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Evaluation of Norwegian Development Cooperation with Afghanistan 2001-2011

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Evaluation of Norwegian Development Cooperation with Afghanistan 2001-2011 Evaluation of Norwegian Development Cooperation with Afghanistan 2001-2011 Final Report Table of contents List of Tables ix List of Figures xi List of Acronyms xiii Executive Summary xv 1 Introduction 1 1.1 Purpose and Objectives 1 1.2 Evaluation Questions 1 1.3 Main Users 1 1.4 Scope of Work 2 2 Methodology 3 2.1 Approach 3 2.2 Data collection and analysis methods 4 2.3 Organisation 6 2.4 Phasing 7 2.5 Challenges and Major Constraints 8 3 Policy Analysis 11 3.1 Introduction 11 3.2 The Context in Afghanistan 11 3.3 International agreements and policy on Afghanistan 13 3.4 Norwegian Policy on Afghanistan 17 3.4.1 Foreign Policy 17 3.4.2 Humanitarian Policy 20 3.4.3 Development Policy 23 3.5 Main actors 30 3.6 Towards a theory of change 32 3.7 Conclusion 34 4 Portfolio Analysis 37 4.1 Introduction 37 4.2 Role of Norwegian Actors 38 4.3 Partners, Channels and Priorities 40 4.3.1 Partners 40 4.3.2 Channels 41 4.4 Priorities 43 4.5 Conclusions 45 5 Afghanistan Reconstruction Trust Fund 47 5.1 Introduction 47 5.2 Overview of ARTF 47 5.3 Norwegian Contribution to ARTF 48 Evaluation of Norwegian Development Cooperation with Afghanistan 2001-2011 v 5.4 ARTF Governance 50 5.5 ARTF Financing Strategy 51 5.6 The Recurrent Cost Window 52 5.7 The Investment Window 53 5.7.1 Results from the National Solidarity Program (NSP) 54 5.7.2 Results from the Education Quality Improvement Program (EQUIP) 56 5.7.3 Results from the National Institute of Management and Administration (NIMA) 59 5.8 ARTF Implementation Mechanisms 59 5.9 ARTF Oversight and Monitoring 60 5.10 ARTF Administration costs 62 5.11 Conclusions 63 6 Development Assistance 67 6.1 Introduction 67 6.2 Governance 67 6.2.1 Governance portfolio analysis 67 6.2.2 Analysis of selected governance projects 70 6.2.3 Conclusions on Governance 76 6.3 Education 78 6.3.1 Education Portfolio Analysis 78 6.3.2 Analysis of selected education projects 80 6.3.3 Conclusions on Education 83 6.4 Community Development 83 6.4.1 Community development portfolio analysis 83 6.4.2 Analysis of selected community development projects 84 6.4.3 Conclusions on Community Development 88 6.5 Gender Equality 88 6.5.1 Gender portfolio analysis 88 6.5.2 Analysis of selected projects 89 UN Women (UNIFEM) 89 6.5.3 Conclusions 91 6.6 Conclusions 92 7 The Norwegian Model in Faryab Province 95 7.1 Introduction 95 7.2 Background to Norway’s Involvement in Faryab 95 7.2.1 Norway’s Engagement in the PRT 95 7.2.2 Strategy in Faryab 97 7.3 Development Portfolio Analysis 101 7.4 Results of the Funded Programs 102 7.4.1 Government-implemented National Priority Programs 102 7.4.2 Parallel Programs 103 7.4.3 Norwegian Implemented Projects 105 7.5 Results against the Faryab Strategy 106 7.5.1 Separation of Military and Civilian Assistance with coordination of respective roles107 7.6 Development of Models of Afghanisation 109 7.7 Conclusion 113 vi Evaluation of Norwegian Development Cooperation with Afghanistan 2001-2011 8 Conclusions 117 8.1 Relevance 117 8.2 Effectiveness 118 8.3 Efficiency 119 8.4 Sustainability 120 8.5 Impact 120 Annex 1 Terms of Reference 122 Annex 2 Selected documents consulted 123 Annex 3 Access to archives 133 Annex 4 People Interviewed 135 Evaluation of Norwegian Development Cooperation with Afghanistan 2001-2011 vii List of Tables Table 0.1 Overview of main partners xvi Table 3.1 External Assistance to Afghanistan, Top 15 (figures in USD millions) 17 Table 3.2 Foreign, Development Policy and Strategy points over time 28 Table 5.1 Norwegian Contribution to the ARTF from March 2002 to March 2012, as of January 20, 2012 49 Table 5.2 ARTF Incentive Programme 52 Table 6.1 Overview of development assistance per channel and per sector 67 Table 6.2 Overview of the Governance Portfolio 68 Table 6.3 Overview of the sub national governance and institution building sub sector 69 Table 6.4 Selected governance projects 71 Table 6.5 Overview of outputs from selected governance projects 72 Table 6.6 Funding of assistance in the Afghan Education sector by partner and type of project 78 Table 6.7 Education objectives, inputs and expected outputs 79 Table 6.8 Overview of Selected Education Projects 80 Table 6.9 Allocation of grants by partner across all years 2001-09 83 Table 6.10 Use of policy-marker ”Gender equality” for development assistance managed by the Norwegian embassy in Kabul, 2007-2011 (NOK 1000) 89 Table 6.11 Value of gender projects 2001-2010 in mill. NOK 89 Table 7.1 Projects and implementing partners in Faryab 101 Table 7.2 Project allocations Faryab 2006-2009, million NOK 101 Evaluation of Norwegian Development Cooperation with Afghanistan 2001-2011 ix List of Figures Figure 2.1 Evaluation criteria addressed in the various chapters 9 Figure 4.1 Norwegian development assistance to Afghanistan 2001-2011 (NOK) Million 37 Figure 4.2 Value of grants per extending Agency 2001-2010 38 Figure 4.3 Share of Total Value of Grants per Extending Agency per Year, 2001 - 2010 39 Figure 4.4 Total Grant Value Share per Disbursement Channel (2001-2010) 41 Figure 4.5 Share of value of grants per disbursement channel and year (2001-2010) 42 Figure 4.6 Total grants by sector 2001-2010, based on reported DAC categories 44 Figure 4.7 Share of Total Grants per Sector Per Year, DAC Classification, 2001 - 2010 44 Figure 5.1 Summary of Donor Contributions to the ARTF, 2002 - 2011 48 Evaluation of Norwegian Development Cooperation with Afghanistan 2001-2011 xi List of Acronyms ACTED Agency for Technical Cooperation and Development AIHRC Afghanistan Independent Human Rights Commission AKDN Agha Khan Development Network AKF Aga Khan Foundation ANDS Afghan National Development Strategy ANP Afghan National Police AREU Afghanistan Research and Evaluation Unit ARTF Afghanistan Reconstruction Trust Fund ASGP Afghanistan Sub National Governance Programme AWSDC Afghan Women Skills Development Center BEGE Basic Education and Gender Equality CD Community Development CDC Community Development Council CERF Central Emergency Response Fund CERP Commanders Emergency Response Program civmil civilian military CMI Chr. Michelsen Institute DAC Development Assistance Committee DACAAR Danish Committee for Aid to Afghan Refugees DDA District Development Authority DIM Direct Implementation Modality DoE Department of Education DRRD Department for Rural Rehabilitation and Development ELECT Enhancing Legal and Electoral Capacity for Tomorrow EQUIP Education Quality Improvement Program EUPOL European Union Police Mission FAO Food and Agriculture Organisation FOKUS Forum for Women and Development FP Facilitating Partner GAP GAP funding (between Emergency and Development) IARCSC Independent Administrative Reform and Civil Service Commission ICLA Information Counselling & Legal Assistance ICRC International Committee of the Red Cross IDLG Independent Directorate of Local Governance IDP Internally Displaced Person IEC Independent Elections Commission IIEP International Institute of Educational Planning IMF International Monetary Fund ISAF International Security Assistance Force LOFTA Law and Order Trust Fund M&E Monitoring and Evaluation MDTF Multi-donor trust Fund MFA Ministry of Foreign Affairs MoE Ministry of Education MoF Ministry of Finance MoRR Ministry of Refugees and Repatriation Evaluation of Norwegian Development Cooperation with Afghanistan 2001-2011 xiii MoWA Ministry of Women’s Affairs MRRD Ministry for Rural Rehabilitation and Development MTR Mid-Term Evaluation NABDP National Area Based Development Programme NAC Norwegian Afghanistan Committee NAPWA National Action Plan for Women in Afghanistan NATO North Atlantic Treaty Organization NCA Norwegian Church Aid NGO Non-governmental Organisation NIM National Implementation Modality NIMA National Institute for Management and Administration Norad Norwegian Agency for development Cooperation NOREF Norwegian Peacebuilding Resource Centre NPP National Priority Program NRC Norwegian Refugee Council NSP National Solidarity Program O&M Operation and Maintenance OAG Office of the Auditor General OCHA Office for Coordination of Humanitarian Affairs ODA Official Development Assistance OECD Organisation for Economic Co-operation and Development OEF Operation Enduring Freedom OSCE Organization for Security and Co-operation in Europe PRT Provincial Reconstruction Team R&R Rest and Recreation SIGAR Special Inspector general for Afghanistan Reconstruction SRSG Special Representative of the Secretary General SSR Security Sector Reform TOR Terms of Reference TVET Technical Vocational Education and Training UNAMA United Nations Assistance Mission in Afghanistan UNDP United Nations Development Programme UNIFEM/UN Women United Nations Fund for Women UiO University of Oslo UNHCR UN Refugee Agency UNICEF United Nations Children's Fund UNOCHA UN Office for Coordination of Humanitarian Affairs WASH Water Sanitation and Hygiene Education WB World Bank WFP World Food Programme YEP Youth Education Package xiv Evaluation of Norwegian Development Cooperation with Afghanistan 2001-2011 Executive Summary Purpose and Approach of the Evaluation The purpose of the evaluation is to assess the contribution of Norwegian development cooperation with Afghanistan from 2001 to 2011. It is primarily a summative evaluation and concludes with evaluation against the DAC criteria of relevance, effectiveness, efficiency and sustainability, with the main focus on relevance and effectiveness. The central evaluation question concerns the contribution Norway has made to sustainable peace, improved governance and reduced poverty in Afghanistan. The object of evaluation is all direct bilateral and multilateral development cooperation assistance from Norway to Afghanistan during the period 2001-2011, consisting of more than 800 agreements. Therefore, scoping was essential after a broad analysis of the policy and portfolio. We based our project selection on the documentation of a portfolio for 2001-2009, rather than a full list for 2001- 2011.
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