantive UNDAF. The ADR will inform this process— accountability as an organization and provides honing the priorities of UNDP to align with the evidence on key issues of support to program- NDS and JCSS. ming at the country office level. The overall goals of an ADR are to: The geo-strategic and political context „„ Provide substantive support to the in Tajikistan, as well as the socio-economic Administrator’s accountability function in challenges the country is currently facing, have reporting to the Executive Board

CHAPTER 1. INTRODUCTION 1 „„ Support greater UNDP accountability to analysing the cross-cutting linkages and their national stakeholders and partners in the relationship to the MDGs and UNDAF. The programme country ADR is also intended to identify challenges and strategies for future interventions. „„ Serve as a means of quality assurance for UNDP interventions at the country level The evaluation of UNDP strategic positioning „„ Contribute to learning at corporate, regional was carried out from the perspective of the and country levels development priorities in the country and the organisation. It entailed an analysis of: the UNDP The ADR reviewed the UNDP programme in niche within the development and policy space in Tajikistan and its contribution to the solution Tajikistan; strategies used by UNDP Tajikistan of social, economic and political challenges. to strengthen its position in the development The evaluation covered the current and previous space and create a position for the organization country programmes (2005-2009 and 2001-2004). in the core practice areas; and policy support and Although more emphasis was placed on interven- advocacy initiatives of the UNDP programme tions of the ongoing country programme due to vis-à-vis other development stakeholders. more availability of data, efforts were made to examine the development and implementation 1.3 Method of UNDP projects during the previous country programme. The ADR included all the thematic An independent team of consultants was areas of UNDP contribution to development results, constituted by the UNDP Evaluation Office to although not all projects were included for evalua- carry out the ADR. The ADR team comprised tion. The projects on mine action, border security four members: two international consultants, management and environment were not included one national consultant and Evaluation Office for evaluation.The findings of the ADR and the task manager and team member. The evaluation lessons are intended to inform the preparation of exercise was supported by the UNDP Evaluation the next UNDP country programme.1 Office and the country office in Tajikistan.

The evaluation had two main components: the Drawing from the ADR guidelines2 and the analysis of UNDP contribution to development broader UNDP evaluation policy3 the ADR results and the strategic positioning of UNDP. method is based on the objectives and scope The ADR entails a comprehensive review of identified during the preliminary consultations the UNDP programme portfolio of the previous in the scoping mission and a subsequent review and ongoing programme cycles. This included of programme evaluability. The evaluability an evaluation of development results achieved review included an appraisal of the programme and the contribution of UNDP in terms of key objectives and strategies, monitoring and interventions; progress in achieving outcomes evaluation systems, monitoring data available, for the ongoing country programme; factors evaluation reports and external studies. The influencing results (UNDP positioning and evaluation questions were defined through capacities, partnerships, policy support); achieve- extensive stakeholder consultations carried out ments, progress and contribution of UNDP in during the preliminary phase of the evaluation. results areas (both in policy and advocacy); and These inputs were framed under the overall

1 In the thematic area on reversing decline, the assessment did not include the projects related to mine action and border security. 2 UNDP, ‘Assessment of Development Results: Key Elements of Methodology’, Evaluation Office, UNDP, New York, NY, 2002. 3 UNDP Evaluation Policy.

2 CHAPTER 1. INTRODUCTION objectives of evaluating strategic positioning and „„ UNDP corporate results-based management contribution to development results. A set of reporting documents (Results Oriented standard UNDP evaluation criteria was used Annual Report) to assess development results. This includes „„ UNDP project documents and effectiveness, efficiency, sustainability, relevance, evaluation reports responsiveness and social equality. The Terms of Reference is in Annex 1. „„ Internal UNDP documents (audit reports, surveys) The findings and conclusions of the ADR are „„ based on the perception of the key stakeholders of Government programmes and reports the programme and those working on development (PRS-I and PRS-II, NDS, JCSS background issues in Tajikistan. The findings were substan- papers, MDG needs assessment and progress tiated with programme data wherever available reports, data collected by the Strategic and the programme and project evaluations. Research Centre and Economic Department, Tajikistan Living Standards Survey)

The evaluation used both qualitative and „„ Country assistance strategies and policy quantitative data. Qualitative data was collected papers of donor agencies and international by the team from primary sources during the financial institutions mission and documentary review of secondary sources. This was combined with quantitative „„ Scientific papers by national and international synthesis and analysis of relevant secondary data. research institutions and universities Data collection methods included: „„ Regional analytical papers „„ Review of documents 1.3.2 Semi-structured stakeholder „„ Semi-structured interviews (with selected INTERviews stakeholders such as government officials, Semi-structured interviews were used to collect donor organizations, private sector primary data from individual respondents. The representatives) focus of the interviews was on: programme perfor- „„ Selected site visits (at regional and mance (for those who were directly involved with local level activities to assess issues at the UNDP programme or were aware of the implementation levels) programme); perception of UNDP programme; policy issues; and response of development agencies. A standardized check list (see Box 1) 1.3.1 Review of documents was used to guide interviews with informants, and A repository of documents related to the evalua- summary sheets were used to collate interview tion was prepared by the UNDP Evaluation information to enable systematic analysis of Office. A wide range of documents from this information. Interviewees were determined repository were consulted by the evaluation team following a stakeholder analysis during the scoping prior to and during the course of the evaluation. mission and were extended to include new leads The documents reviewed include: as they emerged. More than 110 individuals were „„ UNDP corporate documents (Strategic interviewed during the ADR. The evaluation Plan, Multi-Year Funding Framework, team also interviewed UNDP management and policy papers) programme team members.

„„ Country programming documents (Common The evaluation team organized data collection Country Assessment, UNDAF, Country processes collectively as well as in separate Programme Action Plan) teams. Because the evaluation covered all

CHAPTER 1. INTRODUCTION 3 Box 1. Checklist of questions

Stakeholders Main evaluation questions Government • Did UNDP programmes reflect national priorities? • How responsive was UNDP to the changing priorities and needs of Tajikistan? • How do you see the role of UNDP as a contributor to national development? • How do you see the role of UNDP in policy support? • What were the most significant and successful UNDP interventions and why? • Are there areas where UNDP should intervene further or improve its performance? • How do you see the approach followed by UNDP in implementing programmes in Tajikistan? • What arrangements have been made to ensure the sustainability of results achieved with UNDP support? • What are the existing coordination mechanisms? • How effective has UNDP been in coordinating with others?

NGOs and represen- • What are your views on development needs in Tajikistan and progress tatives of civil society towards development? • Has UNDP effectively contributed to improving the situation in Tajikistan? • What was the most significant contribution of UNDP? • Do you participate in projects/consultations supported by UNDP? • How effective were such projects/consultations? • What could have been done better or differently to improve effectiveness and better respond to needs more adequately? • Have you benefited from UNDP-supported training or capacity building?

Multilateral and • What are your views on progress towards human development in Tajikistan? bilateral develop- • What are your views of the UNDP role and performance, including effective- ment partners, ness, efficiency, relevance and strategic role? including UN • What are the major comparative advantages of UNDP in this country? organizations and international • What has been the major value addition of UNDP? financial institu- • How could UNDP have been more effective? tions, programme • What coordination mechanisms are in place, and what role does UNDP play beneficiaries in coordination? • Has your situation improved because of the development projects (those implemented/supported by UNDP)? • Did interventions correspond to your needs? • Was the support timely and well targeted? • What did UNDP do well? • Which are the interventions that did not work well? • What could have been done better? • How do you see the future? • Will you be able to continue your activities once direct support of UNDP ceases?

4 CHAPTER 1. INTRODUCTION the regions in Tajikistan where the UNDP „„ Responsiveness was used to evaluate the programme was implemented, the team split extent the UNDP programme responded to up on several occasions to carry out stakeholder the development needs in Tajikistan and the interviews simultaneously. timeliness. That is, how has UNDP antici- pated and responded to significant changes 1.3.3 Site visits in the national development context? The ADR team visited all the area offices „„ Social equality was used to evaluate if of UNDP—including field visits to Kulyab, programme activities led to reduced vulnera- Gharm, Ayni, Shartuz and Kushand—providing bilities in the country. That is, did the UNDP a geographical representation of different regions programme in any way influence the existing in Tajikistan. The field visits provided the inequalities in the society? Was the selection opportunity to get the perceptions of the benefi- of geographical areas of intervention guided ciaries of various programmes and their views on by need? development needs at the local level. Partnership, coordination and national ownership were evaluated as part of each of the 1.3.4 Evaluation criteria above criteria. Standard ADR criteria were used to evaluate UNDP contributions to results. These criteria The ADR was a transparent, participatory include the following: process and took adequate measures to include „„ Effectiveness is assessed by an appreciation all the development stakeholders in Tajikistan. of the extent to which specific objectives were The ADR process promoted participation of achieved or were expected to be achieved, stakeholders and beneficiaries, particularly the taking into account the external factors that government counterparts of UNDP and civil could have affected implementation. society representatives. A wide range of develop- ment stakeholders were contacted, including „„ Efficiency is used to examine outputs— government officials, international agencies, qualitative and quantitative—achieved donors to the UNDP programme, international as a result of inputs. The ADR was not and national NGOs, and public recipients or entirely successful in assessing efficiency in beneficiaries of the programme. The assessment terms of alternative approaches to achieving also included the perceptions of key informants an output. not directly involved with UNDP programmes. „„ Sustainability is based on a considered assessment of whether UNDP has been able 1.3.5 Phases of THE ADR process to develop permanent structures, procedures The preparatory phase involved an intensive and professional capacity that would continue initial review of documentation, as well as to perform the expected services within consultations with the UNDP Evaluation Office, national institutions. Regional Bureau of Europe and the CIS, and key „„ Relevance is based on an assessment of UNDP agencies. In New York, the two interna- whether the types of interventions selected tional consultants met with representatives of by UNDP fit the priorities of the country, UNDP bodies. The preparatory phase included a and whether UNDP used partnerships one-week scoping mission to Dushanbe (30 June with donors, other UN organizations, to 7 July 2008), undertaken by the team leader NGOs and the private sector effectively and Evaluation Office task manager. The mission in addressing MDGs and enhancing its was used to define the scope of the evaluation, programme outcomes. discuss the structure and rationale of the country programme with the UNDP country office, carry

CHAPTER 1. INTRODUCTION 5 out stakeholder mapping, and identify additional 1.4 Limitations documentation to guide the team. A workshop One of the main limitations of the ADR was was held with the development stakeholders in the lack of proper monitoring information on Dushanbe to get their perception on develop- the intended outcomes and results. The baseline ment needs in Tajikistan and how those needs information crucial for evaluation of results was are being addressed. The workshop was also used lacking for most programmes. The monitoring to share with the development community the systems for the programme areas were weak, purpose and process of the ADR. The criteria although there was sufficient information on the used for selecting the projects included thematic individual project activities and outputs. Although focus, size, duration, geographical coverage the linkages of results in the Country Programme and nature of partnership. An inception report Document and Country Programme Action Plan was prepared to enable the team to follow the were appropriate, the outcomes were too broad evaluation design. and ambitiously stated. Also, the outcomes did not adequately reflect the entire range of results The main ADR mission involved three weeks and the projects that were carried out. There was from 4 August 2008 to 22 August 2008. The less clarity in the project objectives and indicators ADR team had extensive discussions with the and their overall contribution to goals. Similar country office management, programme units lack of clarity was evident in the project outputs and project staff in Dushanbe and area offices. and outcome indicators. The team also met key government counter- parts at the state, Oblast (region or sub-national), There were also limitations in the collection of Ryon (district) and Jamoat (village) levels; monitoring information at the outcome level. representatives of UN organizations, bilateral The evaluation largely relied on the interviews and multilateral organizations; UNDP donors, and midterm and outcome evaluations. The international and national NGOs, members of country office carried out external evaluation civil society; and beneficiaries of the UNDP of projects and outcomes of all major areas of programme. The international organizations and the programme, except disaster risk manage- NGOs the team met included those that were ment programme. Considering that the focus not directly involved with UNDP programming. of evaluations and approach varied, it was not always possible to assess results based on these The initial observations and findings were evaluations. The quality of the evaluations was presented to the UNDP country office staff largely good and formed a basis for the ADR. and key government counterparts in Dushanbe in two separate workshops. The comments and Since the ADR does not include a comprehensive reflection during the workshops was taken into primary survey of the effect of all interventions or consideration while preparing the report. Before examine a sufficient period to determine such finalizing, the evaluation findings were shared for change, clear linkages of UNDP contributions discussion with wider development stakeholders to development results pose limitations. Data in a workshop in Dushanbe in April 09. was available on broad trends in the areas of evaluation, which was supplemented by percep- tions of stakeholders and observations during the field visits.

6 CHAPTER 1. INTRODUCTION Chapter 2 National Context

Since its national independence in 1991 and also has a complex geography—it is landlocked, the subsequent civil war until 1997, Tajikistan resource poor, mountainous and faces an has faced formidable challenges in political unfavorable geo-political backdrop bordered by restructuring, reorganizing the economy and Afghanistan and Uzbekistan. Recurrent humani- responding to the socio-economic needs of the tarian situations have slowed down development people. There was a steep economic decline with and diverted the focus from long-term develop- disruption of trade with countries in Central ment issues. After a decade of political unrest Asia, withdrawal of subsidies from Moscow, and social and economic instability, political and and a drop in both industrial and agricultural economic reforms have been underway since production. The civil war contributed to the 1997. For social and economic indicators and deterioration of the physical infrastructure and geographical profile of Tajikistan, see Box 2 and an already weak institutional capacity. Tajikistan Box 3.

Box 2. Selected indicators for Tajikistan Size 143,100 sq km Arable land (1998) 6.52% Population (2007) 7.13 million Population less than 14 years of age 34.6% Annual population growth rate (2003) 2.1% Total fertility rate, births per woman (2000-2005) 3.04 GDI rank, out of 177 countries (2004) 88 Life expectancy at birth (2005) 66.3 years Male 62 years Female 68 years Adult literacy rate, age 15 and above (1995-2005) 99.5% Male 99.7% Female 99.2% Population living on less than $1 a day (2003) 2.5% Population living below the national poverty line (2003) 44.4% Under 5 mortality rate per 1,000 live births (2006) 68 Population using an improved drinking water source (2004) 59% Source, Human Development Report, 2007/2008; Asian Development Bank. 2007. Key Indicators 2007. Manila; Asian Development Bank. 2008. Basic Statistics 2008. Manila. Note: GDI indicates Gender-Related Development Index.

CHAPTER 2. NATIONAL CONTEXT 7 restructuring including tax reforms, banking Box 3. Geographic and social profile sector restructuring, and legal and regulatory • Tajikistan is landlocked by Kyrgyzstan, development of markets. The country achieved Afghanistan, Uzbekistan and China. full currency convertibility in 2000, followed by • The country is predominantly mountainous price liberalization and small-scale privatiza- and approximately 50 percent of the country’s tion. Agriculture is the second largest sector of surface is elevated 3,000 meters above sea the economy, after services. In 2004, agriculture level or higher. accounted for 24 percent of Gross Domestic • Arable land and land under permanent crops Product (GDP), 66 percent of employment, make up 7.5 percent of the total surface. 26 percent of exports and 39 percent of tax revenue. • Tajikistan has a population of approximately Cotton is the main agricultural export crop, 7.3 million, which consists of 2 million of urban 5 and 5.3 million of rural inhabitants. constituting 90 percent of agricultural exports. • The country’s ethnic structure comprises 65 percent Tajiks, 25 percent Uzbeks, The sustained economic recovery since 1998 is 3 percent Russian and 7 percent of others mainly attributed to continued political stability, (such as Tatars, Kyrgyz and Koreans). an improving macro economic environment, and • The official language is Tajik, a substantial support from donors and international Persian-based language. financial institutions.6 Real GDP growth, which Source: The Cotton sector of Tajikistan, New opportunities for had begun to recover in 1997, accelerated in the the International Cotton Trade, presented by the Government 2000s, averaging 9 percent per annum during of Tajikistan, April 2007. 2000 to 20057 and 8.5 percent during 2003-2005. The real GDP was 7.8 percent in 2007 and 5 percent in the first half of 2008, with a projec- 2.1 Economic context tion of 7 percent for the year.8 GDP growth The transformation in Tajikistan during the past slowed in 2008 due to reduction in outputs and decade has been twofold: transformation from a exports because of a winter crisis, locust infesta- civil war situation to a stable political situation, tion, and shortages of energy for pump irrigation. and from a Soviet economic model to a more Strong growth, better tax administration and liberal economy. Tajikistan’s economy followed a change in the method for determining value a similar path to that of other CIS countries added tax boosted domestic revenues, which following the break up of the Soviet Union in rose by more than 6 percent of GDP from 1999 9 1991, notably a steep decline in output followed to 2006. by a recovery beginning in the second half of the 1990s.4 The capital investment rate remained low, although there has been substantial improvement Since 1997, the Government of Tajikistan has in economic performance. Inflation accelerated initiated several measures towards economic in the past two years, at 19.5 percent in 2007 and

4 Brownbridge M and S Canagarajah,‘ Fiscal Policy for Growth and Development in Tajikistan’, Policy Research Working Paper 4532, The World Bank, 2008. 5 Government of Tajikistan, ‘The Cotton Sector of Tajikistan: New Opportunities for the International Cotton Trade’, Presentation by the Government of Tajikistan, April 2007. 6 Ibid. 7 Real GDP growth, which had begun to recover in 1997, accelerated in the 2000s, averaging 9 percent per annum during 2000-2005. 8 IMF, ‘Republic of Tajikistan: First Assessment Under the 2008 Staff-Monitored Programme’, IMF Country Report No. 08/382, December 2008. 9 Brownbridge M and S Canagarajah, ibid.

8 CHAPTER 2. NATIONAL CONTEXT a projected 18.5 percent in 2008.10 While this Incentives to channel remittances toward private has been attributed to the surge in international investment are needed to stimulate broader-based wheat prices and energy, it also reflects rapid growth.17 Medium- to long-term growth hinges monetary expansion from quasi-fiscal operations on implementing structural reforms and acceler- by the central bank associated with cotton sector ating agricultural and infrastructure reforms. financing.11 There has been a sharp increase in price of imported food commodities contrib- There have been setbacks to economic growth uting to significant food price inflation. Overall, in the past two years. Domestic and external consumer price inflation reached 25 percent in balances are projected to deteriorate due to slow mid 2008.12 growth and emerging crises. External debt is rising as the debt to GDP ratio was 50 percent Remittances have risen rapidly, supporting in 2008.18 Tajikistan remains vulnerable to a domestic demand. Total remittances in sudden increased demand for foreign currency Tajikistan were estimated at approximately USD caused by macroeconomic shocks. Cotton and 550 million (26 percent of GDP) in 2004, USD aluminum, traditional sectors of the Tajikistan 735 million (31 percent of GDP) in 2005,13 economy, provided approximately 9 percent of and 38 percent of GDP in 2007.14 The current GDP in 2007 and their contribution to the total account deficit averaged approximately 3 percent economy has been declining steadily.19 Cotton of GDP during 2002-2006 and tripled in 2007.15 production, though still a significant part of the Remittances have been an important source of agricultural sector and representing approxi- foreign exchange, surpassing the receipts from mately 10 percent of exports, is facing decline, aluminum and cotton exports. Considering that despite a positive global price tendency. This most remittances originate from Russia, the is due to losing efficiency gains in the sector as financial crisis and imbalances in the Russian well as diversification of the economy, that is, economy, particularly the construction sector the increase of non-cotton agriculture, textiles where migrants from Tajikistan are employed, and services. Tajikistan has so far been able can significantly affect the remittances inflow. to counterbalance the large trade deficit with The increase in remittances has not led to growth surging remittance inflows.20 in domestic savings or investment rates. Private investment is chronically low at 5.4 percent The main long-term challenges for development of GDP. Public capital investment (mainly policy in Tajikistan are to sustain rapid economic infrastructure projects) also remains low.16 growth and to ensure that the benefits of this

10 IMF Country Report No. 08/382, December 2008. 11 Ibid. 12 European Bank for Reconstruction and Development, available online at http://www.ebrd.com/country/country/taji/econo.htm. 13 Abdul-Ghaffar Mughal, ‘Migration, Remittances, and Living Standards in Tajikistan, A Report Based on Khatlon Remittances and Living Standards Measurement Survey (KLSS 2005)’, International Organization for Migration, Tajikistan, 2007. 14 IMF, ‘Republic of Tajikistan: First Assessment Under the 2008 Staff-Monitored Program’, IMF Country Report No. 08/382. 15 Ibid. 16 Asian Development Bank, available online at http://www.adb.org/documents/books/ADO/2007/TAJ.asp. 17 Ibid. 18 The World Bank, Country Brief 2008, available online at http://web.worldbank.org/wbsite/external/countries/ecaext/ tajikistanextn/0,,contentMDK:20630697~menuPK:287255~pagePK:141137~piPK:141127~theSitePK:258744,00.html. 19 Ibid. 20 European Bank for Reconstruction and Development, available online at http://www.ebrd.com/country/country/taji/econo.htm.

CHAPTER 2. NATIONAL CONTEXT 9 growth are equitably distributed. This necessitates to the MDGs in 2000. The PRS-I in 2003 and a growth in labor-intensive production to create PRS-II and NDS in 2007 are the medium and more employment and to reverse the deteriora- long-term strategies designed by the government tion in social indicators—notably educational to address development priorities. The PRS and attainment and health status—that has taken NDS are aimed to lower the poverty and extreme place since the country became independent. The poverty rates, create employment, increase school business climate still lags behind those of other enrolment levels, reduce maternal and child transition countries. The private sector is approx- mortality and the number of infectious diseases, imately 50 percent of the GDP, and foreign direct and enhance social and gender equality. investment is low. Tajikistan has the lowest labor productivity among CIS countries, although this Despite the efforts by the government and the may reflect other factors besides the quality of the international community, poverty is one of the workforce, such as the high cost of doing business critical development challenges, and Tajikistan in the country.21 Improving labor productivity is continues to be dependent on international aid. necessary to sustain long-term growth. While Poverty in Tajikistan (including extreme poverty) the macroeconomic environment for private continues to be widespread, although the poverty investment has improved markedly, some of the rate has declined since 2003. According to institutional features of the investment environ- the 2007 Tajikistan Living Standards Survey, ment are a major constraint to private investment, 53.1 percent of the population is poor and as shown by business surveys such as the 2005 17.4 percent is extremely poor. The absolute and Business Environment and Enterprise Survey. extreme poverty lines are estimated at USD 39 and Small and medium-sized businesses continue USD 25 per month respectively. Income-based to suffer from excessive administrative barriers. inequality is higher than consumption-based Excessive interference of the government in inequality. There is significant regional variation financial management and corruption has limited in the rates of poverty and Sughd and Khatlon private investment in Tajikistan. While the together represent 71 percent of the poor people public infrastructure assets are considered as in the country. Poverty is most severe in the over-dimensioned for the size of the economy,22 remote mountainous areas, where the popula- what is needed is an infrastructure conducive tion is increasingly composed of very young to private investment. The country’s legal and and elderly. The Living Standards Survey notes regulatory institutions and public sector adminis- that rural areas account for 71.4 percent of the tration need to be improved in order to provide national poverty and 75.6 percent of extreme an environment truly conducive to domestic and poverty. Female headed and large households foreign private investment and efficient public were found to be more vulnerable to poverty. service delivery. Investment in the cotton industry did not contribute towards any major results in poverty reduction. 2.2 Poverty reduction and MDG However, remittances from other countries have There have been several initiatives by the reduced the incidence of total and extreme poverty, government of Tajikistan in the past eight years and the poverty gap, by 5 percent.23 Employment to address poverty and human development trends are less reliable as not all unemployed are needs. Tajikistan is one of the first pilot countries registered. Trends however indicate that there of the Millennium Project and became a signatory are high levels of informal employment. There

21 World Bank, ‘Tajikistan: Trade Diagnostic Study’, Report No 32603, 2005. 22 World Bank, ‘Europe and Central Asia Infrastructure Study’, 2006. 23 Tajikistan Living Standards Survey, 2007.

10 CHAPTER 2. NATIONAL CONTEXT are indications of significant increase in the was prevalent in many parts of the country, labour force by 40 percent, which has implica- particularly among young children. tions for the labour market and public services. Meeting the income poverty reduction target Tajikistan is close to achieving the MDG target seemed less likely with a large percentage of of 76 percent of the population having access to unemployed. Public employment fell and private- safe drinking water. While the average percentage sector employment, particularly in agriculture, of the population having access to improved grew in 2004. drinking water in 2006 was 67 percent, the proportion of rural populations having access to

24 an improved drinking water source was much 2.3 Social sector lower compared to urban areas (58 percent One of the concerns in Tajikistan, despite compared to 93 percent).25 Physical infrastruc- economic growth, is that government spending ture deteriorated during the transition from the for the social-service sector is low. Public Soviet Union and long civil war, and due to many expenditure for the social sector is approxi- frequent natural disasters. In the past years, the mately 8 percent, and spending for health is level of budgetary allocation in the health sector less than 1.5 percent of the GDP. A large share has been 1.2 percent of GDP. Lack of access of the budget is spent on salaries and there is to essential health care services has contributed little left for improving public services. The to an increase of infectious diseases including quality of the labour force has been a concern malaria, TB and HIV/AIDS. Cross-border drug in Tajikistan. Poor salaries for government trafficking and drug use by injection has increased staff and the migration of qualified labour have the spread of HIV/AIDS. undermined the quality of human resources in government agencies. 2.4 Agriculture sector

Although social indicators have stabilized since Agriculture in Tajikistan is dominated by the end of the civil war, there are clear indica- the cotton farming, which absorbs vast tions that achievements of the MDGs in health amounts of agricultural inputs but produces and education remain ambitious. While the only 14 percent of agricultural output. It suffers government is committed to achieving the from substantial domestic inefficiencies and MDGs, difficulties are foreseen in achieving inequalities and faces significant challenges. The the MDGs in reducing child and maternal large debt of the cotton sector (estimated at mortality, gender equality, school enrolment, approximately USD 450 million), the absence and access to improved water sources. There of competition in input and output marketing, has been a decline in educational attainment, and slow land reforms have led to a decline in with falling school completion rates and deteri- the sector and left cotton farming unviable for oration in the quality of school education. The many farmers. school enrolment rate among girls has dropped considerably, as has their upper secondary school Reforms in the agriculture sector have been attendance. The low level of public investment slow. While the monopoly of the state in and spending on education translates into poor cotton ended in 1998 with the disbanding of physical conditions of schools and underpaid Glavkhlopkoprom—the government agency for teachers. Chronic as well as acute malnutrition purchasing and exporting cotton—other state

24 ‘The State of Children and Women in Tajikistan: A Comparative Analysis of MICS 2000 and MICS 2005 Results’, Central Asia HDR, Tajikistan Living Standards Survey 2007. 25 UN Population Division, ‘World Population Prospects the 2006 Revision’, WHO/UNICEF JMP, 2008.

CHAPTER 2. NATIONAL CONTEXT 11 structures have emerged in its place.26 Local Most of the water for the region originated officials continue to use their authority to enforce from Kirgizstan and Tajikistan. There have been de facto production quotas and artificially low issues about water sharing with countries such as prices by withholding inputs from farmers who Uzbekistan. While the Central Asian Republics refuse to grow cotton, blocking farmers’ access of the Former Soviet Union have avoided open to external markets, and allocating the best land conflict and military hostilities over scarce water to cotton farming while leaving the worst land resources, their relations have been strained, for food production. This has implications for especially between Tajikistan and Kirgizstan on farmers in the Khatlon and Sughd regions where the one side and Uzbekistan on the other.28 poverty rates are high. The winter crisis in Tajikistan in 2007-2008 Market oriented agriculture is mainly constrained brought to the forefront the need for more by lack of land rights and the state withholding cooperation among the countries in the regions inputs from farmers who refuse to grow cotton. in sharing water and energy. The severe While the Presidential Decree 111 provides winter led to a shortage of electricity that some flexibility in land use, lack of incentives brought normal life in Tajikistan to a standstill. for growing other crops limits development in Tajikistan’s situation was aggravated by the fact the agriculture sector. Land use has become that Uzbekistan, due to its own winter energy inefficient and unsustainable as farmers lack shortages, suspended gas exports and limited incentives to invest and adopt practices consistent transfer of electricity through its territory. The with long-term agriculture development. Poorly lack of water in summer and lack of electricity functioning markets also constrained the develop- in the winter created humanitarian crisis and ment of agriculture.27 The trade mechanisms are significant economic losses in Tajikistan. Besides largely controlled by local monopolies, underval- the potential for the water and energy situation uing cotton produced by the farmers, and to deteriorate into a political crisis in the region overcharging inputs and credits. Margins are less is highly probable unless there are diplomatic viable for farmers to profit in the cotton sector, efforts to resolve these issues.29 leading to increased debt among cotton farmers. Further reforms and efforts are required in the agriculture sector to ensure land and user rights 2.6 Governance reforms and create a free trade environment. There have been considerable efforts on the part of the government to initiate macro-economic 2.5 Energy and water— reforms. However, governance reforms in the Central Asia dynamics social sector and in enhancing democratic governance have been slow. Among the challenges As in other Central Asian countries, water outlined in the NDS, ineffective public adminis- and energy management is a crucial factor for tration and inadequate implementation of local development in Tajikistan. The disintegration governance reforms are seen as adversely affecting of the Soviet Union had significant implications sustainable and long-term economic growth and for the water and energy sharing arrangements poverty reduction.30 among the Soviet republics of Central Asia.

26 World Bank, ‘Republic of Tajikistan: Poverty Reduction Strategy Paper Second Progress Report’, 2006. 27 Ibid. 28 Linn JF, ‘The Impending Water Crisis in Central Asia: An Immediate Threat’, The Brookings Institution, 2008. 29 Linn JF, ‘Tajikistan: Progress and Problems at the Heart of Central Asia’, The Brookings Institution, 2008. 30 NDS, 2007.

12 CHAPTER 2. NATIONAL CONTEXT Government institutions at the national and appraisal is not being implemented.31 There sub-national level and judicial and law enforce- have been efforts to strengthen civil service and ment systems lack adequate capacities. Excessive legislation has been adopted, such as the 2007 interference by government authorities at all Civil Service Law, which is expected to enforce levels, including in law enforcement agencies, competitive recruitment. in the operations of economic entities have undermined governance. The decision-making mechanism is not transparent and has been less 2.7 Civil society Organisations conducive to encourage private investment. Lack The concept of civil society organisations and of transparency and accountability mechanisms NGOs are relatively new in Tajikistan. The have contributed to high levels of corruption adoption of the new Constitution of the Republic in the use of public funds. Mechanisms for of Tajikistan in 1994 recognized civil society and public expenditure planning, budget prepara- brought certain legal guarantees for its develop- tion and execution, internal controls, and audit ment. These guarantees were primarily related to are weak. Public procurement and enforcement human rights and the general freedom of citizens. of the procurement law continues to be an issue. Further development of these basic principles is A public financial management reform process nevertheless subject to the willingness of the is underway, but it is too early to assess the state to minimize control over communities and outcome of this. accept the formation of NGOs.

Development of local government and an The Law of the Republic of Tajikistan on Public administrative-territorial division based on Associations, legislated in 2008, recognizes decentralization in Tajikistan started in the public associations as voluntary, self-managed early 1990s. Local government institutions and non-commercial formations. There are a derive their legal basis from the Constitution, number of NGOs registered in the country by the Law on Local Public Administration, and the Ministry of Justice. During a process of the Law on Local Self-Governance in Towns re-registration of NGOs in 2007, the number of and Villages. There are some constraints in organizations was reduced from 3,500 to 1,043. autonomous functioning of local governments. The re-registration process was seen to restrict Centralization of government revenues and lack the space of CSOs and the process was perceived of clarity with regard to the rights, powers and to be less transparent. accountability of local government constrain the effective functioning of local government. Local governments are not actively involved in the 2.8 Gender and access to development process as incentives for revenue development resources rising and regional development are low. Recent The Constitution of Tajikistan provides for amendments to local government legislation are gender equality, and there is legislation to further intended to addresses some of these issues. ensure women enjoy the same rights as men. Despite such legislation, there are significant As mentioned, the quality of human resources is variations in the participation of men and women of major concern in government services. Low in economic and political activities and in access salaries in government jobs do not attract people to social services. Women are disproportion- to join government service. As many organi- ately poor—often left caring for households zations have closed their specialized personnel as men leave villages to find work or widowed departments, the decree on performance during the war. During the past decade, several

31 PRS Monitoring Report, 2007

CHAPTER 2. NATIONAL CONTEXT 13 laws were passed to further gender parity in post-war reconstruction and development in accessing development resources and to enhance Tajikistan is an important component of develop- equal participation of men and women in the ment spending. In the past three years, there economic, social and political sphere.32 However, have been new dimensions to development aid limitations in the implementation of gender in Tajikistan. The country has been attracting policies continue to exist and women are in many development aid because of its strategic location ways are disadvantaged. in the U.S. war against terror. During the past five years, loans from Russia, China and Iran for In the Soviet system, quotas existed for infrastructure development have increased, with participation of women, although men held limited stipulations for public fund manage- most key positions. The political participation ment. The economic impact of these projects is of women decreased considerably in post Soviet still uncertain. Tajikistan. In recent Parliamentary elections, 5 of the 181 deputies were women. The percentage of Overseas aid is the main source of funding women in politics at the Oblast level is 4 percent, for humanitarian and development activities in 7 percent at the district level, and 11 percent at Tajikistan. Between 1991 and 2006, Tajikistan the municipal level.33 received approximately USD 1.98 billion dollars in ODA. Approximately 80 international aid There are gender differences in participation of organizations (bilateral and multilateral donors men and women in different occupations. Only and NGOs) have been supporting development 25 percent of business managers are women, activities. There has been a considerable increase while almost 50 percent of all workers are women. in development aid in the past decade, and ODA Approximately 70 percent of the workforce in increased from USD 16 million in 1992 to USD agriculture is made up of women, which includes 300 million in 2006. On average, official ODA 85 percent to 90 percent of the labourers in during the past six years was USD 225 million a cotton growing areas. Women also receive fewer year. Approximately two thirds of the ODA was wages compared to men. While the Soviet Union in grant form and one third was a loan. subsidized childcare facilities, most facilities have since closed. Male migration to Russia has The State Committee of Investment and State increased the number of women taking up agricul- Property Management of the Republic of ture labour and the number of female-headed Tajikistan recently published the Foreign Aid households. Of the small percentage of privatized Report 2007. The report shows that, in 2007, land, women officially administer only 1 percent, 448 development projects were implemented and the. Female-headed households are thus and 665 agreements were reached with the among the poorest households in rural Tajikistan. government. Of those, 481 agreements were completed in 2007 and 273 agreements are still continuing. Bilateral organizations contributed 2.9 Development assistance approximately 57.3 percent of the total funds Donor participation has been high in Tajikistan received, while 40.2 percent was contributed by since the civil war, and several international multilateral organizations and 2.5 percent by development agencies have been implementing NGOs and other organizations. programmes. Development assistance for

32 For example, National Action Plan on Increasing the Female Status and Role for 1998-2005; Law On Reproductive Health and Reproductive Rights (December 2002); Main Directions of the State Policy for Ensuring Equal Rights and Opportunities of Men and Women in the Republic of Tajikistan for 2001-2010. 33 Stucker D, ‘Linking Natural Capital, Rural Livelihoods, and Conflict: Towards Governance for Environmental Security and Peace in Tajikistan’, Costa Rica, 2006.

14 CHAPTER 2. NATIONAL CONTEXT The disbursement of funds during the past appeal during the 2007-2008 winter crisis was five years indicates that priority was given to approximately USD 25 million. economic development in Tajikistan. With the exception of the 2002-2003 period, expenditure Despite intense donor presence in Tajikistan, on development related interventions exceeded coordination of external aid across sectors has humanitarian and technical support. Among been weak. There have been excessive invest- the non-programme aid, technical assistance ments in some sectors and fragmentation within comprised one third of the assistance followed by sectors undermining the effective use of aid. The Government Aid Coordination Unit lacks food and humanitarian aid. adequate capacity to manage and disseminate aid information in a timely manner. While the Consecutive natural disasters in Tajikistan government has adopted the PRS and NDS increased aid for humanitarian and food assistance, in the past five years, development assistance and until 2002, comprised about 50 percent of continues to be donor driven, with considerable the total aid. The nature of aid for humanitarian discrepancies between government priorities and assistance has changed and donors respond to donor priorities. While there have been efforts by flash appeal by the government. During the past the government to develop a legal framework for five years, there were flash appeals by the govern- foreign assistance, there has been limited progress ment for disaster response and mitigation. The in this area, leading to lack of transparency in contribution of international agencies to the flash development assistance.

CHAPTER 2. NATIONAL CONTEXT 15 16 CHAPTER 2. NATIONAL CONTEXT Chapter 3 UNDP in Tajikistan

UNDP began its programme in Tajikistan in Tajikistan to develop rules of procedure for both 1993 and supported the relief and stabilization houses; strengthen national capacity in the area efforts of the international community and the of external resource management and aid coordi- United Nations Peacebuilding Support Office. nation; strengthen the management capacities Until 1997, UNDP activities were defined by the of the Ministry of Foreign Affairs and the political and social instability in the country and Commission for National Reconciliation; and the programme was largely confined to humani- establish a database. tarian assistance at the sub-district. Since the signing of the Peace Agreement in 1997, UNDP The Rehabilitation, Reconstruction and has expanded its programme scope to reconstruc- Development Programme (RRDP) was initiated tion, transition and development. A strategic during the first country programme to enhance framework for UNDP assistance was formulated social and economic recovery and consolidate for the period 1997 to 1998 to link humanitarian peace. There were more than 690 projects in and longer-term development assistance. This the area of health, education, infrastructure, later evolved into the first country programme for agriculture, water management and promotion the period 1999 to 2000, subsequently followed of gender equality. These have had thousands by the second (2001 to 2004) and third country of beneficiaries. The projects were implemented programmes (2005 to 2009). The ADR carried by sub-contracting to public and private firms. out an evaluation of the third country programme The reintegration programme is reported and part of the interventions of the second to have helped 1,200 ex-combatants find country programme. The programme response of short-term employment and 485 ex-combat- UNDP is described in the following sections. ants find permanent employment.34 UNDP also introduced interventions that involved self-financing and contributions from the 3.1 First country programme local government to sustain the operations of (1999-2000) rehabilitated schools, health centres, hospitals, The first country programme comprised and water and irrigation systems. District three broad areas of intervention focusing on: Development Advisory Committees and governance; rehabilitation, reconstruction and tender committees were formed for programme development; and the sustainable management of implementation and ensuring transparency in natural resources. During the programme period, recovery and rehabilitation activities. UNDP along with the World Bank participated in carrying out a Living Standards Survey, which Total resources for the period 1995 to 2000 established for the first time a national poverty (which includes the first country programme profile for Tajikistan and served as the basis for a period) was approximately USD 23 million, of poverty assessment and the subsequent formula- which core funds were approximately 10 million. tion of the PRS. UNDP started the NHDR series Approximately 80 percent of the core funds on political, social and economic dimensions of (USD 8.3 million) were spent on reconstruc- sustainable human development. Support was tion, rehabilitation and RRDP in the Shaartuz, provided to the newly elected Parliament of Kulyab and Gharm regions, which were most affected during the civil war.

34 UNDP Country Programme for Tajikistan, 2001-2003.

CHAPTER 3. UNDP IN TAJIKISTAN 17 3.2 Second country areas for capacity building and coordination to programme (2001-2004)35 strengthen disaster prevention and mitigation. UNDP supported the government in establishing The reconstruction and development assistance the Tajikistan Mine Action Cell in mid 2003 and 36 in the second country programme was provided guidance to meet government obliga- implemented within the broad framework tions under the Ottawa Convention. As part of of poverty reduction. The humanitarian and the five-year mine action plan, the Tajikistan peacebuilding projects during the first country Mine Action Cell has set up a central mines programme provided the ground work for database, developed standards, established priori- long-term development interventions during the ties for minefield survey and clearance, provided second country programme. The focus of the mine risk education and victim assistance, programme was on governance and capacity and commenced clearing mines in mid 2004. building, rehabilitation, reconstruction and UNDP supported government preparation of development, and environmental protection and environmental reports. sustainable natural resources management. The total programme delivery for the period 2001 to 2004 was USD 38 million, which included USD 3.3 UNDAF (2005-2009) 22 million in non-project assistance from Japan. Based on the Common Country Assessment UNDP supported the government in adopting carried out in 2004, the Unied Nations and mainstreaming the MDGs into its develop- Development Assistance Framework (UNDAF) ment strategy. During the programme period, for 2005 to 2009 identified four priority areas: UNDP supported the government in establishing reversing declines, overcoming mountains, a Legal Education Centre to enhance rule of law transforming livelihoods, and redistributing and an independent judiciary. Further support responsibilities. Eight outcomes were identi- was provided to the Presidential Working Group fied in these broad programme areas. The for drafting new legislation for local self-govern- thematic area of ‘reversing declines’ was aimed at ment institutions in Tajikistan. UNDP initiated addressing issues related to the complex transi- the Working Group on Anti-Corruption to tion in the social sector and social protection. promote discussion among donors, informa- In the area of ‘overcoming mountains’, the UN tion sharing, coordination and identification programme focused on reducing vulnerability of of entry points. Through RRDP, the activities the population to natural disasters. The activities of the earlier programme were carried forward, in ‘transforming livelihoods’ focused on liveli- and UNDP supported post-conflict humani- hoods creation and employment generation in tarian and development needs. According to rural areas. The thematic area of ‘redistributing the programme document more than 4,000 responsibilities’ focused on governance issues. ex-combatants were reintegrated into their home communities, more than one million inhabitants 3.4 Third country programme were provided with access to safe drinking water, (2005-2009) and job opportunities were created for more than 40,000 people.37 The third and ongoing country programme for the period 2005 to 2009 is in alignment with the UNDP was the principal recipient of Tajikistan’s UNDAF for the same period. The programme first grant from the GFATM. UNDP initiated priorities are broadly classified under the same disaster management activities during the four thematic areas defined in the UNDAF. The second country programme, which identified key programmes and projects under these thematic

35 The country programme was for 2001-2003 and extended to 2004. 36 UNDP Country Programme for Tajikistan, 2001-2004. 37 UNDP Country Programme for Tajikistan, 2005-2009.

18 CHAPTER 3. UNDP IN TAJIKISTAN areas are aimed at: supporting the MDGs, poverty promoting the Community Linked Development alleviation, and governance initiatives (national approach to scale it up across different regions. and local governance, support to PRS, strength- While the UNDP goal is to cover at least half of ening statistics, and mine action); strengthening the country’s Jamoats with this approach, the joint health systems; and reducing vulnerability to goal with other partners will be to cover all 404 natural disasters. Jamoats in Tajikistan by 2009.

Transforming livelihoods focuses on increasing Other interventions under this thematic area agricultural productivity, food security and include support to anti-corruption efforts and to economic opportunities, especially for women and develop a national anti-corruption strategy, and vulnerable groups. The emphasis is on poverty enhancing government capacity for coordination alleviation, and the outcomes focus on better of development activities. Initiatives for intensi- access to rural microfinance, livelihood opportu- fied advocacy and campaigning for the MDGs, nities (through enhanced capacities for local greater understanding and ownership of the entrepreneurship), and infrastructure (through MDGs, and enhanced government capacities for community-based revolving funds). The projects MDG monitoring are also planned. and practices are intended to inform national policy-making and strengthen local government. Reversing decline seeks to strengthen national capacity to prevent and reduce infectious diseases, The third country programme emphasizes such as HIV/AIDS, malaria and TB; provide improving water infrastructure in rural areas and assistance for mine action; and reduce vulner- includes projects on safe drinking water, irriga- ability to mine-related hazards. UNDP is the tion and sanitation facilities. UNDP plans to principal recipient of GFATM, which includes support the government in developing a compre- interventions in the area of HIV/AIDS, malaria hensive water management policy and promoting and TB, aimed at strengthening government better understanding of cross-boundary water capacities for better public health systems to management in Central Asia. combat infectious diseases. The HIV/AIDS activities under the GFATM are intended to Redistributing responsibilities is aimed at be a collaborative effort with the Joint UN increasing responsiveness and accountability of Programme on AIDS (UNAIDS) and members decision-making structures, including the justice of the UN Thematic Group on HIV/AIDS. In system. The focus has been on local governance, the area of malaria and TB, joint activities with aimed at improving links between local govern- WHO are envisaged. Joint UN activities are ment, civil society and the private sector. Under planned in the area of advocacy and national this thematic area, UNDP intends to assist in campaigns; civil society mobilization; and a UN building the capacity of local government for inter-agency unit to support national coordination eventual decentralized budget management. It capacity (comprising UNICEF, United Nations is also proposed that the capacities of the Jamoat Population Fund, UNAIDS, United Nations level government will be built with UNDP High Commissioner for Refugees, International assistance, within the scope of the new law on Organization for Migration, United Nations local governments that provides for the election Office on Drugs and Crime, World Food of local officials. Programme and WHO). Support to mine action is to be continued to further national capacity to UNDP plans to introduce the practice of plan, coordinate and implement a comprehensive ‘Community Linked Development’ in infrastruc- mine-action programme by the Tajikistan Mine ture and local development. This practice intends Action Cell. to further local government capacity by forming Resource and Advocacy Centres that network Overcoming mountains focuses on sustainability civil society at the sub-district and foster the and management of natural resources and efforts emergence of the local private sector. UNDP plans to decrease vulnerability to natural disasters. to network with other development agencies in The projects under this thematic area are aimed

CHAPTER 3. UNDP IN TAJIKISTAN 19 at improving national capacities for disaster 3.6 Source and application preparedness and mitigation and to efficiently of funds manage environment, energy and hydrological resources. UNDP, the United Nations Office There has been considerable increase in the for the Coordination of Humanitarian Affairs mobilization of non-core funds since 2005 and (OCHA) and the United Nations International the country programme budget has tripled in Strategy for Disaster Reduction intend to support four years (see Figure 1). Core funds (Figure national efforts in disaster mitigation. Support 2) are allocated on the basis of gross national will also be provided to environment and climate income per capita and the size of the population. change policy development and furthering They have been approximately USD 3 million to practices in the area of renewable energy. USD 5 million during the years 2004 to 2008. Core funds were used to strengthen national capacities to enhance the MDGs and support 3.5 Third country human development policy and plans. programme outcomes The third country programme comprises Figure 1. Core and non-core funds seven outcomes: (USD thousands)

„„ Outcome 1: Rural communities, including 35,000 the most marginalized, have greater access to 30,000 rural finance, infrastructure and employment 25,000 „„ Outcome 2: Rural communities, including 20,000 the most marginalized, have greater 15,000 governance 10,000 Core funds 5,000 Non-core „„ Outcome 3: Public sector transparency, funds accountability, conduct and participation at 0 local and national levels strengthened 2004 2006 2008 „„ Outcome 4: The government successfully adopts more pro-poor policies, laws and expenditures and receives greater support for this from the international community Figure 2. TRAC funds (USD thousands) „„ Outcome 5: Increased public understanding 6,000 of HIV/AIDS issues 5,000 „„ Outcome 6: Create a sustainable national institution to plan, coordinate and implement 4,000 TRAC comprehensive mine action 3,000 TRAC 3 - „„ Outcome 7: Natural resources sustainability 2,000 Response managed and fewer persons killed, injured 1,000 TRAC 3 Recovery made homeless, or affected by disasters 0

2004 2005 2006 2007 2008

20 CHAPTER 3. UNDP IN TAJIKISTAN UNDP has funding partnerships with several balance in 2009, which is expected to strengthen international agencies. Since 2005, the country financial sustainability for programme activities. office has mobilized more than USD 70 million from 26 sources including Tajikistan private- The distribution of funds across programme sector organizations (see Annex 3). GFATM, areas indicates that, poverty alleviation and the European Union and the Government of the infrastructure development was spread across United Kingdom-Department for International two thematic areas of the Country Cooperation Development were the main sources of finances Framework (CCF)—transferring livelihoods for projects implemented by UNDP. Together, and redistributing responsibilities—receiving a they accounted for approximately 80 percent large component of the programme funding (see of total cost-shared resources mobilized during Figure 3). This was followed by the GFATM the period 2005 to 2008. The funds have been grants for strengthening health institutions used to support projects on community develop- to combat HIV/AIDS, malaria and TB, and ment and prevention of infectious diseases, allocations for mine action under the thematic particularly TB, malaria and HIV/AIDS. area of reversing decline. Disaster management and sustainable environment under the thematic A total of USD 27 million was raised during 2007, area of overcoming mountains comprised a small which is a 21 percent increase in annual resource component of the total funds. mobilization compared to 2006, and a 43 percent increase compared to 2005 (see Figure 1). The level of administrative expenditure in the The increased fund-raising and delivery allowed country office (as a ratio of total expenditure) UNDP to increase the extra budget reserve to decreased significantly during the period of 2004 USD 1,623,000 by the end of 2007 and create to 2007 from 14.3 percent to 6 percent. This is a strong base for programming. With many significantly lower than the intended target of donors closing their programmes in Tajikistan, 10 percent.38 The online client survey indicates there has been a decline in external funding in an average of 66.5 percent satisfaction with 2008 compared to previous years. The country services provided by the country office. office estimates a USD 1.9 million extra budget

Figure 3. Allocation of funds across programme areas

22,000 20,000 18,000 16,000 $4,899 $2,437 14,000 $1,820 $772 $1,828 $1,435 12,000 $2,186 $2,386 10,000 $6,285 8,000 $995 6,000 $691 $7,560 $9,876 $4,157 4,000 $3,709 2,000 $1,891 $2,554 $2,189 0 2004 2005 2006 2007

Not_Entered Achieving_MDGs_and_redcng_pvty Fostering_Democratic_governanc Energy_and_env_for_sustnbl_dev Crisis_Prevent_n_and_Recovery Responding_to_HIV_AIDS

38 Tajikistan 2007 Balanced Scorecard Report, Atlas.

CHAPTER 3. UNDP IN TAJIKISTAN 21 3.7 Programme were transferred to national implementation delivery modalities modality in 2007. Subject to the positive assess- ment of the capacities of the national counterpart, More than 95 percent of UNDP projects are the country office is planning to transfer the executed directly by UNDP staff. A few projects, Disaster Risk Management Project to national namely, MDG, Aid Coordination, Human implementation modality in 2009. Considering Rights, Second National Communication, the low administrative and financial capacities Tajikistan Mine Action Cell, Gissar Biodiversity of the government, the national implementation Project, Agro Biodiversity, NHDR, Microfinance modality is still considered as a mid-term strategy Capacity Building involving small grants to be implemented in three to four years.

22 CHAPTER 3. UNDP IN TAJIKISTAN Chapter 4 Contribution to national development results

The aim of UNDP assistance in Tajikistan has on the UNDP programme in Tajikistan since been to provide quality policy and programme 1996, the two country programmes worked support in alleviating poverty, share best practices towards: strengthening the capacity of the govern- and enhance government capacities to address ment; providing support to institutionalizing the development challenges. The PRS-I, PRS-II and MDGs; reducing vulnerability to natural disasters NDS provide a strong framework for UNDP to and mines; and enhancing the performance of design development support for the Government government institutions. Specific projects were of Tajikistan. During the period 2001 to 2008, piloted in the area of poverty alleviation and UNDP implemented two country programmes local governance. that comprised four broad areas: poverty allevia- tion (through microfinance, business support The programme emphasis corresponds to the services, and development of public infrastruc- development needs perceived by civil society and ture), support to MDGs and strengthening national and international development agencies. of local government; strengthening national The poverty alleviation and infrastructure projects governance; enhancing the capacities of health were relevant from the point of local needs, institutions to minimize the risk of HIV/AIDS, and UNDP contribution to local infrastruc- malaria and TB; and reducing vulnerability to ture development was widely acknowledged by natural disasters. The analysis of contribution to development stakeholders. The government was national development results is structured along generally appreciative of UNDP poverty allevia- these broad programme areas within the context tion and local infrastructure projects, and efforts of national priorities and strategies. to support the government in disaster manage- ment initiatives, statistics management and preparing the NHDR. UNDP is considered a 4.1 Overall assessment of trusted and valued partner for its neutral position country programme and flexibility in support of the government. UNDP interventions during the assessment While not attributing any particular area of period were found to be in alignment with the expertise to UNDP, the government considered priorities identified in the PRS-I, PRS-II and UNDP good at organizing technical expertise. NDS. The second CCF had a large component aimed at recovery and stabilizing livelihood at the UNDP support to strengthening the capacities household and community level. The third CCF of the government institutions in the area of shifted the focus to development issues, taking mine action and disaster risk reduction has been forward the momentum generated at the local significant. In the health sector, the govern- level through community-based interventions. ment was a more reluctant partner as there was considerable resentment that UNDP had full The government was the principal partner of control over GFATM. Policy support has been UNDP, although there were also partnerships more dispersed, exceptions being in the area and close engagement with civil society and of MDGs, local government legislation and multilateral and bilateral organizations. Building disaster management.

CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS 23 A widely shared view, particularly among the corruption was high. However, the anti-corrup- international agencies, was that UNDP could tion initiatives were discontinued in 2006. The play a more proactive role in enhancing policy momentum created by the study was not used to and reforms. The programme method of prepare an action plan for greater transparency in UNDP was seen as less conducive for furthering government institutions and specific measures to national capacities. combat large scale corruption.

UNDP interventions in the area of anti-corruption 4.2 Anti-corruption initiatives were not sufficiently long enough to have any Corruption has been a major development discernable results. According to Transparency challenge in Tajikistan. Lack of administrative International’s perception on corruption for reforms and poor transparency in public finance 2008, Tajikistan ranks 151 out of 180 countries. management has severely constrained develop- Considering the complexity of the corruption ment and an enabling environment for business. issue, sustained interventions are needed to Tajikistan has an Anti-corruption Law and enhance transparency and accountability in public Regulation on Audit. Through a Presidential institutions. Efforts to enhance transparency Decree in 2004, an Anti-Corruption Department in public functioning did not receive adequate was set up in the Prosecutor General’s Office. In attention in the ongoing programme. Lack of 2007 the Agency for State Financial Control funding was one of the reasons for UNDP not and Combating Corruption was established continuing support to anti-corruption interven- in Tajikistan. The Agency is responsible tions. Future UNDP anti-corruption initiatives for detecting, investigating and prosecuting should include support to transparency and (supporting public prosecution in court) corrup- accountability mechanisms. Lessons from the tion offences. UNDP support to government previous programme will be useful in providing anti-corruption efforts has been significant, as it strategic direction to UNDP interventions in this is one of the few agencies supporting anti-corrup- area. To overcome funding constraints core funds tion efforts. UNDP supported the government should be allocated for anti-corruption activities. working group in developing the National Anti-Corruption Strategy and the Prosecutor 4.3 Poverty alleviation and General’s Office in conducting seminars on rural development corruption for judges, prosecutors, police, and tax and customs officers. Training programmes UNDP Tajikistan used a multi-sector approach were organized by UNDP on rights of the to address poverty and rural development. citizens, mechanisms to prevent corruption and Interventions in the area of poverty alleviation, journalistic investigations of corruption offences. local infrastructure development and strength- ening local governance were implemented as UNDP financed a study on incidence and Communities Programme (CP) during the dimensions of government corruption and ongoing country programme and as RRDP in interventions required to further anti-corruption the previous country programme.40 Microfinance reforms.39 The study carried out a nationwide and rehabilitation and construction of the local survey on perception of corruption in public infrastructure were main components of the office and looked at the financial accountability UNDP programme during 2001 to 2008. It of the Parliament. The findings were significant encompassed two programme areas outlined in in drawing attention to areas of governance where the UNDAF and ongoing country programme:

39 The study was carried out by the Centre for Strategic Research, located in the Office of the President. 40 The RRDP was implemented in Kulyab, Shartuz, Gharm and Ainy. The CP was implemented in five regions, with Area Offices in Kulyab, Shartuz, Gharm, Ainy and Khujand.

24 CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS transforming livelihoods and redistributing where Jamoat Development Centres (JDCs) responsibilities. The CP covers three UNDP and District Development Centres (DDCs) service lines: decentralization, local governance, were formed to advise on rehabilitation and and urban rural development; local poverty reconstruction programmes. Registered as initiatives; and effective water governance. The NGOs, the JRCs were formed in 110 Jamoats projects under CP were implemented at the and comprised representatives of local govern- district and sub-district. There were regional ment at the sub-district level, community and variations in investing funds in infrastructure and CSOs. The JRCs functioned as intermediary microfinance activities.41 Considering the weak organizations having operational links with the water infrastructure in the rural areas, emphasis sub-district, and managed the microfinance was given to building drinking water and irriga- revolving fund until 2007. The JRCs played a key tion infrastructure. More recent initiatives in role in the implementation of local infrastruc- CP included addressing governance issues at the ture projects of UNDP. Among other tasks, the district and sub-district level. JRCs mobilized the community to participate in identifying and prioritizing infrastructure needs, The financial contribution of UNDP was high organizing tenders, and monitoring implemen- during the RRDP period and in the early phase tation of the infrastructure projects. The JRCs of CP. In the past four years, the share of donor attracted funds for infrastucture development funding increased from approximately 40 percent and several agencies channeled funds through to almost 78 percent. Local area offices of JRCs. A few JRCs organized the community UNDP have been a source of strength in terms of to maintain infrastructure projects. While local presence and most donors found it useful to some JRCs provided business advisory services, implement programmes through UNDP. agricultural extension, and health advocacy, these activities were in the preliminary stage. The various components of the RRDP and CP were relevant in the rural areas of Tajikistan, UNDP made a considerable investment in particularly in the context of a post civil war developing JRCs—providing funds for basic humanitarian situation. Considering the need for office equipment, and training members microfinance at the household level, poor capaci- to improve their skills in project manage- ties at the community level and lack of funding ment and community mobilization. The for rehabilitation of public infrastructure, UNDP functioning of JRCs was not uniform across initiatives were largely perceived as significant. regions, although they fulfilled the essential However, interventions under RRDP and CP function of mobilizing the community for were extremely project oriented with limited participation in development projects and synergy among programme components. One supporting their implementation. Considering exception was the more holistic approach followed the range of activities UNDP implemented in Zerafshan, where a programme was developed at the sub-district level, the JRCs were an with various dimensions of local development, important platform to mobilize different rural poverty alleviation and local governance. stakeholders and initiate participatory local planning. This is significant in the context of 4.3.1 Community linked development Tajikistan where participatory governance was and JRCs something that local governments and people were not accustomed to. The JRCs were also UNDP supported formation of Jamoat Resource accepted by different levels of local government Centres (JRCs) at the sub-district (Jamoat) level. and among the CSOs and the community. In The JRCs are based on the earlier programme the past year, with the transfer of microfinance

41 The area offices of Kulyab and Shartuz in the south and Khujand in the north focused on cotton farmers.

CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS 25 functions to regional microfinance institutions, participation of the civil society, their role and the role of JRCs is confined to supporting functions somewhat undermined the respon- project implementation. sibility of the sub-district government. Earlier evaluations also pointed out that JRCs have in There are issues that need to be resolved about many ways become parallel institutions.43 An the role of JRCs vis-à-vis the local government opportunity was lost to use JRCs to facilitate at the district and sub-district level and their the functioning of district and Jamoat adminis- sustainability as community organizations. The tration, instead of using JRCs to carry out the sub-district and district governments are weak responsibility of Jamoats. The active involvement in Tajikistan, and in many ways, the JRCs filled of JRCs in the public infrastructure activities has the capacity gaps of the local government. The contributed to abdicating of responsibility by public infrastructure funds that would normally the sub-district and district governments. While be channeled through government institutions lack of funds is one of the reasons for this, it was were channeled through JRCs. It was evident not evident if JRCs could sufficiently engage that JRCs became centres of public investment, district government in active ownership of the with local authorities abdicating their respon- infrastructure created. sibility in the implementation of infrastructure projects. The district administration and institu- Over the period, there has been an expansion of tions responsible for water infrastructure in the activities and functions of JRCs. With UNDP places the evaluation team visited did not appear starting interventions in the area of local govern- to demonstrate ownership of the infrastructure. ment, JRCs are expected to provide training and The functional relationship of JRCs and the information services. However, it is not evident if sub-district government was not clear, although JRCs are in a position to be effective in strength- the assumption was that the local govern- ening local government at the Jamoat level. There ment members were represented in the JRCs. are changes being made to local government Considering that JRCs do not have a legal space legislation giving powers to the Jamoats to access in the local government structure, handling of private investment for local development activi- infrastructure funds by JRCs makes account- ties. Changes were also made for a democratic ability uncertain. The JRCs are encouraged to election of the Jamoat head. In the Jamoats access private funding for infrastructure activi- visited during the ADR, it was not evident that ties and accountability of these processes are not UNDP efforts have enhanced the capacities of fully established. the sub-district government. The DDCs did not receive much attention during the programme Support to JRCs was relevant in a humanitarian period. Although the district government is an context where there was a need for speedy important level of government, having the respon- implementation of local development projects sibility of service delivery, there were limited and to enable participation of the community efforts to strengthen DDCs, which are envisaged in reconstruction process. However, the JRC as advisory bodies. The local governance projects process was limited by being ‘delivery oriented’42 started more recently do envisage working with rather than adopting a long-term perspective to the district and sub-district governments directly. strengthen institutions of local government. It While JRCs becoming micro fund organiza- is debatable whether creation of JRCs was self tions is imminent, UNDP may have to start the serving for the UNDP programme implemen- process all over to strengthen local governments. tation. While the JRCs had an important role The participatory process piloted through JRCs in ensuring responsiveness to local needs and remains to be institutionalized.

42 The evaluation of CP in 2007. 43 SIDA, ‘Evaluation of SIDA Support to Local Governance in Tajikistan’, 2006.

26 CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS It is time UNDP defines its civil society strategy USD 3.5 million which comprised 25 percent and broadens support beyond the JRCs in of the microfinance operations in Tajikistan. strengthening the larger civil society process in The programme has provided micro loans to Tajikistan. Not all NGOs and CSOs participated approximately 100,000 persons (1 percent of in the activities of JRCs. There were percep- the population) since the beginning of the tions of preferential inclusion of some NGOs programme in 1996. The number of active and CSOs and there was limited rotation of clients in 2008 was 16,135. While there were JRC leadership. UNDP has to structure its regional variations in the participation of support to create an enabling environment for women accessing microfinance, an average of CSOs and NGOs. There is scope for UNDP 31 percent of the beneficiaries were women. to provide intellectual direction to the legisla- This is significant in the context of Tajikistan tion on CSOs, which restricts the functioning of where women have been passive in participa- CSOs and NGOs. The law also has implications tion in public space. Agriculture and livestock for the JRCs created by UNDP. While JRCs received most loans, followed by small and need to revisit their legal framework, choices medium enterprises and services. The average are already made by most JRCs about future loan size ranged from USD 155 to USD 442. activities. Approximately 90 JRCs promoted The recovery rates were high, further increasing micro fund organizations with specific interests the microfinance reach. in microfinance. It was not evident whether JRCs will continue to play the advocacy and The microfinance initiatives are important in community mobilization role envisaged at the terms of the critical need for micro-credit in time of their formation. rural households, particularly in the post-conflict and transition phase. At the project implemen- 4.3.2 Microfinance44 tation level, there was not sufficient evidence to establish whether microfinance provided Approximately 10 percent of the programme by UNDP produced expected results. It was portfolio during 2001 to 2008—was committed not evident whether the UNDP microfinance to microfinance initiatives in five regions of projects contributed to enhancing livelihoods Tajikistan: Kulyab, Shartuz, Gharm, Ainy and at the household level or in improving access Khujand. The intended result was to enhance of rural poor to credit. The micro loans were livelihoods opportunities at the household level largely at subsistence level.45 Because households and reduce poverty at the community level. The accessed multiple credit services, sufficient microfinance services were offered to individ- data was not available to link UNDP poverty uals with low income, who could not access alleviation outcomes. The reporting systems of bank loans due to high transaction costs and the microfinance programme were not strong lack of traditional collaterals. The JDCs and enough to establish the linkages between later JRCs, were formed to manage microfi- accessing micro loans and livelihood condition nance projects. During the assessment period, and economic opportunities of the beneficia- 110 JRCs managed microfinance revolving funds ries. While monitoring systems track the loan and microfinance services until 2007. portfolio and repayment schedules, they do not provide information on who was being The UNDP microfinance portfolio was large served, how the loans were used, and how in terms of size and geographical coverage. they improved the economic situation of the The UNDP programme has a loan portfolio of household or livelihood opportunities. The data

44 The ADR could not assess microfinance activities during the second country programme mainly due to the lack data and field presence. 45 Individual loans from 500 to 1,500 Somoni.

CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS 27 collected at the district level shows a decrease in microfinance institutions to access deposits for the poverty levels, but this was mainly attributed microfinance lending. The scale of operations to increases in remittances. of microfinance institutions created by UNDP is not yet adequate to access loan funds from The country office carried out three evaluations commercial banks. With increasing competi- and the findings substantiate the observations of tion in the area of microfinance, the outcome of the ADR. While the relevance of microfinance UNDP measures to sustain regional institutions interventions during conflict and immediately remains uncertain, although UNDP provided after cannot be denied, there have been questions additional funding to extend the credit portfolio whether microfinance projects are relevant during of the microfinance institutions. the development phase when UNDP goals are aimed at providing support to strategic national The JRCs joined together to form the Micro development planning and policy.46 Loan Fund Institutions.48 Approximately 105 JRCs formed 6 micro loan institutions At the national level, the government has to continue to manage the microfinance acknowledged the importance of microfi- revolving fund. It is not evident that the JRCs nance in poverty reduction. Subsequent to the have adequate skills and management capaci- Law on Microfinance Institutions, there were ties to provide services to Micro Loan Fund changes in the institutional system of delivering Institutions. At the time of the ADR, UNDP microfinance. The 2004 Law on Microfinance was providing training to enhance manage- Institutions, which was operationalised in 2007, ment and administration capacities. However, specifies institutional systems required for the financial sustainability of Micro Loan Fund microfinance transactions and provides legal Institutions remains uncertain. status to microfinance institutions. The law had significant implications for UNDP micro credit There were lost opportunities in furthering activities. The requirement that microfinance microfinance approach, practices and policy. institutions obtain a license from the National With an extensive programme on microfi- Bank of Tajikistan necessitated changes in nance, UNDP had the opportunity to establish programme structure and operations. In compli- vertical linkages and to initiate debate on ance with the requirement that microfinance microfinance issues that constrain rural finance. institutions be registered, six regional microfi- Opportunity was lost in assisting the govern- nance institutions were formed by UNDP to ment in furthering microfinance law and manage microfinance loans.47 Efforts were providing directions for a progressive microfi- made to strengthen the administrative and nance policy that allows different institutional management capacity of the regional microfi- structures. While the support of UNDP to the nance institutions. However, while the regional Association of Microfinance Organizations is microfinance institutions are operationally significant, UNDP did not use its microfinance sustainable, financial sustainability remains an programme to strengthen the capacity of the issue. More funding is required for regionaliza- government to regulate microfinance institu- tion and sustaining operations. tions. Considering credit needs in agriculture and in the cotton sector specifically, a more While the Law on Microfinance Institutions focused lending strategy would have produced is not yet fully operational, it empowers better results. This also would have given

46 De Martino L and M Makhkamova, 2007. 47 The regional microfinance institutions were established in Soughd, Zeravshan, Kurgan-Tube, Kulyab and two in Rasht Valley. 48 The Micro Loan Fund Institutions were formed in Sughd, Kurgan-Tube, Kujhand, Rasht and Kulab.

28 CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS UNDP an opportunity to engage in issues promoted one third representation of women, pertaining to operationalization of land reforms there was no adequate representation of women and regulations on cotton farming. on the JRC Board.

Having confined itself to traditional 4.3.3 Public infrastructure micro-credit, UNDP did not design and in rural areas test different microfinance products such as UNDP sees local development initiatives as a financial products, saving services and those means to enhance economic and human develop- that reduce livelihood risk at the household ment. During the two programme periods, a major level.49 UNDP has recently started projects component of the UNDP rural development aimed at attracting and transferring remittances initiatives (approximately 140 projects) supported into community development activities. The reconstruction and rehabilitation of public UNDP strategy in furthering these activities infrastructure destroyed or damaged during is not clear and it is too early for discern- conflict. While this was critical to bring normalcy able results from the remittances project. in the post-conflict period, the implementation Taking into consideration the scaling down of of various infrastructure projects also provided microfinance projects, UNDP may not be able short-term employment. The third country to adopt new activities in an effective way to programme, while carrying forward infrastruc- ensure sustainable results. ture development activities, further emphasized support to water infrastructure. Several initia- Addressing gender related concerns was one tives were supported by UNDP to improve access of the weak areas of the UNDP programme. to clean drinking water, irrigation, and promote While efforts were occasionally made to address participatory water management practices. There women’s issues and gender inequality during the have been more than 80 water infrastructure programme period, these were approached more projects during the programme period. as ‘add on’ activities rather than integrated into the programme process. The microfinance and The ADR did not have information on the micro-enterprise initiatives were more oriented number of persons who were involved in toward credit profile and risk involved rather short-term employment through infrastructure than reaching out to vulnerable groups. Across projects during the two programme periods. the regions, 30 percent of the recipients of Based on earlier evaluations, indications are the microfinance programme were women. that projects were beneficial in providing This however is skewed in a context were short-term employment.50 women comprise a substantial proportion of the economically active population in rural areas. The infrastructure projects were managed by The microfinance programmes did not have JDCs and later JRCs, and the implementa- products that addressed gender related issues tion of the projects were outsourced to private pertaining to education, employment opportu- companies through a transparent tender process. nities, political participation, violence against The community was involved in identifying and women, and empowerment of women, which is prioritizing infrastructure projects. The process important in the context of Tajikistan. UNDP for tendering and bidding for the infrastructure did not use microfinance to create a space projects introduced practices of transparency and for articulating concerns specific to women accountability into local administrations. The and unequal gender relations. Although UNDP infrastructure grants were on a matching funds

49 This is also pointed out in the 2007 evaluation of CP. 50 Brooks, 2006.

CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS 29 basis, where on average, the community had sustainability of irrigation systems in most areas to mobilize 15 percent of the cost. The project and increased community understanding about documents, however, indicate that community using water resources efficiently. The Law on contribution has not always been at the desired Water User Associations endorses the role of levels. Results were evident in drinking water the irrigation Water User Associations. While interventions. An earlier evaluation notes that there is a greater understanding of the respon- the State Epidemiological Station, which collects sibility of local authority, water users, and those data on waterborne diseases, indicated a decrease who manage water points, the accountability of in the number of waterborne diseases in areas local government and resources required is yet where drinking water points were provided.51 to be defined. The sustainability of drinking water infrastructure was more challenging as Water infrastructure is a major problem in rural there was less active involvement of Water User Tajikistan. Approximately 90 percent of the Associations. It was also evident that a one-time irrigation infrastructure was built during the contribution by the community may not always Soviet period and was destroyed or damaged guarantee regular maintenance. More efforts during the war. More than 60 percent of the rural are required to ensure sustainability of the population does not have access to safe drinking public infrastructure. water. Lack of finances for rural infrastructure development and maintenance further contrib- Interviews indicated that it was easier to uted to the poor condition of water infrastructure. implement and maintain smaller infrastruc- UNDP is one of the key players in reconstructing ture projects. Larger projects had difficulties and building rural water systems52 and its contri- raising resources and defining ownership of bution has been significant. UNDP has helped government institutions. In the case of medium enable a change in the Soviet-era mindset among and large irrigation projects, different govern- the rural community that the state provides free ment agencies had jurisdictional responsibility, public service by introducing practices where making it difficult to carry out these projects the community paid for the water services. and ensure asset ownership. The account- The accountability of maintaining water services ability of the assets continues to be an issue. assumes importance with collective farms disinte- While the implementation of the projects may grating into individual farms. The Water User be at the Jamoat, the responsibility of assets Associations formed with the support of UNDP often rests with different line ministries at the brought focus to the issues of accountability and district. Sufficient linkages were not made with maintaining the water infrastructure. the district administration for maintaining the infrastructure. UNDP piloted projects to draw Sustainability of irrigation infrastructures investment from remittances for local develop- created through various projects was better ment. While these initiatives have the potential compared to drinking water infrastructure. to attract investment, as was seen in southern Lack of a clear legal framework and minimal Tajikistan, it is too early to say that remittances resources at the Jamoat and district level have can be mobilized on the scale that is required for contributed to poor infrastructure mainte- local public infrastructure. nance and reliance on community contribution. The Water User Associations have ensured

51 De Martino L and M Makhkamova, ‘Assessing UNDP Communities Programme’, External Outcome Evaluation Report for UNDP Tajikistan, 2007. 52 2005 Country Programme Action Plan. The latter mentions that “the overall objectives of water access measures are to improve the living conditions of rural populations by supplying clean water and safe sanitation practices, thereby decreasing the occurrence of waterborne diseases, with a high emphasis on sustainability mechanisms.”

30 CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS 4.3.4 Strengthening local the district level, can be a valuable source for governance monitoring PRS and MDG progress. More The district level government in Tajikistan recent efforts in developing statistics include a has the responsibility to provide services such partnership with the State Statistics Committee as water, power, waste management, land to develop poverty indicators and a database. management and security. The district govern- ments are an interface between the national and UNDP efforts to strengthen local governments local governments and are crucial for furthering both at the district and sub-district levels have MDG efforts. Recognizing the limitations of not been optimal. During the second and third focusing only at the sub-district level, in the country programme, emphasis was on JRCs, past two years UNDP has initiated projects to which shifted in the past two years to DDCs. strengthen local government at the district level. DDCs are not fully functional and do not have According to project documents, the rationale for the resources necessary to play a role similar to the shift from sub-district to district level local JRCs. The same can be said about the district government has been to enhance the capacity of development plans, which are in early stages the district in service delivery. of conceptualization. More efforts are required for their operationalization. In these initiatives, UNDP interventions were primarily in three UNDP has taken a civil society approach rather areas: first, projects to strengthen district level than a local government centred approach. information on development trends and citizens’ needs, intended to improve planning and the UNDP developed a local government strategy for effective use of resources; second, develop partner- the period 2006 to 2007 that specifies outcomes ship with CSOs to strengthen local government, for strengthening local governments. Considering which has been a consistent approach followed the extent of institutional strengthening required by UNDP in the second and third country at the district level, a two-year period was too short programme; and third, efforts to promote private to produce realistic results. The various initiatives investment in local development, since one of under the local governance portfolio, such as the main concerns in local development is the developing a district-level database, enhancing constraint of funds. citizens’ voices, district development planning and attracting private funds had varied levels UNDP supported the Strategic Resource Centre of importance in contributing to development (SRC) in developing an updated database results. It was not evident how these activities on district level information and periodically related to each other in strengthening institu- analysing the trends. SRC carried out a baseline tions at the district level. For sustainable results, survey on poverty at the household level at piloted practices should be institutionalized and the sub-district level and for periodic collec- linked to macro-processes and reforms. tion and analysis of district-level information. District officials and NGOs were involved in Despite the UNDP presence at the local level and collecting information. Support to SRC has been work with the local government on interventions important in many ways. SRC analyses develop- in health, poverty reduction, local infrastruc- ment trends at the national and district level and ture development and disaster management, informs policy decisions of President’s Office change in the functioning of the local govern- and has an important role in informing policy ment was not evident. Efforts to strengthen by analysing development trends at the national administrative capacities of the local government and district level. SRC is professionally managed were not simultaneously followed by activities to and is an important source of information for initiate changes in the institutional framework Statistics and Economic Planning Departments. giving more financial and administrative powers The poverty data collection, if continued at to carryout development work. The excessive

CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS 31 control of the local government by the central supported a joint regional project on Long government does not encourage responsive local Term Joint Capacity Building for AIDS Control governance. There is need for changes in the in Central Asia. These activities are in line legal framework for effective service delivery. with priorities identified in UNDP strategic UNDP did not adequately initiate and facilitate documents such as the 2005-2009 UNDAF53 amendments to the local government legislation. and 2005-2009 Country Programme Action Plan.54 The outcomes envisaged include support Under the present law, local governments are to strengthen national capacity to prevent and responsible for delivering public services and reduce infectious diseases, particularly HIV/ revenue collection. However revenue raising AIDS, malaria and TB. power, such as levying taxes, rests with the national government. Local governments continue to be GFATM comprises approximately 25 percent of executive structures of national administration the ODA in the health sector. GFATM assistance and are only allowed to levy a narrow range of has been used for rehabilitating and building charges on their own account. The democratic health infrastructure, implementing prevention decision-making systems are weak and the local measures, and increasing public awareness on government representatives are nominated to HIV/AIDS, malaria and TB. To carry out its the positions. There are no transparency and functions as Principal Recipient, UNDP set up accountability systems to report public expendi- a Programme Implementation Unit. During the ture. There is minimal information available first grant period in 2003, funding was provided for effective planning. The budgeting is on to support HIV/AIDS prevention. Since 2005, an annual basis, restricting long-term develop- HIV/AIDS, TB and malaria, are being supported ment planning. UNDP, with its strong local and by the GFATM programmes. While results were national presence, is well positioned to further evident in preventing malaria, it is too early local governance reforms and practices. It was to assess contribution to results in the areas of not evident that UNDP made adequate efforts HIV/AIDS and TB. towards this. 4.4.1 HIV/AIDS 4.4 REDUCING VULNERABILITY HIV/AIDS is a relatively minor problem in TO INFECTIOUS DISEASES Tajikistan, although the potential for increase is high because of the rising number of drug UNDP has been active in helping the govern- users and narcotic trafficking. The government ment strengthen health systems in combating formulated the First National Programme on infectious diseases. Since 2003, UNDP has HIV/AIDS in 1997 and established the National been the Principal Recipient of four GFATM Coordination Committee for HIV/AIDS grants for HIV/AIDS, Malaria and Tuberculosis Prevention. There have been serious constraints (TB) applied by the Government of Tajikistan. in financing health programmes and projects UNDP Tajikistan leads the UN Joint Advocacy pertaining to HIV/AIDS from the government Programme that aims to encourage acknowl- budget. The GFATM provided a boost to edgement of HIV/AIDS, mobilize civil society addressing HIV/AIDS prevention and cure. to address the HIV/AIDS problem, and increase public awareness and understanding of the risks UNDP coordinated and managed three GFATM associated with HIV/AIDS. In addition, UNDP grants related to HIV/AIDS while national health

53 ‘Moving Mountains, A United Nations Assessment of Development Challenges in Tajikistan’, UNDAF, Tajikistan, 2005-2009. 54 This document is a joint strategy of the Government of Tajikistan and UNDP.

32 CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS agencies and UN organizations implemented Treatment Protocol was approved by the the programmes.55 The first grant was aimed Ministry of Health and antiretroviral drugs have at injecting drug users, commercial sex workers been included in the essential drug list of the and young persons (age group 11 to 25 years). country. The UN HIV/AIDS team developed The second grant addressed the issues of people partnerships with both the government and the living with HIV/AIDS, supporting: HIV/ private sector. AIDS counseling; testing services for migrants, prisoners and street children; antiretroviral Service points were supported during the therapy; treatment for opportunistic infections; project period that provide counseling on HIV/ improved HIV diagnostics and monitoring; and AIDS and sexually transmitted infections to national capacity for treatment, care and support high risk groups and antiretroviral therapy for for people living with HIV/AIDS. The third people living with HIV/AIDS. However, use grant aimed at increasing the access of vulner- of the facilities has been low.58 Factors contrib- able groups, such as injection drug users, sex uting to low coverage by antiretroviral therapy workers, men who have sex with men, young include the understaffed health services and people and uniformed staff,56 to HIV prevention lack of expertise on HIV/AIDS therapy. Poor and care services. It also included measures to road conditions, lack of adequate transporta- ensure effectiveness of the national blood safety tion, social stigma, and the attitude of health system and to strengthen the areas of the health professionals in assisting individuals with HIV/ system that address HIV, sexually transmitted AIDS-related health problems posed constraints infections and TB. in using service points. While some of these issues were addressed by the UNDP Programme UNDP leads the joint advocacy effort of the Implementation Unit, more efforts are required United Nations Country Team (UNCT) on to strengthen the service points and involve HIV policies and programmes in Tajikistan. The health authorities in this process. In addition, advocacy efforts are aimed at increasing public Polymerase Chain Reaction (PCR) equipment awareness and understanding of risks related and reagents used for analysis and monitoring of to HIV/AIDS, mobilizing civil society, and antiretroviral therapy, which were supplied two introducing prevention and mitigation policies years ago, are still not operational. Additional in government strategic documents.57 The new funding has been provided by UNDP for profes- National HIV/AIDS Strategic Plan (and associ- sional training on using PCR equipment for ated Action Plan) has been prepared and focuses national specialists, for repairs of premises where on multi-sector collaboration in HIV prevention PCR is located, and for procuring new reagents. and care. National legislation related to HIV/ The equipment was not operational in the places AIDS has been amended to increase alignment the ADR team visited. with international standards. A National AIDS

55 Activities under Round 4 programme are implemented by International Organization for Migration, UNICEF, the Ministry of Labor and Social Protection, Department of Penitentiary Affairs of the Ministry of Justice, the Ministry of Health and the Republican Centre on AIDS Prevention and Control. Activities under Round 6 grant project are implemented by the Central Military Hospital of the Ministry of Defense, the Republican Centre on AIDS Prevention and Control of the Ministry of Health, Red Crescent Society of Tajikistan, the State Youth Committee, NGO ‘RAN’, NGO ‘Mehrboni’, NGO ‘Youth Legal Support Centre’, UNFPA and WHO. Local NGOs were involved in the implementation of grant activities. 56 Uniformed staff is a term intended to collectively describe the military, border control, local militias, police, etc. 57 Technical working group created under the programme. The Joint UN HIV/AIDS team provides recommendations to the HIV/AIDS Theme Group. 58 The record of the National Venereal Diseases Centre58, review of records of centres visited during field trips in Gharm and Zhartuz, and interviews conducted with relevant health authorities all evidence a low visiting rate.

CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS 33 Several GFATM interventions were carried out The activities and coverage of the population in partnership with WHO and UNICEF. In has been extensive, although the effectiveness collaboration with WHO, training was provided of these activities has been uneven. The contri- to health professionals. HIV/AIDS education bution of the various interventions to results is one of the components of the HIV/AIDS stated in the country programme is yet to be programme. UNICEF supported the prepara- fully realized.63 While it is too early to assess tion of a manual on Information, Education, results for most of the interventions, one of the Communication materials for schoolchildren and issues is how the GFATM grant was used to a series of training sessions has been prepared for address issues related to health governance in the school teachers. Tajikistan. While the grant efforts were largely aimed at achieving outputs, larger issues that There have been interventions to increase the are crucial to sustaining outcomes—such as access of vulnerable groups (such as injection strengthening qualified staff, ensuring that there drug users, sex workers, men who have sex with are adequate numbers of health professionals, men, young people and uniformed staff) to and effective health administration—are not HIV prevention and care services, expand and given adequate attention. strengthen voluntary counseling and testing, and to provide post-test care and support. 4.4.2 Malaria This includes measures to ensure effectiveness of the national blood safety system and to Programme implementation of the GFATM strengthen a health system that supports HIV/ grant on malaria began in 2006 and is aimed AIDS, sexually transmitted infections, TB and at preventing malaria outbreaks and related blood safety interventions. The overall number mortality. The project is implemented in line of people screened for HIV has increased, with the national strategy “to fight tropical while the number of injection drug users has diseases (malaria) in the Republic of Tajikistan decreased from 3 percent in 2005 to 1.1 percent for 2006-2010,” and aims to strengthen ongoing in 2007.59 The increase in screening was mainly activities and the health care system to control due to enforcement of legal requirements related malaria. Project interventions include efforts to to HIV testing for certain categories of the enhance access to early and reliable diagnosis, population.60 Research conducted among sex ensuring adequate anti-malaria treatment workers reveals that, for the last three years, the in malaria-affected areas, establishing a rapid percentage of women who adopt behaviors that response capability to cope with emergencies, reduce the risk of HIV transmission is at the and vector control. Research and training was same level—approximately 70 percent.61 While included as part of the grant interventions. there is increased awareness about HIV/AIDS among targeted groups and the general popula- The main activities under the Malaria Grant tion, there is a large gap in knowledge related to are implemented by the Republican Centre to prevention of infection, particularly among the Fight Tropical Diseases, Agency for Cooperation rural population.62 and Technical Development, and WHO. In

59 Presentation by Mr. Mulloabdol, Director of Khorol AIDS Centre, May 2008, Dushanbe. 60 Law on Countering HIV/AIDS, 28 December 2005, stipulated that HIV screening is “a volunteer procedure; however, foreigners who work or study in the country, as well as clinical patients planning to undergo surgery and pregnant women are required to pass the test.” These requirements are articulated through secondary legislation (official directives and letters) and are mainly driven by stigmas. 61 Presentation by Mr. Tumanov, Director of Kulyab AIDS Centre, May 2008, Dushanbe. 62 UNDP-UNAIDS, ‘Behavioral Survey on Knowledge, Attitude and Practice Towards HIV/AIDS Among Population Aged 15-49 in the Republic of Tajikistan’. 63 Outcome 5, Country Programme Action Plan for 2005-2009.

34 CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS collaboration with WHO, technical expertise was reduced from three years to two (April 2008 to provided to strengthen the Republican Centre to April 2010.)66 However, the difficult epidemio- Fight Tropical Diseases institutional capacity and logical situation in neighboring countries and the improve disease management, epidemiological limited government budget for malaria control control and vector control. Support was provided activities in Tajikistan could affect sustain- to improve laboratory services and research ability of the outcomes. The UNDP Programme programmes related to malaria. Joint activi- Implementation Unit has taken the initiative to ties with the Ministry of Defense, Committee develop the project proposal for Round 8 (2009 for State Border Protection and the Ministry of to 2015) to ensure sustainability of the results Internal Affairs are carried out as members of achieved to date as well as measures to eliminate these agencies work in areas where the risk of P.vivax malaria in Tajikistan by 2015. malaria transmission exists. UNDP enhanced cooperation among implementing partners of 4.4.3 Tuberculosis the Malaria Grant. Government experts from the Ministry of Health and the Centre for Healthy The international community has played a Life Style Promotion facilitated the preparation leading role in addressing problems related to of health education materials. One of the issues in TB in Tajikistan. In budgetary terms, 88 percent the implementation of the programme has been of the total spending for prevention of TB was procurement delays. Both UNDP and the govern- provided by international organizations, mainly ment reported delays in procurement and failures the GFATM, and funds from the govern- of suppliers to meet contractual obligations of ment comprised the remaining 12 percent. The timely delivery of goods and services.64 implementation of the GFATM Tuberculosis Grant commenced in August 2007 and aims UNDP has played a catalytic role in establishing to support government strategies stated in the cooperation in the area of malaria prevention National Tuberculosis Control Programme of with the bordering countries of Afghanistan, Tajikistan for 2003-2010. Kyrgyzstan and Uzbekistan. An agreement has been reached with the Government of Kyrgyzstan The implementing partners of UNDP include on joint activities and the provision of health the National Tuberculosis Control Centre of the treatment in border territories. Ministry of Health, World Food Programme, WHO and CARITAS Luxemburg. The For a decade, malaria was one of the programme included efforts to scale up and major development challenges in Tajikistan. The sustain universal coverage of Directly Observed GFATM grant initiatives significantly decreased Treatment, Short-course (DOTS) interventions the incidence of malaria and Tajikistan is in a within the framework of the Stop TB Strategy position to achieve its MDG commitment in this and the Global Plan to Stop TB 2006-2015. area. During the grant implementation period, Primary beneficiaries of the grant are TB patients malaria incidence has decreased significantly, and their family members, labour migrants, from 2,309 cases in 2005 to 636 cases in 2007. prisoners and HIV/TB co-infected patients. The As a result of progress in reducing morbidity and goals of the Tuberculosis Grant are to sustain mortality due to malaria (especially P.falciparum universal coverage of DOTS therapy and to cases65), the second phase of the grant has been improve the quality of DOTS interventions.

64 For example, due to delay in signing the agreement between UNDP and Agency for Cooperation and Technical Development (which required Regional Advisory Committee on Procurement approval), 3,553 insecticide-treated bed nets were not distributed. 65 81 P.falciparum malaria cases were reported in 2005. 66 Decision made by CCM and approved by GFATM.

CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS 35 There is evidence of sustained universal coverage in the programme were also made because of of DOTS therapy.67 However, it is too early to lack commitment on the part of the govern- assess results of the interventions. Strengthening ment. Efforts are underway to build on the TB control in the penitentiary system is still in its momentum created by the GFATM and the early stages. UNDP supported the government in government is developing a project proposal for establishing appropriate links between the prison Round 8 grants (2009-2015). and the civil health sectors and including prison 68 health facilities in external quality assessment 4.4.4 Performance of GFATM grant and monitoring activities. The health sector budget allocation in Tajikistan UNDP has played a leading role in advocating is 1.2 percent of GDP, which covers 16 percent a new approach for national TB control. of health sector expenditure. The remaining Accordingly, DOTS is one of the initiatives 84 percent has been covered by private that has been implemented gradually throughout payments (70 percent) and donor assistance 72 Tajikistan. Bacteriological confirmation of TB (14 percent). As mentioned, the GFATM is is accepted among national doctors and there approximately 25 percent of the ODA in the is less opposition to this method of diagnosis health sector and is critical in strengthening than in the past. Support was provided to the health infrastructure. In addition, GFATM the National Management Team of the TB has contributed to knowledge transfer to health Programme in building capacities and for disease professionals to enable treatment of infectious monitoring. However, the involvement of the diseases in a more safe and efficient manner. National Management Team is limited in policy formulation and implementation of interven- Except in malaria control, it is too early to tions.69 International standards of TB care are assess results for many of the interventions. In still not included in the National TB Policy. the area of HIV/AIDS and TB, performance of the programme has been largely effective There have been delays in the implementation from the point of the outputs achieved, with of the programme, which are attributed to a few exceptions where there were delays in procurement delays and slow down of activi- supplying equipment and medicines. The collab- ties in the country due to the winter crisis in oration with the government has been mainly 2007-2008. Poor coordination of activities of at the national level. UNDP was successful international agencies has been an issue in the in advocating for mainstreaming HIV/AIDS implementation of the TB programme and into the PRS and developed partnerships with there has been duplication of activities. UNDP international agencies and NGOs. Support had to change its earlier planned interven- has been provided to government efforts to tions because other agencies were carrying strengthen health services, counseling and care. out similar activities.70 The funds anticipated There has been progress in improving the for the multi-drug resistant TB related activi- infrastructure for dealing with TB, HIV/AIDS ties were reallocated to other areas.71 Changes and malaria, and technical capacities of health authorities through formal and on-the-job

67 TB Grant Performance Report, GFATM, August 2008. 68 External Quality Assessment, usually undertaken for sputum microscopy. 69 Report of the Consultant of the WHO Regional Office for Europe by Dr. Stefan Talevski. 70 For example, construction of multi-drug resistant projects. 71 Procurement of equipment for a multi-drug resistant department, renovation of a Children’s TB Hospital, two vehicles, and financial support of the national programme staff. 72 World Bank, ‘Republic of Tajikistan Health Sector Note’, 2005.

36 CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS training. Efforts were made to build capacities interventions, lack of joint activities narrowed at the community level to address the challenges the scope of health interventions and there was of these infectious diseases. It is too early to duplication of activities. evaluate the outcome of these interventions. Although the capacity of the government health The National Committee on HIV/AIDS agencies has improved, it is not adequate to formed in 1997 was restructured to bring address the challenges due to infectious diseases issues related to TB and malaria within its such as malaria, TB and HIV/AIDS. Existing purview. Sub-committees and commissions at budget limitations and dependence on donor the local government were established in the funds in the areas of malaria, TB and HIV/ Oblasts, regions and cities. Technical working AIDS affect the timelines and perception of groups were formed comprising sector special- roles among project implementers and the ists and experts. International organizations sustainability of activities. Participation of the and local NGOs were invited to participate in government in preventing these infectious the National Committee, which serves as the diseases is more in formulating legislations and CCM. A CCM Secretariat was established creating institutions. While there are indications in 2006 as a permanent body, although more of some sustainable activities (for example, TB efforts are needed to make it functional.73 While control/monitoring and anti-malarial activities), these are first steps, more efforts are needed to continuing, the ongoing initiatives require an operationalize the committees. increase in government budgetary spending. It was not evident that UNDP initiated measures to The management of GFATM provided an enhance health policies in Tajikistan, including opportunity for UNDP to engage in health increased budget allocations. sector reforms and enhance government coordi- nation of aid. Although the grant interventions The total control UNDP had in managing the were aligned with national priorities, UNDP grant has been a contentious issue with the did not adequately use the opportunity to government. Because the government systems proactively participate in reform processes and lacked the capacity to manage the GFATM SWAp efforts. According to the country office, grant, UNDP became the Principal Recipient. lack of additional funds for health interventions The government’s responsibility is yet to be was one of the reasons for not actively engaging fully established in the grant implementation, in SWAp. With exceptions, UNDP confined thus the onus of sustainability of the programme itself to achieving GFATM programme outputs. often falls on UNDP. Government officials While support was provided to national coordi- are also unclear about the grant implementa- nation and participation of different government tion decision-making process. There is a need bodies in the activities under GFATM grants, for effective communication with the govern- there were limited efforts to strengthen ment and a meaningful consensus regarding the overall government capacities for coordina- functioning and sustainabiliity of the interven- tion and health governance. The coordination tions. UNDP has made efforts to strengthen of aid in the health sector is weak. A large finance and management systems of national number of donors implement programmes HIV/AIDS, TB and malaria agencies. However, independently, reducing the effectiveness of some government officials think UNDP could interventions. With exceptions such as malaria do more to prepare the government to become

73 Main tasks of this Secretariat are: draft amendments to relevant legislation; coordinate the implementation of activities on prevention of infectious diseases in Tajikistan; develop and monitor the implementation of these activities; and assist in the organization of prevention, diagnostics and treatment of these infectious diseases within Tajikistan, including the allocation of financial resources.

CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS 37 the Principal Recipient. The grant period in the 4.5 Reducing vulnerability past years was not adequately used to strengthen to disasters government procurement procedures. The The impact of disasters on human and economic GFATM requested UNDP to be the Principal development in Tajikistan is largely the cumula- Recipient of the next grant as the capacities of tive effect of small to medium range disasters the government are not adequate to manage throughout the year. In the past decade, there the grant funds and operations. While the were more than 2,800 disasters.74 The years operational issues are yet to be worked out there 2000 and 2001 were exceptions in the history were indications that government is keen to be of Tajikistan, when the country was hit by the recipient of the grants. consecutive droughts affecting a large section of the population. The number of disasters Several respondents the evaluation team met reported has decreased considerably in the past pointed to issues in procurement under the two years,75 and with exceptions of the winter grant. There were perceptions about misman- crisis (which caused a humanitarian situation), agement of procurement. Concerns were also have been small-scale disasters. Since 2003, expressed about delays in procurement of goods economic damage has averaged 9 percent of and services required to support the goal and the total budget. Issues that required humani- objectives of the grants. At the time of the tarian intervention often have been development evaluation, the financial delivery was behind issues, related to management of energy, water, schedule for ongoing HIV/AIDS grants. Delays land regulation and public infrastructure. in programme implementation were attributed to the low response of suppliers for procure- The country is not in a position to recover ment, unavailability of many health products from the economic loss caused by disasters. in the local market, difficulties in transpor- However, government expenditure on disaster tation to remote areas, and the harsh winter management has been minimal as development of 2007-2008. The operational procedures of priorities took precedence. Although 8 percent of UNDP caused further delays, which led to the budget is allocated for emergency response, considerable pressure from the government for expenditure is through various ministries, which delivering outputs. UNDP attributes the delays often delays disbursement of funds. There is a to procedural requirements in setting up the perpetual humanitarian situation in Tajikistan Regional Advisory Committee on Procurement, with efforts of several donor agencies focused on as well as the sheer scale of operations. UNDP emergency response and recovery. Katlon is the Tajikistan is the first UNDP office in the most disaster prone region, followed by Regions Regional Bureau for Europe and CIS region to of Republican Subordination and Sugdh. For become involved in implementing the GFATM most households in these regions, disasters are programme on such a large scale. UNDP has to one of many risks they face and often there is get approvals from the regional office for large- limited preparedness at the household level. scale procurements. Measures should be taken to expedite procurement procedures.

74 IMAC database. 75 The total number of disasters was 111 in 2006 and 134 in 2007. The disasters were small scale and caused by wind, mudslides, rain and hail storms. However, the economic loss due to disaster was high in 2006 (104,624,600 Somanis) compared to 2007, which was 70,431,800 Somanis. Source: IMAC, Dushanbe.

38 CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS Disaster management legislation in Tajikistan a lead agency for early recovery. The disaster covers important elements of risk, mitigation risk management programme was initially and response.76 The CoES, which was the implemented by UNDP as a joint UN programme Ministry of Emergency Situation prior to 2005, under the Resident Coordinator (RC). Since is the focal agency for disaster management. 2007, it is implemented as a UNDP programme. The CoES functions under the purview of the The programme outcome in the disaster risk State Commission for Emergency Situation77 management programme is to reduce the impact and has administrative mechanisms for disaster of natural disasters on vulnerable communities management at the regional and district levels. by strengthening national capacity to prevent, There are inconsistencies in the way institu- coordinate and respond to natural disasters. It is tions for disaster management are organized and in accordance with strategic priorities set in the roles and responsibilities. Coordination between NDS of Tajikistan, 2005-2009 UNDAF,79 and different disaster management agencies and other 2005-2009 UNDP Country Programme Action ministries is evolving.78 Tajikistan is located in a Plan.80 The programme is implemented entirely high-risk seismic zone, including the entire city of by UNDP. By 2009, the government is expected Dushanbe. The disaster preparedness measures, to have the capacity to implement the disaster mechanisms for planning and implementation risk management programme on its own. at different levels of the government, are not adequate in the case of a large-scale emergency The programme has four main components: early response. REACT was established at the national recovery and reconstruction; donor coordina- and regional level within CoES to coordinate tion and contingency planning (REACT at the international donor support and for sharing of national and regional level); community-based information. Regularly updated risk assessment activities; and support to developing institutions and data related to disasters continues to be a and policy for disaster management (support to concern for contingency planning and mitiga- CoES, IMAC, Civil Defence Training Centre, tion efforts, and IMAC in CoES is intended to and preparation of a national strategy and action bridge this gap. plan). Approximately 32 projects with different timelines were implemented between 2001 and 4.5.1 Enhancing disaster management 2007. A large number of them were activities related to demonstrating early warning systems, UNDP has been engaged in humanitarian improved land and water management, renewable coordination and support in Tajikistan since energy practices, community awareness, regional 2003, first as part of the UN team and later as

76 The legislation covering disaster management include funds for mitigation of emergency situations (1993) and civil defense (1995, revised in 2004); Emergency Rescue Services and the Status of Rescuers (2004); Protection of Population and Territories Against Natural and Man-made Disasters (2004); Republic of Tajikistan Decree 400; and Establishment of the Committee for Emergency Situations and Civil Defense (1994). 77 The State Commission of Emergency Situation is chaired by the Head of State, Republic of Tajikistan. The Prime Minister is the Deputy Chairperson. 78 During emergency situation 15 state services are expected to be mobilized to provide services to the affected areas. This includes medical, sanitation, public nutrition, animal and plant protection, fuel supply, fire fighting, civil protec- tion, logistical assets, road and transportation, repairing services, utility services, energy, engineering, warning and communication, and flood and riverbank protection. 79 Outcome 4 in the UNDAF outlines states, “Natural resources sustainably managed, and fewer persons killed or affected by disasters.” 80 Outcome 4 of the Country Programme Action Plan states “Natural resources sustainably managed and fewer persons killed, injured, made homeless, or affected by disasters; Country Programme Action Plan Output 12: Improved Disaster Response and Risk Management.” In the ongoing Country Programme Action Plan, the disaster risk manage- ment programme has been implemented in two phases. The first phase of the programme was for the period of three years during 2004-2006. The ongoing second phase has commenced in the year 2007 and is for a period of three years.

CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS 39 projects and disaster response to earthquake, floods the perception of the government and NGOs on and winter crises. Other activities included donor the projects contributions to greater collabora- coordination, strengthening institutions (adviser tion among countries in the region to enhance and technical assistance) and policy support. The environment security and disaster mitiga- portfolio has been significantly increasing in the tion was collected. The discussions with the past three years with increase in donor funding national government and the local govern- for disaster management activities. UNDP works ment in Khujand do not provide sufficient in coordination with OCHA during emergency indication that there is increase in collaboration response and with the International Strategy with Kazakhstan on disaster management and for Disaster Reduction in Dushanbe on issues environmental issues. While there have been related to disaster management. UNICEF, the community and infrastructure projects as part of Food and Agriculture Organization, WHO, and the regional programme, they have been UNDP the World Food Programme work in coordina- driven and have not been integrated into local tion with UNDP on issues related to recovery and national development planning. The short- and contingency planning. term recovery interventions were not in close engagement with the government. Most of these The partnership and implementation of the programmes were implemented by UNDP and programme is at all levels of government. At local partners and did not adequately contribute the national level, UNDP work closely with to enhancing the capacity of the government at CoES. At the regional (Oblast), district (Ryon) different levels. There was very little evidence and sub-district (Jamoat) level, it works with the to suggest the projects had any continuity at the respective government levels, the CoES at the district or sub-district level or were scaled up by district, and the city administration of Dushanbe. the government. UNDP has also partnered with international donors, international NGOs and NGOs working The disaster risk management programme has on disaster management. been less successful in mainstreaming disaster risk mitigation into other UNDP programmes, UNDP has demonstrated a concerted approach thereby missing the opportunity to reduce vulner- to the management of natural disasters in the ability of the population affected by disasters. areas of donor coordination, strengthening public The disaster mitigation features were lacking institutions and initiating policy mechanisms. in activities such as housing, construction, and The donor coordination mechanism REACT is rehabilitation of public infrastructure, both in an important forum for coordinating emergency UNDP implemented programmes as well as activities and for mitigation efforts. UNDP those by other agencies. There was very little has initiated different projects to strengthen linkage between the disaster risk management, the data base on disasters, through support CP or HIV/AIDS interventions. Some of the to IMAC. While there are issues of sustain- disaster risk management programme interven- ability and government ownership if UNDP tions would have been more sustainable if they withdraws financial support, UNDP has the were part of the CP in Garm, Aini and Kulyab. potential to contribute to results in the area of The CP provided an excellent opportunity to disaster management. try out community-based disaster mitigation practices. In several Jamoats, houses continue to During the assessment period, a regional be built in high disaster risk areas. A case in point UNDP disaster management programme are the houses built by UNDP for the earthquake was implemented in the border districts of victims in Garm, which lacked disaster resistant Tajikistan and Kazakhstan. Although the features. The disaster risk mitigation activities ADR did not evaluate the projects under the did not use the existing community capacity in regional programme, the evaluation could get disaster recovery.

40 CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS 4.5.2 Emergency response and been weak. The role of REACT remains disaster mitigation confined to coordinating donor activities and The national REACT was set up in 2000 has limited linkages to contingency activities by OCHA to facilitate effective use of donor of the government. More efforts are needed resources in emergency recovery. When to ensure REACT functions as a decision- OCHA withdrew its operations in Tajikistan, making body. For REACT activities to be responsibility for supporting CoES in donor more effective, it should be part of government coordination was handed over to the United contingency planning. Nations and later to UNDP. The UN/UNDP is the Secretariat for REACT. There are Not all cluster groups are effectively functioning 245 registered members of national REACT, and participation of agencies has been low. The comprising government ministries, interna- clusters are yet to be functionally integrated tional agencies (including bilateral agencies and within the government approach to early UN organizations), and international NGOs. response. The shift from sector groups to the Cluster groups81 were established at the national cluster approach has created confusion among and regional REACT to facilitate contingency non-UN and government members of REACT. planning. There are five cluster groups, each led The significance of the cluster approach is yet by an UN organization, to facilitate contingency to be demonstrated to all members. Non-UN planning.82 The cluster groups had a similar organizations feel they lack representation in thematic focus as that of the sector groups, cluster groups, as they are all headed by UN operational until 2006.83 organizations. The inter-agency arrangements need to be sufficiently discussed among the UNDP initiatives in the area of donor REACT members. Since the cluster approach coordination through REACT have been as an Inter-agency Standing Committee practice useful in ensuring coordination of emergency is of a recent origin, and there are global efforts response and working on contingency planning. to strengthen the process at the implementation Government officials and international donor level, UNDP can be proactive in making clusters agencies considered REACT to be effective more collaborative, particularly in involving in coordinating donor activities and sharing non-UN stakeholders in humanitarian action. information. It is also seen as an important link with the national administration. REACT The active membership of REACT has been has been considered a best practice in the decreasing. Discussions with some REACT Central Asia region and has been replicated in a members indicated that about 12 organisa- few countries. tions were active participants. The participation in the coordination forum was more effective However, there are several areas that need during humanitarian appeals. It is noteworthy to be strengthened in the donor coordina- that the World Bank and Asian Development tion mechanism in Tajikistan. REACT needs Bank are not active members of REACT. The further government ownership. While the World Bank has interventions in the energy CoES representative chairs REACT meetings, sector and the Asian Development Bank in the representation of the line ministries has public infrastructure. The World Bank has

81 The cluster approach was endorsed by the Inter Agency Standing Committee in 2005. The approach is designed around the concept of partnerships between UN organizations, the International Red Cross and Red Crescent Movement, international organizations and NGOs. The approach aims to ensure sufficient global capacity, predictable leadership, strengthened accountability and improved strategic field-level coordination and prioritization. 82 The cluster groups include food items, non-food items, wash, health and housing. 83 Prior to 2007, REACT had five sector groups: food security, non-food items including shelter, health, water and sanitation and education.

CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS 41 been supporting the Committee for Energy UNDP played an important role in coordinating Situation, which has the mandate to reduce flash and consolidated appeals. Early recovery crises due to energy shortages. Absence of major appeals are made every year and have been donors reduces the effectiveness of influencing reactive and deliberate. While a formidable policy processes and institutional structures for humanitarian situation was often the argument disaster management. in favor of repeated humanitarian appeals, a more strategic and proactive approach aimed at More efforts are required to ensure there is long-term mitigation was consistently lacking. participation of local and government agencies. The issues addressed through flash and consoli- REACT is seen as a donor ‘English speaking dated appeals are often development issues, and forum’ by local observers and participants. considering them as humanitarian issues does not There is lack of sufficient understanding in address the basic problem. The cumulative effect terms of language, rhetoric and responsibilities. is a series of small-scale disasters aggravated While having consultants has strengthened the because of failure in development interventions REACT process, REACT meetings should not and public services. While international agencies be led by consultants. are conscious of this, efforts for a more long-term and sustained approach have been slow. Results The regional REACTs have a long way to go of UNDP interventions in the area of reducing in efficiently coordinating emergency recovery disaster risk or poverty resulting from disasters and contingency planning. There has been a were not fully manifest. variation in the functioning of the regional REACTs and uniformly demonstrated weak 4.5.3 Strengthening linkages with the national REACT. Despite the disaster management rhetoric, the national REACT does not believe information systems the regional REACTs have the potential to be The establishment of IMAC in the CoES is 84 involved in contingency planning. There are a significant step in enhancing information instances where some agencies in the regional management capacity in disaster preparedness REACTs participate individually by providing and response. The IMAC is a scientific-tech- information to the national REACT. The top nical unit of the CoES established with UNDP down approach undermines the possibility of support in 2005. Its aim is to strengthen the CoES strengthening REACT at the regional level. information management capacity. Situated Considering the importance of district and within the CoES office in Dushanbe, IMAC sub-district level coordination in contingency has five regional Informational Management and planning, emergency response and mitiga- Analytical Departments and carries out collec- tion, the regional REACTs have an important tion, analysis and dissemination of disaster related role in disaster management. The ongoing information. Working closely with relevant efforts of UNDP do not sufficiently emphasize government agencies, such as Glavgeology, the 85 strengthening regional REACTs. Institute of Seismic Resistant Constructions and Seismology, Hydrometeorology and others,

84 When the evaluation team was in Dushanbe, preparations were underway for the contingency planning and it was evident that regional REACTs were not sufficiently involved in the process. While a few members of the national REACT were of the view that the discussions reflected the inputs of their field offices, the opportunity to develop the capacities of the regional REACTs in occasions such as the ongoing contingency planning was lost. Contingency planning at the regional level should have preceded the national level contingency planning. 85 The ADR team visited areas where three regional REACTs were operational: Kulyab, Garm and Aini. The REACT in each of these places was led by different organizations. While they demonstrated local level coordination, often under difficult circumstances, efforts were limited to strengthen their potential. Aini REACT was not fully functional at the time of the visit.

42 CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS enables IMAC to compile and share data on staff members to work in CoES, rather than the priority areas for disaster preparedness. This implementing projects directly. The donor has been significant in providing communities, agencies and a majority of the REACT partici- government and donors information on disaster pants were appreciative of UNDP support to risks areas. IMAC has a strong leadership and has REACT. However, it is not evident whether demonstrated potential for effective management these partnerships are used for furthering disaster of disaster information system. risk mitigation activities at the regional level.

IMAC has the potential to collect data related to There have been certain limitations in policy disaster management and inform planning and engagement. For example, adequate efforts have decision making at the national and regional level. not been made to link disaster management and One of the issues in the effective functioning of development. Emergencies such as winter crisis, IMAC is the weak staff support and the capacity food crisis, energy management, and small-scale of CoES to take it further. IMAC is not sustain- floods are development issues. A long-term able in terms of financial resources as well as strategy is essential to avoid repeated flash appeals establishing information systems at the regional and temporary solutions. In addition, adequate and sub-regional levels. emphasis was not given to disaster manage- ment in the ongoing preparations for the JCSS. 4.5.4 Support to institutions The PRS and NDS pass over disaster manage- and policy ment. UNDP was not effective in supporting the shift from ‘periodic humanitarian response’ In the past three years, UNDP has initiated to addressing disaster management from a projects to strengthen government institutions development perspective. and legislation for enhancing disaster manage- ment. Advisory and technical support has been UNDP initiated the preparation of a National provided to CoES and IMAC. The preparation Strategic Plan for Disaster Management of the National Disaster Management Strategy and Action Plan, which is a step in the right and Action Plan has been initiated during the direction. However, it appears to be a consul- ongoing country programme. UNDP supported tant-led process, with the draft to be presented preparation of modules on disaster management to the government for comments. Government for the national civil defense training course. officials could not comment on the content of According to the Civil Defense Training Centre the strategy and action plan as they had not yet in Dushanbe, the civil defence training manual seen it. A more consultative and joint prepara- has approximately 70 percent of orientation tion would have improved national ownership. course on disaster management and the training UNDP should ensure that the preparation of material developed in coordination with UNDP policy documents is led by the government and has been extremely useful. Considering that it is that consultants work with the government. mandatory for employees of state institutions to undergo civil defense training, it is an efficient UNDP interventions were not optimal in way of orienting government staff to disaster facilitating greater interaction between different management issues. However, UNDP has not government agencies working in the area assessed the usefulness of these modules and of of disaster management. Under the present any additional training needs. structure, CoES is under the State Commission for Emergency Situation. Within the State There has been a formal engagement with Commission, CoES is one of the agencies the government and buy-in on many activities responsible for disaster management, but not initiated by UNDP. However, UNDP could the agency responsible for coordinating various have tried other approaches to implementing ministries, although it has a similar function. The disaster risk management, such as seconding

CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS 43 Chairperson of the CoES is not one of the deputy agencies dealing with disaster management, and chairs of the State Commission. This presents a provide a clear mandate for a single agency. skewed power structure in the implementation While the restructuring of power and functions of disaster management activities. There is also of CoES is important for enhancing national a Committee for Energy Situation, which deals disaster management strategy, UNDP should with energy-related mitigation and response engage with other government agencies whose activities, which has a limited working relation work influences disaster management. It is with CoES. The National Disaster Management important to have timelines with the government Strategy should emphasize the need for restruc- while working on these issues. turing institutional systems, streamline various

44 CHAPTER 4. CONTRIBUTION TO DEVELOPMENT RESULTS Chapter 5 Cross-cutting Issues

The previous chapter on development results and sub-district level. There has been positive discussed UNDPs support to capacity develop- improvement in the linkages between various ment in relation to specific initiatives. It agencies collecting statistics, such as SRC, the is further discussed here in the context of Committee on Statistics and the Ministry of the entire programme. The support to data Economic Affairs. Support to SRC is signifi- systems are discussed as part of the section on cant because it is located within the Office of capacity development. the President and facilitates statistical informa- tion required for decision making. However, there are limitations in the periodic collection 5.1 National human resources and analysis of data on social sectors and poverty. and capacity development Donor agencies indicated that state statistics One of the key issues in Tajikistan that has and data collection systems for the social sectors constrained development and reforms is the need further strengthening. UNDP support weak government capacity. Civil service lacks can be more consistent and substantive in the skilled human capital and appropriate reporting area of strengthening the statistics capacities of systems. Administrative systems are undermined the government. by lack of transparency and accountability. Under such circumstances, it is important that donor In the previous and ongoing programme, agencies not only support development initia- assistance was provided to the Aid tives but also strengthen government capacities Coordination Unit. The Unit does not coordi- to plan, implement and manage programmes. nate external aid, rather it provides a platform The capacity development initiatives of UNDP for accessing information on donor agencies were in the form of training, introducing new (including UN organizations) working in practices and policy support. While there were Tajikistan and their programmes. There was initiatives for strengthening institutional systems recently a publication by the Aid Coordination and practices, they lacked strategic emphasis in Unit on external aid to development in the programme framework. Tajikistan. While the Aid Coordination Unit is intended to inform donor coordination it was UNDP supported the government in the areas not evident if this was achieved. The Unit has of aid coordination, monitoring MDGs and the been shifted from the Office of President, where PRS, anti-corruption and disaster management. it was earlier located, to the State Committee for In the past six years, there were initiatives to Investment Coordination and State Property. improve the statistics capacity of the government It was not evident that UNDP has provided and financial support was provided to the SRC strategic support to define and strengthen the and State Committee on Statistics. During the capacity of the Aid Coordination Unit to coordi- previous programme period, UNDP and other nate external aid. UN organizations supported the State Statistics Committee in carrying out a Multiple Indicators One of the areas where there has been the Cluster Survey and PRS monitoring. In the past potential for contributing to results was in two years, UNDP has been supporting SRC to disaster management activities. UNDP has carry out socio-economic surveys at the district been supporting IMAC in developing an

CHAPTER 5. CROSS-CUTTING ISSUES 45 information system and regular updating of implementation modality may require prior data on disasters. The government and IMAC discussions and agreement with the government, leadership have strongly supported improving and UNDP should start planning towards this. disaster information systems. While the Government of Tajikistan is keen to strengthen disaster management systems, more ownership 5.2 Millennium to further information systems on disasters, Development Goals particularly at the sub-national level, is crucial. Supporting the achievement of the MDGs is UNDP needs to do more to ensure the govern- an important part of the UN system and is used ment actively engages in this process. While both for UNDAF and UNDP frameworks. there has been support for preparation of an UNDP implemented development projects to action plan and legislation for disaster manage- reduce poverty at the household and community ment and mitigation of consequences of climate level, and supported policy and capacity develop- change, more sustained efforts are required for ment of government agencies. UNDP could have their operationalization. been more optimal in its efforts to link project- based lessons to inform social sector policy and The managing of GFATM provided UNDP further MDGs. the opportunity to enhance capacities in the health sector. However, there was little At the macro level, the contribution of UNDP to effort on the part of UNDP to systemati- bring MDGs into the development agenda has cally strengthen the capacities of the Ministry been important. Tajikistan became one of the of Health and enhance donor coordination in first pilot countries in the Millennium Project the health sector. UNDP has been extending in 2000, with the government signing the UN support to strengthening government coordina- Millennium Declaration to achieve the MDGs. tion in early recovery and contingency planning. UNDP along with other international agencies While UNDP has demonstrated persistence in (World Bank and Asian Development Bank) supporting REACT, national capacities need to supported the government in its design of PRS-I, be furthered to independently carry out coordi- PRS-II and NDS. NDS is a long-term strategy to nation. The process followed by UNDP in such achieve development results by 2015 and expands initiatives is important in enhancing government upon the priorities identified in the PRS-II. The capacities. UNDP should follow an approach NDS places emphasis on agriculture, energy and that would facilitate government capacities and aluminum production as drivers of development. not substitute them. Social sector, sector diversification, and small and medium enterprise development are seen as Across the programme, the results in capacity key areas of development. Public fund manage- development were undermined by the programme ment, democratic principles of governance, strong implementation modality followed by UNDP. leadership and national ownership of development Approximately 98 percent of the programme was processes form the basis of NDS. The MDGs are implemented directly by UNDP. The lack of incorporated into the NDS and have the endorse- administrative and financial management capaci- ment of the international donor community. For ties of the government was used as justification better aid effectiveness and furthering NDS, for direct implementation of the programme. DCC has been engaged in the preparation of the Instead of strengthening government implemen- JCSS. UNDP, as a member of DCC, participated tation systems by working through them, in the preparation of the JCSS. UNDP adopted the easier approach of direct implementation. During the planning of the next The MDG agenda and the process followed have programme, measures need to be taken to adopt been seen as contentious by the donor agencies. national programme execution. Enabling national Achieving the MDGs and the resources this

46 CHAPTER 5. CROSS-CUTTING ISSUES requires is seen as ambitious by most international One of the issues that was not sufficiently agencies working in Tajikistan. The financial addressed in the MDG debate following the needs requirements based on the budgetary alloca- assessment study was government accountability tions and ODA projected by the study for to enhance fiscal discipline and carry out reforms achieving MDGs was short by USD 13 billion. for better management of public funds. UNDP The MDG needs assessment was intended to stopped short of providing the leadership required bridge the shortfall of approximately 60 percent. for ensuring that policy and reform agenda are Donor agencies considered this overambitious linked to the process of achieving the MDGs. and creating unrealistic expectation on the While UNDP prepared sector papers for NDS part of the government. The World Bank and for a better understanding on MDG issues, more International Monetary Fund were concerned consensus and a sustained approach is required that an increase in assistance to fulfill the for taking forward the MDG agenda. While the MDGs will skew the public debt to GDP ratio. international financial institutions agree on the ODA comprises a major proportion of develop- importance of achieving MDGs, there is lack of ment funds in Tajikistan. This means that the coordination in furthering government efforts to extra funds required for achieving the MDGs achieve the MDGs. The JCSS process provided has to come from international agencies. The an opportunity for UNDP to build consensus on needs assessment was not considered necessary some of these issues and influence the priority by the multi-lateral agencies, when issues to be accorded to achieving MDGs. Discussions related to MDGs were being addressed on a indicate that UNDP did not adequately use prioritized basis by the development agencies this opportunity. working in Tajikistan. The MDG agenda and the NDS have a longer time-frame and are UNDP supported monitoring and reporting of seen as undermining the PRS agreed by donor the MDGs, and as part of the UN team supported agencies. The international financial institu- the government in preparing a joint report on tions wanted to emphasize energy, infrastructure progress towards MDGs. UNDP supported the and economic reforms, which are critical to government in preparing two NHDRs, while sustained development. While this does not a third one is under preparation. The first contradict the emphasis on achieving MDGs, it NHDR was prepared in 2000 and discussed was hard to achieve consensus among the major issues related to the consolidation of the Peace international aid agencies. Agreement and National Reconciliation, and sustainable economic and social development. The government was forthcoming in owning The report highlighted the key development the MDG agenda and ensured that it was challenges and priority areas for sustainable reflected in all the national strategies and action development. The second NHDR released in plans. The government also established working 2003 dealt with water resource management. groups on MDG areas involving major donors The report discussed the important linkages in and is optimistic that it will achieve most of the water management and poverty in Tajikistan. At goals by 2015. Difficulties in achieving MDGs the time of the evaluation, an agreement with the are perceived in the area of education and government was reached for carrying out the next health. While there has been progress, external NHDR. UNDP should focus on MDGs in the assistance remains crucial for Tajikistan to forthcoming NHDR. achieve the MDGs by 2015. An analysis of the institutional systems and governance processes is important for strategic support to achieving 5.3 Gender equality the MDGs. This was found to be lacking. The UNDP strategy and programme documents refer to the need for a gender perspective in development interventions. The 2003 Common

CHAPTER 5. CROSS-CUTTING ISSUES 47 Country Assessment highlights issues related microfinance approach was a client-oriented to gender equality and women’s rights and rather than a group-oriented approach, opportu- the importance of having a gender sensitive nity was lost to use microfinance as a tool for approach to development planning. The gender advocacy at the local level. second country programme mentions gender in development as cross-cutting themes and UNDP made little efforts to use the extensive the 2005-2009 results matrix refers to the programme interventions at the local level MDG goal on gender equality. However, the to address gender issues in a structured way. implementation process did not pay sufficient Although evaluations of RRDP and CP pointed attention to gender equality in programme to the lack of gender analysis in planning interventions. There were serious limitations and implementation, there was little effort to in the analysis of gender differences to inform integrate gender in the programme process.86 programme planning and monitoring. Opportunities were lost to make linkages between gender and poverty interventions, implications Women were not adequately reached by UNDP of male migration and in informing policy. It is development initiatives. Gender inequality is imperative for UNDP to pay specific attention a challenge in all the regions where UNDP to gender dimensions in the next programme. is working—constraining women’s access to development benefits and social services. The problems in addressing gender issues in Although the Constitution provides for gender the CP reflect the gap between commitment equality, in practice, women do not enjoy the and practice. The CP lacked sex disaggregated same rights as men. It is too early to assess the data and analysis of outcomes of interven- outcome of the development strategies outlined tions for men and women. There was very by the government to further gender equality. little monitoring of the performance on gender equality. While certain inferences were made on While rigid gender systems constrained the outcome for women in the water infrastruc- participation of women in public space, UNDP ture, these were not based on any systematic did not make sufficient efforts to link lessons data. The NHDRs looked at certain dimensions from micro interventions to furthering the MDG of gender, particularly the one on water manage- commitment to “promoting gender equality and ment. However, the analysis did not inform empowering women.” The CP aimed to include programme design or strategy. There was lack of women as beneficiaries of the programme, as proper understanding among the staff on applica- a vulnerable group for specific attention. This tion of gender to programme interventions.87 It was not informed by an analysis of different is important that all future UNDP programmes roles and position of women in rural society develop baseline gender data, analysis of gender and the changing dynamics with large male dimensions, gender disaggregated data and migration to Russia. Most of the women benefi- periodic monitoring of project performance. ciaries had limited involvement in the livelihood activities supported by UNDP. The interven- The role of CSOs in furthering the gender tions did not adequately take into consideration agenda varied. The CSOs and NGOs supported the different roles women play and specific by UNDP provided support to women subjected support required for entrepreneurship develop- to domestic violence and created awareness of ment among women. Considering that the women’s legal rights. These are largely micro

86 De Martino L and M Makhkamova, ‘Assessing UNDP Communities Programme’, External Outcome Evaluation Report for UNDP Tajikistan, 2007; ‘Evaluation Micro Credit Programmes’, UNDP Tajikistan, 2005; and ‘Poverty Alleviation in the Rasht Valley Mid-Term Evaluation’, 2006. 87 Except for a short duration, there was no support to monitor gender mainstreaming.

48 CHAPTER 5. CROSS-CUTTING ISSUES interventions as the CSOs in Tajikistan are facilitate gender analysis from different sources not sufficiently strong to lobby for women’s to inform policy. Discussions with agencies rights and gender equality in policy. The JRCs working on gender issues revealed that sustained were not sufficiently used as an instrument to efforts are needed to implement existing legisla- increase awareness about gender specific needs tions to enhance gender equality in public and at the Jamoat level. The JRCs provided a perfect private spheres. The JCSS and other ongoing opportunity to mobilize women to participate processes, such as SWAp in the health sector, in the development process, which was not provide the opportunity for specific attention optimized by UNDP. There were limitations to gender equality in the social sector and in ensuring women were adequately represented allocations for women-specific needs, such as in the JRCs. In the earlier part of the second reproductive health. Some of the background CCF, UNDP supported the NGO GAD in papers prepared for JCSS discussions did point facilitating government interventions on gender to gender differences in health and education. mainstreaming. This was discontinued and there Among various development priorities, gender has been a lack of consistency in supporting the concerns were often undermined and the policy government in this area. Coordination with commitment has been weak. UN organizations other UN organizations, such as UNIFEM, was revealed that there is a need for a more coordi- not optimal for achieving results in the area of nated approach to further gender dimensions gender equality. in development. UNDP can play an important role in coordinating efforts in this area, particu- The surveys supported by UNDP at the district larly among UN organizations. UNDP was less and sub-district level collected gender disaggre- forthcoming in working with other UN organi- gated data on the socio-economic situation at zations on these issues and involving smaller the household level. The MDG monitoring agencies, such as UNIFEM, for support in report analysed progress using gender disaggre- mainstreaming gender. gated data. However, more efforts are required to

CHAPTER 5. CROSS-CUTTING ISSUES 49 50 CHAPTER 5. CROSS-CUTTING ISSUES Chapter 6 Strategic Positioning of UNDP

UNDP programme decisions were largely The long civil war severely damaged public guided by the post-war transition and develop- infrastructure and economic systems leading to ment needs in Tajikistan. UNDP has been a decline in industrial and agriculture produc- implementing programmes in Tajikistan since tion. Poverty was further exacerbated due to lack the civil war. Initial UNDP work was post of employment. In the ongoing and previous conflict rehabilitation and support to the United country programmes, UNDP made a consid- Nations Peacebuilding Support Office. UNDP ered decision to emphasize poverty alleviation followed a phased approach in its programme and local infrastructure development. UNDP intervention: beginning with reconstruction has contributed significantly to bringing MDGs and stabilization activities that were followed into the development agenda. The government by transition and development interventions. has taken full ownership of the MDG agenda The second and ongoing country programmes and is confident it will achieve the goals in focused on improving economic opportunities many areas by 2015. While UNDP has consis- in rural areas, support to public services, and tent supported the government in integrating strengthening institutional capacities. These are MDGs into the development strategies and the priority issues in Tajikistan. monitoring MDGs, there is further need for coordination of donor efforts in this area. UNDP Although UNDP is a small player in Tajikistan has the challenging task of keeping the MDG in terms of its own financial resources, it success- agenda rooted within the competing develop- fully mobilized a large portfolio. The scale of ment priorities in Tajikistan, while at the same operations of UNDP annually is approximately time not alienating other international agencies 6 percent of the total ODA in Tajikistan. from participating in furthering MDGs. UNDP has the advantage of acceptability and a good working relation with the government. During the assessment period, the country The diplomatic role UNDP can play in allevi- office demonstrated significant mobilization of ating water and energy issues in the region has funds. In the past four years, the contribu- generated a lot of expectations on the part of tion of external funds to the implementation the government. Local presence and ability to of the CP increased by 78 percent, and UNDP work with the government gives UNDP a unique is one of the major players in developing rural opportunity to influence development strategies. water infrastructure. The funds enabled UNDP to sustain a wide range of local development Many donors channeled their funds through initiatives and have a large field presence. The UNDP because of its well established local strong local presence, however, did not give presence and role as a UN organization in UNDP adequate leverage at the national level. the post-conflict stabilization and reconstruc- The UNDP role in informing public service tion process. The dependence on external funds, delivery and strengthening local governance has however, considerably influenced the prioritiza- been limited. UNDP projects were generally tion of activities and its interventions to enhance fragmented, with activities structured to suit the local capacities. The leverage UNDP has among donor programme needs rather than following the international agencies has been challenged, as an integrated approach to local development. most interventions are joint programmes. Linkages between micro interventions and

CHAPTER 6. STRATEGIC POSITIONING OF UNDP 51 capacity development at the local level and macro UNDP is well positioned. Despite being reform processes at the national level have been well positioned in the health sector, UNDP weak. The new programme provides an opportu- contribution has been less than optimal. nity to design interventions that have policy Transparency and accountability in public implications and strengthen the capacity of the expenditure, institutionalizing procurement national institutions. procedures and reforms, implementation of the amended Civil Service Law, reforms Considering that UNDP has invested a that would further merit-based civil service considerable proportion of its funds for activities and wage classification, measures to minimize at the Jamoat in poverty alleviation, infrastructure corruption, and implementation of local govern- development and local governance, the question ment law are some of the governance issues was whether it was optimal for UNDP to limit where UNDP contributions could have been its scope of activities at the Jamoat without valuable. More sustained support to anti-corrup- adequately involving the district and national tion efforts is another area of governance where government in the process. There were limitations UNDP has a niche. While lack of donor in developing a strategy for local development support for anti-corruption efforts is one of and mobilizing funds to carry out sustained the reasons UNDP is not continuing interven- interventions to strengthen local government at tions in this area, measures need to be taken to the district and sub-district level. While intensive allocate resources from the core funds for initia- involvement at the local level should give UNDP tives such as this. the leverage to engage in local governance reforms and measures to enhance public service delivery, It is crucial that UNDP is more responsive the role of UNDP in these areas has been less to furthering institutional and governance discernable. Strategic thrust in its activities could reforms at the national level. UNDP can do have enhanced the UNDP position as a key well by focusing on long-term measures to player in policy and advocacy at the national and reduce corruption. This includes measures to sub-national level. enhance transparency and accountability in public fund management. The new programme Disaster management is an important dimension gives UNDP an opportunity to hone its priori- of development in Tajikistan. UNDP is well ties in the governance area and participate in positioned in the area of early recovery and the ongoing reform efforts in the health sector. has been supporting disaster management by UNDP should prepare a strategy for addressing strengthening institutions and policy. Further governance issues and the areas it wants support efforts are needed by UNDP to ensure there during the next five years. is national ownership of disaster management and that disaster risk reduction is integrated Many donors in Tajikistan are scaling down in the development process. UNDP support their programmes. This means that there to the Ministry of Economics and Statistics, will be a decrease in the external funds for Strategic Resource Centre, and State Committee UNDP. While this has implications for the on Statistics is noteworthy. However, there are CP, it necessitates a more strategic approach in significant gaps in data on poverty and more programme interventions. Instead of spreading interventions are required in this area. itself thinly, UNDP should outline priority areas for long-term policy interventions. Support to reforms in the area of governance did not receive adequate attention in the two programmes. There were limitations in carrying 6.1 Donor coordination out activities that have policy relevance, even in Considering the intense donor presence in areas such as local governance reforms where Tajikistan in humanitarian and development

52 CHAPTER 6. STRATEGIC POSITIONING OF UNDP activities, it is an imperative to coordinate interna- in the health sector as the manager of the tional assistance to ensure funds are effectively GFATM. UNDP participation in coordination used and that there are no gaps in reaching mechanisms in the health sector and in efforts different sections of the population. During the towards SWAp was not at the expected level. previous country programme, UNDP facilitated While other UN organizations such as WHO coordination of technical and implementation may be involved in such efforts, UNDP coordi- processes in various programme areas. UNDP nation with UN organizations on these issues has been one of the few agencies to facilitate the was less clear. formation of thematic groups and donor coordi- nation meetings and discussions since 2000. Despite large ODA, government interest in The RC’s office was proactive in organizing coordinating aid has been weak. The State meetings for donor representatives and ambassa- Committee on Investments and State Property dors on various development issues, such as Management does not have adequate capacities transboundary river issues, border management and power to play an effective role in coordi- and anti-corruption efforts. nating external aid. There have been other ongoing efforts, such as the creation of a National In the past three years, there have been concerted Development Council, but it is too early to say efforts among donors to prioritize development how effective these will be. In this context, aid needs outlined in the NDS and to improve aid coordination is one area where the contribution effectiveness in achieving development results. of UNDP can be important and the next country The DCC was started in 2006 and provides a programme needs to include interventions in space for coordination on development issues. this area. Important DCC activities include organizing high-level donor consultation and preparation More recently, there have been coordination of the JCSS for better aid coordination in efforts at the regional level to discuss issues furthering NDS. UNDP participation in the pertaining to water and energy. Tajikistan had a DCC and JCSS has been seen by international severe winter last year that triggered humanitarian agencies as passive. problems because of lack of power. The regional efforts to address this crisis were coordinated by UNDP played a significant role in donor UNDP Bratislava, and UNDP Tajikistan partic- coordination of early recovery initiatives, ipated in these efforts to enhance cooperation on although further efforts are required to enhance energy and water issues in the region. It is too government ownership. As a principal recipient early to observe the outcomes of such efforts. of GFATM, UNDP supported the govern- ment in the formation of the CCM. The CCM is a coordination mechanism at the national 6.2 Development partnerships level involving agencies working on HIV/AIDS UNDP has a good working partnership with and provides inputs for furthering HIV/AIDS the Government of Tajikistan. The national strategy. The functioning of the CCM has government considers UNDP a trusted and been less effective in terms of ownership by the neutral partner. The neutral position of UNDP government, and it was not evident if adequate has given the organization an edge over many efforts were made by UNDP to strengthen the international agencies working in Tajikistan. coordination mechanisms. Both donor agencies The government values UNDP work in the area and the government believe that better coordi- of rural infrastructure development, particularly nation in the health sector is needed to enhance the UNDP interventions in developing a water health reforms, national ownership, long-term infrastructure. The UNDP role in initiating the donor commitment and prioritization of health MDG process in Tajikistan was also acknowl- needs. UNDP has a stake in the ongoing issues edged by the government. While there are

CHAPTER 6. STRATEGIC POSITIONING OF UNDP 53 issues to be resolved in arriving at a manageable international agencies such as UNDP substi- time-frame and targets, the JCSS provided the tute government capacity. The planning for way forward to address some of these issues. the next programme offers an opportunity to initiate measures to implement programmes One of the areas of partnership that had through the government. limitations was engagement with the govern- ment in programme implementation. With The partnership with the international community minor exceptions, UNDP interventions in was evident in early recovery activities where Tajikistan were entirely implemented by the UNDP provided support to the government in country office with different levels of involve- coordinating donor activities. Partnerships were ment of government counterparts. While the less optimal in the health sector. In local develop- nature of the programmes—for example, the ment, most donor agencies considered UNDP’s country programme and the GFATM mandatory local presence a valuable resource to implement requirement for direct implementation—necessi- their programmes. UNDP also manages European tated direct implementation, there were no Community funded BOMCA-CADAP, an indications that the country office was planning intervention aimed to train and equip border to shift to a national implementation modality. forces in countries around the Ferghana Valley. While government representatives were brought The relevance of managing European Community on board when required, UNDP managed or funds to broader development goals was limited. implemented the programme. There were three There were also accusations that UNDP was less patterns of direct execution of the programme: forthcoming in sharing credit and recognizing first, where UNDP implements programmes donor-funded projects. UNDP needs to think and government agencies and officials participate through its role in interventions where it plays a without having decision-making power; second, managerial role. where government officials participate and can influence the way a project is managed; and The funding partnerships were more project third, little government involvement. In all these oriented, and efforts to further synergies were patterns, UNDP manages the funds. not evident. The donor agencies who funded the programme considered UNDP to be one of the Despite direct implementation modality, the many implementing partners and wider collabo- participation of the government counterparts— ration was found to be lacking. There was also a such as IMAC, the Strategic Resource Centre and perception that UNDP was increasingly becoming the Ministry of Economic Affairs—in some areas a local player like most other NGOs. The large was promising. However, direct implementation size of UNDP operations and direct implementa- of programmes by UNDP constrained capacity tion of the projects was also a subject of criticism. development, ownership by the government UNDP has to follow a more strategic approach and the possibility of expanding and sustaining in planning and accessing funds for develop- interventions. This was more evident in the local ment interventions. UNDP should move from a development initiatives where parallel systems pilot- and project-based approach that caters to were formed to implement projects. Similar the needs of the donors to long-term policy and effort invested in institutions of local govern- national capacity development activities. ment would have strengthened the capacities of the district and sub-district government and The partnership with the major donor agencies could have informed local governance reforms. in Tajikistan such as World Bank and Asian The weak administrative and financial systems Development Bank was less evident in the were used as justification for direct implemen- area of health and disaster management. While tation of projects. However, the capacities of UNDP is seen as a UN organization to reckon the government will not be strengthened if with, tensions were obvious on issues such as

54 CHAPTER 6. STRATEGIC POSITIONING OF UNDP prioritization in the PRS and NDS and the needs considered it a positive engagement and well assessment for the MDGs. While most of these coordinated by the RC. While joint effort as a issues have been resolved and there is a consensus UN team was evident in the support to PRS, on the MDGs, a more proactive engagement with disaster management, and GFATM programme, the World Bank and Asian Development Bank the potential is yet to be fully realized. will enhance development results in the area of health, disaster management and governance. In the past years, the RC’s office initiated several donor coordination activities and Partnerships were developed with CSOs and represented the United Nations in coordi- NGOs in the implementation of development nation forums. The RC participated in the programmes. NGOs were part of the regional and Principals Group, a political forum mainly national REACT in the disaster risk management comprising ambassadors, which periodically programme, and participated in the community discussed development concerns and ways to awareness programme of the GFATM. A more address them. The RC also represented UN structured approach was followed in RRDP organizations in the JCSS although other UN and CP, where JDCs and JRCs were formed to organizations such as UNICEF and WHO implement local development projects. While also participated in the JCSS. it is debatable whether UNDP created parallel structures to local government institutions in its There are areas where UNDP as part of UNCT support to JRCs, JRCs were successful in making demonstrated effective joint work. Disaster local development inclusive and participatory. It management was initially implemented as a is too early to say if the JRCs will be sustainable joint UN programme by UNCT, within the and will continue with their earlier mandate. The scope of the RC’s office. Although recently CSOs in Tajikistan are in the process of evolving this has been shifted to UNDP, the joint and are actively engaged in development activi- work among UN organizations continues to ties. The legislation for registering of the NGOs be well coordinated. Effective UN joint work has been more restrictive in the past year and is also exemplified in early recovery activities. there were concerns about the participation of Considering that natural disasters are a recurrent NGOs and CSOs in the development process. feature in Tajikistan, early recovery and contin- There are expectations among the NGOs that gency planning are areas where there is consistent organizations such as UNDP will address issues joint work among UN organizations. The RC for ensuring a more liberal space for NGOs. is the Co-Chair of the government-led donor While this can be tricky for UNDP relations coordination forum REACT. with the government, advocacy for a free civil society is important for strengthening democratic Despite effective engagement in areas such as space in Tajikistan. disaster management, the PRS and MDGs, synergy among the UN organizations has not been fully realized in other areas. The UN 6.3 UN coordination organizations were not convinced that their UNDP, in its role as the Resident Coordinator agencies were adequately represented in joint (RC) of the UN team, plays a diplomatic role initiatives of UNCT. There was also lack of and a neutral role in development support. The adequate communication on complementary UNCT had several joint activities responding to activities, such as surveys and the NHDR. Joint development issues in Tajikistan. Members of work and synergies were not optimal in the UNCT are represented in the DCC and other management and implementation of GFATM. technical groups formed to support the NDS, UN organizations perceived a need for greater MDGs and JCSS. The UNDAF is the primary alignment of UN activities in responding to inter-agency joint activity. UN organizations development needs. Individual UN organizations

CHAPTER 6. STRATEGIC POSITIONING OF UNDP 55 were representing themselves in donor forums self-assessment of UNDAF carried out by the and in working with the government in areas UNCT in 2004, there has been no evaluation of where joint work could have been more optimal. the UNDAF outcomes.

The RC of the UN is also the Resident Representative of UNDP. This has created 6.4 Responding to future needs considerable ambiguity about the role of the RC. The development needs discussed in Chapter 2 There were perceptions that representation of indicate that Tajikistan has a long way to go in the RC in donor and government forums is often carrying out reforms and strengthening institu- interpreted as representing UNDP. The new UN tions. UNDP has made important contributions leadership provides an opportunity to clarify the in supporting government efforts in different dual roles of the RC and Resident Representative. areas of development. The UNDP role will be The country office is also in the process of critical in informing government policies and recruiting a country director for UNDP, which practices in the area of governance, disaster will also assuage the confusion about role of the management and health. There is a need for RC and further a neutral leadership. UNDP to be more strategic in its interven- The country office was preparing the second tions and responsive in the use of resources. UNDAF and the UN organizations were UNDP should focus more on supporting reform appreciative of the well coordinated role of the processes and developing institutional capacities. RC. With the new leadership, there is opportu- Local development and local governance work nity to take the UNDAF process beyond the should be linked to macro processes and should joint programme framework. More efforts are involve government at its respective levels. To required to optimize the resources of UN organi- further develop government finance and adminis- zations in achieving development results. To trative systems and national ownership, UNDP enhance synergy and identify complementary should move towards national programme areas where more joint work would be produc- implementation modality. The new programme tive, UNCT should carry out an evaluation of and leadership could provide an opportunity to UNDAF outcomes and processes. Except the make changes in this direction.

56 CHAPTER 6. STRATEGIC POSITIONING OF UNDP Chapter 7 Conclusions and Recommendations

This chapter summarizes the main conclusions community level have been key areas of UNDP from the evaluation and certain recurring issues, interventions. A determined effort was made to largely interconnected, that have implications develop the water infrastructure and it has been for the future programming. These are followed highly relevant considering low public spending by specific recommendations for consideration for infrastructure development in rural areas. by UNDP. UNDP is one of the main actors in the rehabili- tation of the water infrastructure, supporting drinking water and irrigation infrastructure. 7.1 MAIN CONCLUSIONS The UNDP contribution has been significant UNDP has played an important role in in the post-war reconstruction and transi- furthering pro-poor policies in development tion. The programme emphasis corresponds to planning and in supporting the government the development needs perceived by the to reduce vulnerability to natural disasters government and civil society. and infectious diseases. Sustained efforts are required to strengthen government systems and The UNDP programme in Tajikistan has been capacities to ensure national ownership and implemented in an environment of challenging enable development results in these areas. post-civil war reconstruction and transition, weak government systems and evolving political UNDP, along with other international agencies, economy. The programme aimed to provide supported the government in designing PRS-I policy and programme support, share best and II and the NDS. At the macro level, UNDP practices and support government efforts to was successful in bringing MDGs into national build capacity to address development challenges. development strategies. While the government The size of the programme in the past four years was forthcoming in owning the process and has been approximately 6 percent of the annual ensured that it was reflected in national strate- ODA of Tajikistan, although most UNDP gies and action plans, more efforts are required to assistance comprised joint projects with other ensure that commitment is translated to action. donors. While the small size of core funds has been a factor in leveraging its position among UNDP played an important role in supporting international agencies, UNDP was successful in the government in controlling infectious disease establishing a good working relation with the and in furthering efforts towards disaster manage- government. The neutral position of UNDP is ment. UNDP has been significant in enabling the valued by the government. government to access the GFATM to strengthen the health infrastructure and minimize the risk Considering that the impact of the civil war was of HIV/AIDS, Malaria and TB. GFATM severe in rural areas, UNDP made a considered forms a substantial proportion of the ODA decision to work at the district and sub-dis- and is crucial for controlling the incidence of trict level. Local infrastructure development Malaria and TB in Tajikistan. Further efforts and poverty alleviation at the household and are needed to strengthen health administration

CHAPTER 7. CONCLUSIONS AND RECOMMENDATIONS 57 and service delivery to sustain the results of exceptions, the UNDP programme response did these interventions. not adequately address policy and governance issues. UNDP was less responsive to strength- The UNDP programme in the past five years had ening government institutions and capacities, specific interventions on issues related to disaster particularly in the health sector, enhancing management. The programme, implemented transparency and accountability mechanisms and in partnership with government agencies and local governance. There was a lack of strategic other national and international stakeholders, approach to enhancing government capacities. demonstrated the potential for strengthening institutional systems and policies for efficient One issue to consider when evaluating effective- disaster management in Tajikistan. The ness of outcomes is how realistic UNDP has been government appears keen to develop a disaster in defining its strategies and programme results. management system and response. While it is too The programme approach of UNDP makes it early to say whether the desired results has been difficult to establish the contributions to develop- achieved in enabling effective disaster manage- ment results. While the country programme ment policy and strategy, efforts are essential to is a joint programme and the government is a link disaster management with development. signatory to the realization of the outcomes, accountability is skewed, as the programme is The local presence of UNDP through its area implemented entirely by UNDP. offices is exceptional in the context of interna- tional donor response in Tajikistan. While UNDP has a comparative advantage in several useful outputs in poverty reduction addressing social development issues in were achieved, contribution to long-term Tajikistan. However linkages were not results has been less effective. UNDP systematically established between micro responsiveness to the governance needs in interventions of UNDP and government Tajikistan has been modest. planning and policy.

The effectiveness of UNDP contributions to The projects and programmes that were assessed results varied across programme intervention and had varied time-frames, and several projects in relation to achieving outputs and outcomes. were implemented under each programme area. From the point of the individual projects, the For many interventions in the area of poverty programme has been effective in achieving most alleviation, governance and disaster manage- of the stated outputs. UNDP Tajikistan has been ment sustainability was not evident. The UNDP successful in mobilizing funds and expanding approach often has been ad hoc and project the scope of interventions. Most donor agencies oriented, not giving adequate attention to sustain- found it resourceful to implement local develop- ability of interventions or informing government ment projects through UNDP. While UNDP practices and polices. There were also limitations has appropriately identified the priority areas in government ownership, and the timeframe was of support, the programme lacked a long-term not realistic for achieving outcomes. Considering strategy in implementation. With exceptions limitations in resources UNDP should confine its such as results in the area of water infrastructure work to areas where it can contribute to policy, support, there were limitations in the effective- reforms and institutional development. At the ness of the programme when assessed from the district and sub-district, level local governance perspective of contribution to programme goals is one area where UNDP support will have and development results. added value.

The interventions in many areas have been Reforms in the area of health are critical in in a humanitarian mode and, with a few Tajikistan and the GFATM provided means

58 CHAPTER 7. CONCLUSIONS AND RECOMMENDATIONS and opportunity for UNDP to enhance SWAp which permits farmers to opt for the crop of and donor coordination in the health sector. their choice. Considering that a large component While it is too early to determine sustainability of of the UNDP interventions involved working interventions under GFATM, the engagement directly with the community, there was consider- of the government agencies in the ownership able opportunity for UNDP to address issues of of the assets created is not optimal. One of the gender, migration and cotton farming and link issues in sustaining interventions is the lack them to policy discussions. Clearly, opportu- of adequate government capacity to continue nity was lost in enhancing gender equality in with the preventive practices beyond the project programme interventions as well as in influencing period. While there was a small component for policy. The microfinance programme was not training government staff and implementing adequately used to reach the most economically agencies, there was no strategy to facilitate disadvantaged sections of the population. A safer strengthening of the health agencies in a more approach to microfinance lending meant that holistic way. Strengthening the capacities of UNDP reached those who had a more sustain- the health personnel is a critical factor in health able income. UNDP introduced participatory interventions in Tajikistan, and sustainability of processes in the implementation of the projects. the interventions and the infrastructure created The sustainability of these processes appeared was not followed by adequate human resource weak as limited efforts were made to institution- development. A better coordination of donor alize these processes. interventions in the health sector is important for a more strategic approach in the implemen- The poverty and MDG initiatives did not tation of the GFATM programme. Similarly, a sufficiently address the dimension of migration more consultative approach and joint preparation of a large working population to countries of disaster management strategy and action plans such as Russia. Remittances are an important will have better national ownership. factor in the reduction of poverty levels in rural Tajikistan. UNDP project interventions do not UNDP through its various interventions at provide insights into the implication of large- the national and local level has addressed scale migration for the local economy and for issues related to poverty and sustainable liveli- inequality (regional, intra and inter household) hood. However, the synergy between poverty and how the UNDP interventions addressed alleviation interventions and other areas of these issues. The new programme provides an the programme (such as disaster manage- opportunity to examine how issues such as land, ment and environment) was not adequately labour and capital markets are crucial for the established. The programme was less system- allocation of resources and development. atic in addressing gender related concerns and issues pertaining to large scale migration of There were dispersed interventions in the areas working population to other countries. of environment and climate change. Besides providing support to the National Action Plan Addressing issues of livelihood, rural for Mitigation of Climate Change, UNDP development, and the MDGs has been core to piloted projects on renewable energy. Although UNDP interventions in Tajikistan. Concerted the evaluation did not include environment effort was made to reduce poverty through and climate change interventions, there was community level interventions. UNDP has no evidence of scaling up renewable energy implemented programmes in the back regions of interventions. The analysis of poverty and natural Tajikistan in Garm and Shartuz and made efforts disasters indicated that linkages to environment to reach the economically disadvantaged sections and climate change were not made. Considering of the rural population. The UNDP contribu- that a large section of the population in Tajikistan tion is significant in promoting Resolution 111, lives below the poverty line, the impact of climate

CHAPTER 7. CONCLUSIONS AND RECOMMENDATIONS 59 change can have adverse impact on the food and institution strengthening), strategic approach security, livelihood and assets of the rural popula- to programme emphasis, and developing national tion. The programme areas on poverty alleviation human resources and capacity. and disaster risk mitigation had the potential to address some of these dimensions. 7.2.1 Programme strategy and approach Use of direct implementation modality for programmes is an issue of concern in 1. UNDP should emphasize policy support Tajikistan, where a large proportion of and strengthening government systems. programmes are implemented by UNDP. Interventions in the area of governance This has implications for the sustainability should be further strengthened. UNDP of development results and strengthening the should be more responsive to governance capacities of the national institutions. needs in the country and coordinate with other agencies working in the area. One of the recurrent issues during the Weak administrative and public finance man- evaluation was the programme implementation agement systems undermine development in modality followed by UNDP. With exceptions, Tajikistan. UNDP interventions need to UNDP interventions in Tajikistan were entirely focus on policy enhancement and governance implemented by the country office with different issues. UNDP should prepare a strategy for levels of involvement of government counter- interventions in the area of governance with parts. There was concern about the government an adequate time-frame (a minimum of five capacity to implement development projects and years). Some of the governance issues where procedural delays. The efficiency of govern- UNDP can add value include implementa- ment financial systems and the corruption levels tion of civil service reforms, mechanisms to were some of the reasons for following direct strengthen the capacity of government staff, implementation of projects. There were no strengthening budget systems, and local gov- indications that the country office was planning ernance reforms. to shift to national implementation modality. While government representatives were brought UNDP should broaden its earlier work in on board as required, UNDP managed or the area of anti-corruption, and should have implemented the programme. Concerns about specific interventions to enhance transparency national administration systems and finance and accountability in government adminis- systems and ways to address them were not trative and financial management. UNDP adequately incorporated in the design and has already outlined local governance as one action plans of the projects. UNDP should of its priority activities. The time-frame of plan ahead to develop appropriate national such efforts should be realistic to contribute execution mechanisms. Capacity development to strengthening institutions and informing is an important component of UNDP support local government reforms. and direct execution curtails opportunities to UNDP is well positioned to further strengthen weak government systems. government capacities in disaster manage- ment. Adequate measures should be taken by 7.2 RECOMMENDATIONS UNDP to strengthen the role of the CoES within the disaster management structures in UNDP has a significant role in informing Tajikistan. There are weak linkages between development policy, reforms and strengthening disaster management and development institutions in Tajikistan. The lessons for the efforts in Tajikistan. UNDP interven- country office mainly pertain to the nature of tions should be aimed at strengthening interventions (micro versus policy interventions the capacity of CoES to coordinate mitigation,

60 CHAPTER 7. CONCLUSIONS AND RECOMMENDATIONS preparedness and response needs and capacity to lead coordination. Functioning of integrating disaster management in national REACT needs to be gradually handed over to development strategy. the CoES. 2. There should be more substantial support UNDP should be more active in coordina- to the government in the area of MDGs. tion forums such as DCC and JCSS. At UNDP should strengthen its role in the time of the ADR, the DCC was sched- advocating for implementation of pro-poor uled to function until September 2008. It policies and strategies. was not clear if it will be extended beyond that period. UNDP should be proactive in UNDP is recognized in Tajikistan as the ensuring the continuation of forums such lead agency in mainstreaming the MDGs as DCC and should adequately engage in the national development strategy. There other UN organizations in the process. The has also been success in government owner- programme partnerships should be ship to achieve the MDGs. While UNDP furthered for more effective coordination in should continue its support to monitoring different sectors. the MDGs, further efforts should be taken to ensure there is donor facilitation in the area 4. Implement programmes through of MDGs, particularly in the health sector, government agencies to improve national where achieving the MDGs by 2015 is chal- ownership and enhance local capacities. lenging. There is need for sustained efforts UNDP should, in a phased manner, move to ensure adequate attention is paid by the from direct implementation of the programme government to achieving the MDGs among to national execution modality. Executing diverse development priorities. through government agencies enhances Human development is the guiding national ownership and is an opportunity principle of UNDP interventions. UNDP to strengthen government administrative should further strengthen its role in advo- systems and capacities. Considering that cating for poverty reduction and human financial and administrative systems in gov- development. There should be continuous ernment are weak, UNDP should work with support to the NHDR which is a useful tool the government to discuss and plan measures for advocating pro-poor strategies. to be taken to implement programmes by the government. 3. Use programme partnerships to strengthen donor coordination for achieving All projects and programmes should be development results. Strengthen UNDP defined by what they contribute to enhancing positioning in donor coordination. national human resources, development policy and government institutions. In designing Donor coordination in several areas of the projects, sufficient measures should be development in Tajikistan can be further taken to follow the approach that will further enhanced, and UNDP is well positioned national capacities. The large project staff of to play this role. In the GFATM HIV/ UNDP currently substitutes for government AIDS Project, UNDP should take sufficient capacities. Alternate approaches, such as sec- measures to strengthen the CCM. UNDP onding staff to the government departments, should further coordination in the health should be followed. sector and actively engage in the SWAp process. While the role of UNDP in the Developing capacities of CSOs should be a functioning of REACT is critical, UNDP complementary process to enhance the per- should work out ways to shift the REACT formance of institutions of local government. Secretariat to CoES and strengthen the CoES The JRCs had a specific purpose to mobilize

CHAPTER 7. CONCLUSIONS AND RECOMMENDATIONS 61 participation of communities and facilitate legislation on Protected Areas and Forestry project implementation in the transition Code. Environment and climate change is from humanitarian activities to develop- an area where UNDP can define a struc- ment. However, this short-term solution did tured response to further national policies not sufficiently address strengthening the and plans. There are other international capacities of the Jamoat administration. As agencies in Tajikistan working in the area a long-term measure of strengthening gov- of energy and environment. UNDP should ernment institutions, UNDP should work carry out an assessment of the national through the existing government systems needs, gaps in support to the government in the next country programme and avoid and the role UNDP can play in supporting creating parallel structures such as JRCs. the government in the areas of environment and climate change and efficient energy and 5. Develop a programme strategy for water management. consistency in interventions and for raising funds. The forthcoming programme should take adequate measures to integrate environ- It is important that UNDP develops a ment and climate change issues into poverty programme strategy to raise funds. UNDP alleviation and disaster management inter- should shift from the present approach of ventions. At the macro level, the World responding to project priorities of donor Bank is a major player in providing support agencies to a more coherent approach of in the area of energy. UNDP should initiate long-term and sustained interventions. The interventions to further practices and policy strong presence of UNDP at the local level in cost-effective energy efficiency and facili- should be used as an advantage to mobilize tate government support to energy efficiency funds to achieve results in the Country investments. UNDP should support advocacy Programme Action Plan. for furthering government efforts to adopt UNDP should take adequate efforts to and implement cost-effective energy effi- strengthen micro-macro linkages. With ciency as a high priority resource. Lessons exceptions such as district development should be learnt from the ongoing pro- plans, several projects were essentially pilots gramme to ensure that micro-interventions that were localized and were neither scaled in this area are not fragmented and compart- up nor informed government planning and mentalized. Efforts should be made to ensure practices. UNDP should be selective in that interventions such as demonstration of piloting new practices and ensure such pilots energy efficiency technology have sufficient are linked to policies and strengthening gov- linkages with the government programme to ernment capacities. enable scaling up. 6. UNDP should make an assessment of the 7. Strengthen gender mainstreaming in role it can play in energy, environment programme interventions. and climate change concerns in Tajikistan. UNDP should pay immediate attention to Integrate environment and climate mainstreaming gender in its programme change issues into poverty and disaster interventions. UNDP should diversify its management interventions. activities to include interventions that are UNDP supported the government in critical for gender equality and women’s preparing several action plans—such as rights, such as support to capacity building the 2007 National Environmental Action for women to participate in development, Plan, National Action Plan on Conservation measures for confidence building and of Biodiversity, National Action Plan on legal services. UNDP should facilitate the Mitigation of Climate Change, and revising government in monitoring the

62 CHAPTER 7. CONCLUSIONS AND RECOMMENDATIONS implementation of the PRS, NDS and JCSS in the country programme. Baseline in relation to their impact on gender equality information should be prepared for all and women’s rights. UNDP should work with outputs and outcomes. Gender analysis and other UN organizations (such as UNIFEM gender disaggregate data should be made and UNICEF) to further government com- available for all interventions. There should mitment to international agreements on be adequate human resources allocated for women’s rights and development, such as the monitoring and evaluation of the programme. Convention on the Elimination of All Forms Results-based management also needs to be of Discrimination against Women, MDGs further strengthened both in the national and the Beijing Platform for Action. and area offices. In the present monitoring system, programme performance is largely tied to activities and outputs and perfor- 7.2.2 Programme management mance indicators related to results are 8. Strengthen monitoring systems. not properly defined or monitored. It is important to develop outcomes monitoring The monitoring and evaluation systems systems to establish linkages between pro- should be strengthened for the entire gramme outcomes and UNDP contributions programme. Except for the GFATM pro- to national development results. UNDP gramme, baseline information was not should also carry out periodic analysis of available for other projects. Baseline data contributions to results for more efficient was also lacking for outcomes outlined programme management.

CHAPTER 7. CONCLUSIONS AND RECOMMENDATIONS 63 64 CHAPTER 7. CONCLUSIONS AND RECOMMENDATIONS Annex 1 Terms of Reference Assessment of Development Results in Tajikistan

1. Introduction 2. Background The Evaluation Office (EO) of the United Tajikistan is the poorest country in the former Nations Development Programme (UNDP) Republics of Soviet Union and CIS. A large conducts country evaluations called Assessments section of the population in Tajikistan was directly of Development Results (ADRs) to capture affected by the disintegration of the Soviet Union and demonstrate evaluative evidence of UNDP in 1991 and the civil war in 1992-1993. While the contributions to development results at the country returned to peace and political stabiliza- country level. ADRs are carried out within tion towards the end of the 1990s, the transition the overall provisions contained in the UNDP to development poses several challenges. The Evaluation Policy.88 The overall goals of an ADR challenges include reducing poverty and targeted are to: assistance to poor; generating employment; strengthening institutions and governance; and „„ Provide substantive support to the post-conflict reconstruction. Administrator’s accountability function in reporting to the Executive Board UNDP initiated its programmes in Tajikistan „„ Support greater UNDP accountability to during the reconstruction phase in 1994. The national stakeholders and partners in the goal of its programmes is to continue to provide programme country quality policy and programme support, share best practices and support government efforts „„ Serve as a means of quality assurance for to build capacity to address development UNDP interventions at the country level challenges. The practice areas of the Tajikistan „„ Contribute to learning at corporate, regional UNDP programme include poverty reduction, and country levels democratic governance, crisis prevention, energy and environment, and HIV/AIDS. The EO plans to conduct an ADR in Tajikistan beginning in May 2008. The ADR will focus on The completion of the 2005-2009 United the results achieved during the ongoing Country Nations Development Assistance Framework Cooperation Framework (CCF) (2005-2009), (UNDAF) and the 2005-2009 CCF in Tajikistan while the previous CCF (2001-2004) will presents an opportunity to evaluate the UNDP be assessed as a background. The ADR will contributions and shortcomings during the contribute to the new UNDAF and the ongoing ongoing programme cycle and before. The and next country programmes. findings will be used as inputs to the 2010-2012 Country Programme Document and for the next UNDAF.

88 Available online at http://www.undp.org/eo/documents/Evaluation-Policy.pdf.

ANNEX I. TERMS OF REFERENCE 65 3. Objectives, scope negative, intentional and unintentional—and and methodology will cover UNDP assistance funded from both core and non-core resources. The objectives of the ADR in Tajikistan include:

„„ Provide an independent assessment of the The evaluation has two main components: progress, or lack of, towards the expected the analysis of development outcomes and the outcomes envisaged in the UNDP program- strategic positioning of UNDP. ming documents. Where appropriate, the ADR will also highlight unexpected Development results outcomes (positive or negative) and The assessment of the development outcomes missed opportunities. will entail a comprehensive review of the „„ Provide an analysis of how UNDP has UNDP programme portfolio of the previous positioned itself to add value in response to and ongoing programme cycles. This includes national needs and changes in the national an assessment of development results achieved development context. and the contribution of UNDP in terms of key interventions; progress in achieving outcomes „„ Present key findings, draw key lessons, and for the ongoing CCF; factors influencing provide a set of clear and forward-looking results (UNDP positioning and capacities, options for the management to make adjust- partnerships, policy support); achievements, ments in the current strategy and next progress and contribution of UNDP in country programme. practice areas (both in policy and advocacy); and analysing the cross-cutting linkages and The ADR will review the UNDP experience in their relationship to Millennium Development Tajikistan and its contribution to the solution Goals (MDGs) and UNDAF. The analysis of of social, economic and political challenges. development results will identify challenges The evaluation will cover the ongoing and and strategies for future interventions. previous country programmes (2005-2009 and 2000-2004). Although it is likely that Besides using the available information, the greater emphasis will be placed on more recent evaluation will document and analyse achieve- interventions (due to better availability of ments against intended outcomes and linkages data) efforts will be made to examine the between activities, outputs and outcomes. development and implementation of UNDP The evaluation will qualify UNDP contribu- programmes during the last CCF. The identi- tion to outcomes with a reasonable degree of fication of existing evaluative evidence and plausibility using a core set of criteria related potential constraints (lack of records, institu- to the design, management and implementa- tional memory, etc.) will occur during the tion of its interventions in the country: initial Scoping Mission (see Section 4 for more details on the process). „„ Effectiveness: Did the UNDP programme accomplish its intended objectives and The overall methodology will be consistent with planned results? What are the strengths the ADR Guidelines prepared by the EO (dated and weaknesses of the programme? What January 2007). The evaluation will undertake a are the unexpected results it yielded? comprehensive review of the UNDP programme Should it continue in the same direction portfolio and activities during the period under or should its main tenets be reviewed for review, specifically examining UNDP contri- the new cycle? bution to national development results. It „„ Efficiency: How well did UNDP use will assess key results, specifically outcomes— its resources (human and financial) in anticipated and unanticipated, positive and

66 ANNEX I. TERMS OF REFERENCE achieving its contribution? What could „„ Responsiveness: How did UNDP anticipate be done to ensure a more efficient use and respond to significant changes in the of resources in the specific country/ national development context? How did sub-regional context? UNDP respond to national long-term development needs? What were the missed „„ Sustainability: Is UNDP contribution opportunities in UNDP programming? sustainable? Are the development results achieved through UNDP contribution „„ Equality: Did the programmes and interven- sustainable? Are the benefits of UNDP tions of UNDP lead to reduce vulnerabilities interventions sustained and owned by in the country? Did UNDP intervention national stakeholders after the intervention in any way influence the existing inequi- is completed? ties (exclusion/inclusion) in the society? Was the selection of geographical areas of Special efforts will be made to examine UNDP intervention guided by need? contribution to capacity development, knowledge „„ Partnerships: How has UNDP leveraged management and gender equality. partnerships within the UN system as well as with national civil society and private sector? Strategic positioning The evaluation will assess the strategic positioning The evaluation will also consider the influence of UNDP both from the perspective of the of administrative constraints affecting the organization and the development priorities in programme and, specifically, UNDP contribu- the country. This entails: a systematic analysis tion (including issues related to the relevance of the UNDP niche within the development and and effectiveness of the monitoring and evalua- policy space in Tajikistan; the strategies used by tion system). If during initial analysis these are UNDP Tajikistan to strengthen the position of considered important, they will be included UNDP in the development space and create a in the scope of the evaluation. Within the position for the organization in the core practice context of partnerships with the UN system areas; and from the perspective of the develop- and overall UN coordination, the specific issue ment results for the country, the assessment of the development of joint programmes will will evaluate the policy support and advocacy be highlighted. initiatives of UNDP programme vis-à-vis other stakeholders. In addition, the evaluation will 4. Evaluation methods analyse a core set of criteria related to the and approaches strategic positioning of UNDP: Data collection „„ Relevance of UNDP programmes: How relevant are UNDP programmes to the The evaluation will use a multiple method priority needs of the country? Did UNDP approach for data collection that includes apply the right strategy within the specific desk reviews, workshops, group and individual political, economic and social context of interviews (at both Headquarters and the the region? To what extent are long-term country office), project/field visits and surveys. development needs likely to be met across The appropriate set of methods will vary the practice areas? What were critical gaps depending on country context and the precise in UNDP programming? nature would be determined during the Scoping Mission and detailed in an Inception Report.89

89 The Scoping Mission and Inception Report are described in Section 5 on the evaluation process.

ANNEX I. TERMS OF REFERENCE 67 Validation „„ Inception meetings: Interviews and Data analysis will follow objective, verifiable discussions in UNDP Headquarters with methods. All information will be triangulated the EO (process and methodology), the and validated to the greatest possible extent. Regional Bureau for Europe and the CIS (context and county programme), as well as with other relevant bureaus (including Bureau Stakeholder participation for Development Policy and the Bureau for A strong participatory approach, involving Crisis Prevention and Recovery). concerned stakeholders is envisaged. The identification of the stakeholders, including „„ Scoping mission: A mission to Tajikistan government representatives of ministries/ in order to: agencies, civil society organizations, private ƒƒ Identify and collect further documentation sector representatives, UN organizations, multilateral organizations, bilateral donors, and ƒƒ Validate the mapping of the country beneficiaries will be carried out. To facilitate programmes this approach, the ADR will include a process ƒƒ Get key stakeholder perspectives on key of stakeholder mapping that would include both issues that should be examined UNDP direct partners as well as stakeholders who do not work directly with UNDP. ƒƒ Address logistical issues related to the main mission including timing 5. Evaluation process ƒƒ Identify the appropriate set of data collection and analysis methods The ADR process will follow the ADR Guidelines, according to which the process ƒƒ Address management issues related can be divided in three phases, each including to the rest of the evaluation process several steps. including division of labour among the team members Phase 1: Preparation ƒƒ Ensure the country office and key stakeholders understand the ADR „„ Desk review: Initially carried out by the objectives, methodology and process EO (identification, collection and mapping of relevant documentation and other data) The Task Manager will accompany the Team and continued by the evaluation team. Leader on the mission. This will include general development of related documentation to the specific „„ Inception report: An inception report will country as well as a comprehensive overview be prepared by the evaluation team leader. of UNDP programme over the period This will include the evaluation design being examined. and plan—background to the evaluation, key evaluation questions, detailed method, „„ Stakeholder mapping: A basic mapping of information sources and instruments and stakeholders relevant to the evaluation in the tools for data collection and analysis, and country will be carried out. These will include the format for reporting. state and civil society stakeholders and go beyond UNDP partners. The mapping exercise will also indicate the relationships between different sets of stakeholders.

68 ANNEX I. TERMS OF REFERENCE Phase 2: Conducting ADR and level. It may be necessary to incorporate Drafting Evaluation Report some significant comments into the final evaluation report (by the Evaluation „„ Main ADR mission: The mission involves Team Leader.) a three-week country visit by the indepen- dent Evaluation Team and will focus on data collection and validation. An Phase 3: Follow-up important part of this process will be an Entry Workshop (possibly more than one) „„ Management response: The UNDP where the ADR objectives, methods and Associate Administrator will request process will be explained to stakeholders. relevant units (in the case of ADR, usually During the Scoping Mission the number of the relevant country office and Regional projects and programmes to be visited will Bureau) to jointly prepare a management be identified. The team will visit signifi- response to the ADR. As a unit exercising cant project/field sites as identified in the oversight, the Regional Bureau will be scoping mission. responsible for monitoring and overseeing the implementation of follow-up actions in „„ Analysis and reporting: The information the Evaluation Resource Centre. collected will be analysed in the draft ADR report by the Evaluation Team within three „„ Communication: The ADR report and weeks after the departure of the team from brief will be widely distributed in both hard the country. and electronic versions. The evaluation report will be made available to the UNDP „„ Review: The draft will be subject to: factual Executive Board by the time of approving corrections and views on interpretation by a new Country Programme Document. It key clients (including the UNDP country will be widely distributed in Tajikistan and office, Regional Bureau for Europe and at UNDP Headquarters, and copies will be the CIS, and government); a technical sent to evaluation outfits of other interna- review by the EO; and a review by external tional organizations as well as to evaluation experts. The EO will prepare an audit trail societies and research institutions in the to show how these comments were taken region. Furthermore, the evaluation report into account. The Team Leader, in close and the management response will be cooperation with the EO Task Manager, published on the UNDP website.90 shall finalize the ADR report based on these final reviews.

„„ Stakeholder meeting: A meeting with the key national stakeholders will be organized to present the results of the evaluation and examine ways forward in Tajikistan. The main purpose of the meeting is to facilitate greater buy-in by national stakeholders in taking the lessons and recommendations from the report forward and to strengthen the national ownership of development processes and the necessary accountability of UNDP interventions at the country

90 Available online at www.undp.org/eo

ANNEX I. TERMS OF REFERENCE 69 The time-frame and responsibilities for the evaluation process are tentatively as follows:

Activity Estimated date Collection and mapping of documentation by the Research Assistant May Desk review by the Evaluation Team June Scoping mission to [Dushanbe] June-July Inception report and full ADR Terms of Reference July The following are tentative and will be firmed during the scoping mission in consultation with the country office and the government: Main ADR mission to [Tajikistan] August Submission of First Draft Report September Comments from EO and Advisory Panel September Submission of Second Draft Report September Factual corrections from country office, Regional Bureau, Government October Issuance of Final Report October Stakeholder workshop November

6. Management arrangements „„ Consultant Team Specialist, who will provide the expertise in the core subject areas of the UNDP evaluation, and be responsible for drafting The UNDP EO Task Manager will manage the key parts of the report evaluation and ensure coordination and liaison „„ with the Regional Bureau for Europe and the National Consultant, who will undertake data CIS, other concerned units at Headquarters collection and analyses at the country level, as level, and at the Tajikistan country office. The well as support the work of the missions EO will also contract a Research Assistant to „„ Other members as appropriate facilitate the initial desk review and a Programme Assistant to support logistical and administrative The Team Leader must have a demonstrated matters. The EO will meet all costs directly capacity in strategic thinking and policy advice related to the conduct of the ADR. These will and in the evaluation of complex programmes include costs related to participation of the in the field. All team members should have Team Leader, international and national consul- in-depth knowledge of development issues in tants, as well as the preliminary research and the Tajikistan and the region. issuance of the final ADR report. EO will also cover costs of any stakeholder workshops as part The evaluation team will be supported by a of the evaluation. Research Assistant based in the Evaluation Office in New York. The Task Manager of The Evaluation Team the Evaluation Office will support the team in designing the evaluation, will participate in the The team will be constituted of three members: scoping mission and provide ongoing feedback „„ Consultant Team Leader, with overall for quality assurance during the preparation responsibility for providing guidance and of the inception report and the final report. leadership, and in coordinating the draft and Depending on the needs, the EO Task Manager final report might participate in the main mission too.

70 ANNEX I. TERMS OF REFERENCE The evaluation team will orient its work by The final report of the ADR to be produced United Nations Evaluation Group (UNEG) by the Evaluation Team will follow the norms and standards for evaluation and will following format: adhere to the ethical Code of Conduct.91 Chapter 1: Introduction Tajikistan Country Office The Tajikistan country office will take a lead Chapter 2: Country Context role in organizing dialogue and stakeholder meetings on the findings and recommendations, Chapter 3: The UN and UNDP in the Country support the evaluation team in liaison with the key partners, and make available to the team all necessary information regarding UNDP activities Chapter 4: UNDP Contribution to National in the country. The office will also be requested Development Results to provide additional logistical support to the evaluation team as required. The country office Chapter 5: Strategic Positioning of the UNDP will contribute support in kind (for example Country Programme office space for the Evaluation Team) but the EO will cover local transportation costs. Chapter 6: Conclusions, Lessons and Recommendations 7. Expected outputs The expected outputs from the Evaluation Detailed outlines for the Inception Report, main Team are: ADR report and evaluation brief will be provided „„ An inception report (maximum 20 pages) to the evaluation team by the Task Manager.

„„ A comprehensive final report on the Tajikistan The drafts and final version of the ADR report ADR (maximum 50 pages plus annexes) will be provided in English. The drafts and final „„ A two-page evaluation brief version of the ADR report will be provided in the „„ A presentation for the Stakeholder Workshop official language of Tajikistan.

91 UNEG, ‘The UN Evaluation Group Guidelines: Norms for Evaluation in the UN System and Standards for Evaluation in the UN System’, April 2005.

ANNEX I. TERMS OF REFERENCE 71 72 ANNEX I. TERMS OF REFERENCE Annex 2 LIST OF pERSONS CONSULTED

UNDP in New York Nazira Boronshoeva, Deputy Country Manager, BOMCA Programme Douglas Gardner, Deputy Assistant Diana Ismailova, Gender Specialist, Administrator and Deputy Director, Community Programme Bureau of Development Policy, UNDP William Lawrence, Project Manager, BOMBAF. Oliver Adam, BDP, UNDP New York Tahmina Anvarova, Programme Lubna Baqi, Associate Director, Finance Analyst UN Development Operations Coordination Office Sukhrob Kaharov, Country Manager, BOMCA/CADAP. Seder Bayriyev, Programme Specialist, Europe and CIS Programme and Operation Mubin Rustamov, Senior Economic Adviser, Support Cluster, Bureau of crisis Prevention UNDP Tajikistan and Recovery Khusrav Sharifov, Project Manager, Disaster Oliver Adam, BDP, UNDP New York Risk Management Programme Blerta Cela, BDP, Gender Brian Donaldson, Early Recovery Advisor. Lori Lee, Senior Programme Adviser, Nargis Shomahmadova, Programme Associate, HIV/AIDS Group, BDP UNDP Tajikistan Lenni Montiel, BDP, Governance Siltaly Alidodkhonov, Malaria Grant Manager Christine Roth, Director for Central Asia in Ulugbek Aminov, Prevention and Scale-up UNDP RBEC Programme Officer (HIV/AIDS) Liliana Ramirez-Benischek, Policy Specialist, Zumrad Maksumova, Tuberculosis Grant Manager UN Development Operations Sayora Grezova, Training Coordinator, Disaster Coordination Office Risk Management Programme Bharati Silawal, BDP, Gender Muzafar Muzafarov, Monitoring and Sanjar Tursaliev, Programme Specialist, Evaluation Coordinator Central Asia, RBEC. Tanzila Ergasheva, Specialist, Jennifer Colville, Capacity Diagnostics Monitoring and Evaluation Coordinator, Capacity Development Vali Musaev. TA Project Coordinator. Group, BDP. Saleban Omar, GIU Manager on HIV/AIDS, Tuberculosis and Malaria UNDP in Tajikistan Gafur Kasynov, Water Engineer Firuz Khamidov, OIC/Economic Adviser Michael P. Jones, UN Resident Coordinator Olim Kurbonov, Civil Engineer Farid Garakhanov, Deputy Resident Representative Mohira Nozomiva, Governance Adviser Sukhrob Khojimatov, Assistant Resident Saadi Ruhnidinov, Programme Analyst Representative, Operations Mirzo Olimov, Project Coordinator, Sukhrob Khoshmukhamedov, Assistant Resident Specialist in Budgeting Representative, Programme Coordinator Umed Shomirov, Admin/Finance Associate

ANNEX 2. LIST OF PERSONS consulted 73 Daler Javadov, Area Manager M. Ahunov, Head of Department of Foreign Mukhbira Akhmedova, Administrative/ Economic Relation, Agency on Land Management, Geodetic and Cartographic Financial Associate Haibullo Latipov, Head of Committee of Parviz Akramov, Area Manager Emergency Situations Diana Ismailova, Gender Specialist Azamjon Mirzoev, Deputy Minister, Kibriyo Jumaeva, Programme Analyst, Ministry of Health Governance A. Aliphbekov, Leading Inspector, Muzaffar Bahodurov, Economic Drug Control Agency Development Adviser Muzafar Khuseynov, Head of Department, Bakhrom Faizullaev, Governance Adviser Department of International Organisations, Ministry of Foreign Affaires of the Republic Jamshsed Kadirkulov, Programme Analyst of Tajikistan Kurbonali Abdualimov, Water Engineer D. Kumsanov, Leading Specialist OVEC, Jumaklou Boboknov, Administrative/ Ministry of irrigation and water resources of Financial Associate the Republic of Tajikistan Manizha Boboeva, Programme Analyst B. Muhammoudieva, Deputy Head, State Statistics Abdullo Guliev, Project Manager, Agro-governance Committee of the Republic of Tajikistan Abdokholik Halimov, Agro-processing Adviser T. Murodov, Department on International Cooperation, Ministry of Agriculture of the Munavar Hamidov, Legal Expert Republic of Tajikistan Aslom Pochaev, Economic Development Adviser N. Murzohonova, Head of the Analytical Lobar Sattorova, Governance Adviser Department, Informational and Analytical Centre under the State Committee on Sojidamo Tagaeva, Project Assistant Disaster and Civil Defence Firdavs Fayzulloev, GEF Project Manager V. Musoev, Project Coordinator, State Mukhtor Hasanov, Programme Analyst Committee of Investment of the Republic of Tajikistan Umed Shomurodov, Economic Adviser B. Saidov, Deputy Head of Legal and Fazliddin Samandarov, Area Manager International Cooperation Department, Buran Urokov, Global Environment Facility, Ministry of Internal Affairs of the Republic FFS consultant of Tajikistan Hasan Yusupov, Local Governance Adviser Suhrob Sharifov, Director, Centre for Strategic Research Ismail Zokirov, Agro-technologist Olimjon K. Bobokalonov, Deputy Director, Centre for Strategic Research Government institutions Emin N, Sanginov, Deputy Minister, Ministry of Labor and Population Social Protection Abdugafor A. Rakhmonov, Deputy Minister, Ministry of Economic Development and N. Skororov, National Centre for Biodiversity Trade and Bio-security of the Republic of Tajikistan Alisho Shomahmadov, Head Information Y. Vahobov, Head of Department, State Migration Agency, Ministry of Labor and Management and Analytic Centre, Social Protection of Population of the Committee of Emergency Situations and Republic of Tajikistan Civil Defense, Government of Tajikistan Jonmahmad Rajabov, Director, Tajikistan Mine S. Abrorov, Leading Specialist, Ministry of Action Centre Economic Development of the Republic of Tajikistan Yusuf Yusufbekov, Centre for Strategic Research

74 ANNEX 2. LIST OF PERSONS consulted Lutful Kabir, Capacity Development Dilbar Gafarova, Programme Manager, CARE Consultant, Tajikistan Mine Action Centre Francisco Galindo-Velez, United Nations High Muzafar Khuseynov, Head of International Orgs Commissioner for Refugees Representative Department, Ministry of Foreign Affairs Jariya Hoffman, Senior Economist, World Bank Aziz Odinaev, Director, Blood Transfusion Tahmina Karimova, National Coordinator, Centre, Kulyab International Labour Organization Amonullo Abdulhaev, First Deputy Head Nisso Kasymova, Young People Health and of Hukumat, Jergatol District Development Officer, UNICEF Nozim Abdulhakov, Head of Dahana Jamoat, Ruth Leano, Deputy Representative, UNICEF Kulyab City Xuelin Liu, Country Economist, Asian M. Abdurofiev, Deputy Head of Hukumat, Development Bank Isfara District Maria Melbing, Programme Officer, SIDA Shodiqul Bobojonov, Head of Hukumat, Ayni District Gisela Nauk, Coordinator, Food and Agriculture Organization Arhuv Duhar, Specialist, Economic Department, Hukumat, Ayni District Rodney Phillips, Officer in Charge, UNICEF Eshburi Eshankulov, Head of District Shuhrat Rajabov, Programme Manager, Hukumat, Jilikul District Department for International Development Zebohon Himatova, Deputy Head of Hukumat, Santino Severoni, Head of Representation in Tojikabad District Tajikistan, WHO Azizov Ibrohim, Head of Hukumat, Zafar Khotamov, Economics Officer, Shurobod District Asian Development Bank Muharram Juraeva, Deputy Head of Goulsara Pulatova, Snior Advisor, UNISDR, Kistakuz Jamoat Central Asia Zaripov Pirmat, Deputy Head of Hukumat, Abdurahim Muhidov, Project Coordinator, Kulyab District HFA, UN ISDR Sohibnazar Rahmonov, Deputy Minister, Ilija Todorovic, Representative, UNHCR Ministry of Health Dylan Winder, Head, Department for Olimjon Safarov, Deputy Head of Hukumat, International Development Tajikistan Jergatol District Frederik Coene, Project Manager, Mahmadsharif Tolibov, Chairman, Rasht District European Union Uzbik Zyrov, Deputy Head, Department Peter Thominski, Program Advisor, responsible for social protection and labour, German Technical Cooperation Ayni District Anvar Sabzaliiev, National Programme Officer, Swiss agency for Development and Cooperation. Donors and international organizations Civil society organizations, Richard Lewington, Chief Technical Advisor, Non Government Organizations, BOMCA/CADAP International Non Government Charlotte Adriane, Charge D’Affaires, Organizations European Union Nazira P. Artykova, Liaison Officer, WHO Yodgor Fayzov, Chief Executive Officer, Aga Khan Foundation Nargis Azizova, UNIFEM Munir Mirali, Resident Representative, Carolyn Bryan, Country Director, USAID Aga Khan Foundation

ANNEX 2. LIST OF PERSONS consulted 75 Dilbar Gafarova, Program Manger, Ilhom Ismoilov, Head, Vakhsh Microfin Fund, Care Tajikistan Kurghon-Teppa Marydean Anne Purves, Country Director, Sulaimon Mahmadov, Head of JRC, Mission East. Shirinchashma Jamoat Abdurazoq Alimardonov, Law Programme Nuriddin Mahmudov, Head of Association of Coordinator, Tajik Branch of Open society, Dehkan Farms, Yol Jamoat, Shurobod District Institute Assistance Foundation. Uysuf Makhodov, Executive Director, Dilovar Munavvarov, Finance Director, Regional Micro Fund “Imdodi Kutal”, Tajik Branch of Open society, Kulyab District Institute Assistance Foundation. Bahodur Mamasaidov, Head of tool bank, Ilhom Abdulloev, Grants Manager, Komsomol Jamoat, N. Khusrav District Tajik Branch of Open society, Institute Assistance Foundation. Ainiddin Mirzoev, Director, LLC “Drinking Nicole Stol, Regional Representative, water”, Jamoat “Gulshan”, Farkhor District Central Asia, Caritas Gadoi Naimov, Head of Association of Margarita Khegal, Expert on Gender Issues Dekhkan Farms, Kumsangir Jamoat, Kumsangir District Zarina Bazidova, executive Director, Panorama Gafor Najmiddinov, Director, Yognuk Mini Alexei Korobitsyn, TB Programme Manager, Fruit and Vegetable Processing, Project “HOPE” Shurobod District Afghon Abdujaborov, Head of JRC “Navdi”, Navdi Jamoat. Rasht District Matluba Rajabalieva, Chairperson of JRC “Gharm”, Gharm Jamoat (Rasht District) Nizom Abdujalilov, Head of JRC “Muksu”, Jirgital District Avtandil Raupov, Director, Agro-ecological Information Centre, Jergatol District Abdumanon Abdusalomov, Head of JRC, Kabodien District Safarali Safarov, Head of Drinking water Organization, Rumi District Sojida Asoeva, Head of JRC, Pyanj Jamoat, Kumsangir District Bobo Sanginov, Head of Business Advisory Khudoinazar Bukhorov, Head of JRC, Centre, Ainy District Sarmantoy Jamoat, Pyanj District Gazalsho Sherov, Manager, Micro Loan Fund Sharifboy Churgosiev, Director of Institution “Faizi Surkhob” the hospital, Ayni Mehribony Sodikova, Head of Kolkhozabad Mariam Davlatova, Chief Editor, Tajik Women DDC, Rumi District Magazine “Window to the World” Shuhrat Shukurov, Accountant, JRC, Ibodullo Fattoev, Chairmen, DDC, Ayni District Isfara District Shurova, NGO “Uzbokoy Or” Tojiddin Giesov, Head of JRC, Pildon Jamoat, Jergotal District Mushkinisso Umarova, Head of JRC, Dahana Jamoat, Kulyab Sairambi Ismatova, entrepreneur and Jamoliddin Sirojev, farmer, Jamoat Zargar, Hojiedgor Yuldoshev, Head of Dehkan Farm, Bokhtar District Sayod Jamoat, Shaartuz District

76 ANNEX 2. LIST OF PERSONS consulted Annex 3 Resource mobilisation 2005-2008 (USD)

Donor 2005 2006 2007 2008 DFID 207,780 6,256,156 - 2,983,730 ADB - - - 200,000 EU 2 212 000 4 615 640 9 853 794 4,198,256 GFATM 5,383, 510 8,100,000 11,416,808 2,653,361 CIDA - 250,000 1,000,000 267,951 CERF - - - 2,171,600 Centre for Development and Environment 31,993 Government of Canada - 250,000 - SIDA 1 191,546 883,388 BCPR - 550,471 812,257 Government of Finland - 71,250 - OCHA 42,000 - - GEF 1,485,000 55,000 975,000 621,200 SDC 3,000 - 75,400 746,087 International Trust Fund 6,000 World Bank 1,595,350 - Private Sector 50,000 Democratic Governance Trust Fund 200,000 200,000 130,000 150,000 USAID - - 192,857 Government of Germany 50,000 - 39,447 70,000 Government of Belgium 23,316 Irish Government 74,000 OHCHR - - 78,794 ILO - - 370,000 UNEP/NATO 137, 000 - - OSI 125,000 Swedish Rescue and Research Agency - - - 624,167 Government of UK 2,639,500 - 1,494,876 Total 15,146,686 21,231,905 26,564,234 9,672,977*

* Data is as of August 2008, total amount fundraised in 2008 is 14,992,806. Notes: ADB indicates Asian Development Bank; BCPR, Bureau for Crisis Prevention and Recovery; CERF, Central Emergency Response Fund; CIDA, Canadian International Development Agency; DFID, Department for International Development; EU, European Union; GEF, Global Environment Facility; GFATM, Global Fund to Fight HIV/AIDS, Tuberculosis and Malaria; ILO, International Labour Organization; OCHA, Office for the Coordination of Humanitarian Affairs; OHCHR, Office of the High Commissioner for Human Rights; OSI,; SDC, ; SIDA, Swedish International Development Agency; UNEP, United Nations Environment Programme.

ANNEX 3. resource mobilisation 77 78 ANNEX 3. resource mobilisation A S S E S S M E N T O F D E V E L O P M E N T R E S U L T S

ASSESSMENT OF DEVELOPMENT RESULTSRepublic of EVALUATION OF UNDP CONTRIBUTION Tajikistan T a j

i effectiveness k HUMAN DEVELOPMENT COORDINATI istanefficiency COORDINATION AND PARTNERSHIP sust NATIONAL OWNERSHIP relevance MANAGING FOR sustainability MANAGING FOR RESULTS responsivene AN DEVELOPMENT responsiveness NATIONAL OWN NATIONAL OWNERSHIP effectiveness COORDINATI United Nations Development Programme efficiency sust Evaluation Office COORDINATION AND PARTNERSHIP One United Nations Plaza New York, NY 10017, USA NATIONAL OWNERSHIP relevance MANAGING FOR Tel. (212) 906 5059, Fax (212) 906 6008 Internet: http://www.undp.org/eo sustainability MANAGING FOR RESULTS responsivene HUMAN DEVELOPMENT effectiveness COORDINATI