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OA Mozambique Final EPE Report 20170331 OXFAM AMERICA End of Project Evaluation Report ACCOUNTABILITY THROUGH ACTIVE CITIZENSHIP: IMPROVING PETROLEUM GOVERNANCE IN GHANA, MOZAMBIQUE & TANZANIA END OF PROJECT EVALUATION REPORT – MOZAMBIQUE Chiqui Arregui March 2017 As part of our commitment to accountability and learning, Oxfam will share conclusions and recommendations from this report. Internally we will share with relevant stakeholders, ensuring that they have an opportunity to participate in discussion of those results in meaningful ways. We will also publish the evaluation reports on our website in accessible language. As a rights-based organization, accountability, particularly to the communities we seek to serve, is of the highest importance to us. For Oxfam, accountability requires Oxfam to regularly and honestly assess the quality of its work, share and learn from its findings with primary stakeholders, and apply that learning in future work. This is an End of Project Evaluation for Oxfam America’s Program Accountability through Active Citizenship: Improving Petroleum Governance in Ghana, Mozambique and Tanzania. The program has been operating in Ghana, Mozambique and Tanzania since July 2014. The major activities for producing this report took place in January and February 2017. The study was carried out by Chiqui Arregui and reflects the findings as reported by them as validated with stakeholders. The findings, interpretations, and conclusions expressed in this report are entirely those of the author(s) and should not be attributed in any manner to Oxfam America Inc. or its affiliated organizations, or to members of its Board of Executive Directors or the countries they represent. The assessment was managed by Kim Miller, Monitoring, Evaluation & Learning Advisor, Extractive Industries Global Program, and commissioned by Keith Slack, Extractive Industries Global Program Director from Oxfam America. For additional information regarding the study Terms of Reference, please refer to the report appendices. 2 CONTENTS Abbreviations and Acronyms 4 Executive Summary 5 1. Introduction 8 2. Methodology 10 3. Findings 11 3.1 Outcome 1 12 3.2 Outcome 2 16 3.3 Outcome 3 21 3.4 Program Management 22 3.5 OECD Development Criteria 23 3.6 Key EPE Questions Identified by Country Office 24 4. Conclusions and Recommendations 24 Annexes Annex 1: Terms of Reference 27 Annex 2: Bibliographic References 31 Annex 3: Institutions Interviewed 34 Annex 4: Interview Guidelines 35 Tables Table 1: Indicators used in the Baseline, MTA and EPE in Mozambique 8 Table 2: Interviewees by gender 10 Table 3: Interviewees by stakeholder type 10 Table 4: Knowledge of affected communities in Palma District 13 Table 5: Participation of affected communities in Palma District in O&G governance processes 14 Table 6: Community knowledge about gender impacts of extractives in Palma District 15 Table 7: Community participation in O&G research, debate and analysis in Palma District 16 Table 8: Advocacy capacity of CSOs and the media on O&G issues 17 Table 9: Capacity of the media to engage in constructive debates around O&G 20 Table 10: Assessment of Program Performance against OECD Criteria 23 3 ABBREVIATIONS AND ACRONYMS AAJC Associação de Apoio Jurídico às Comunidades AMA Associação do Meio Ambiente ASPACADE Associação de Paralegais de Cabo Delgado ASPALMA Associação de Paralegais de Palma CCM Conselho Cristão de Moçambique CIP Centro de Integridade Pública CSO Civil Society Organization CTA Confederação de Associações Económicas de Moçambique CTV Centro Terra Viva EPE End of Project Evaluation FID Final Investment Decision IANRA International Alliance for Natural Resources in Africa LNG Liquefied Natural Gas MEF Ministério de Economia e Finanças / Ministry of Economy and Finance MIC Ministério de Indústria e Comercio / Ministry of Industry and Commerce MITADER Ministério de Terra, Ambiente e Desenvolvimento Rural / Ministry of Land, Environment and Rural Development MTA Mid-Term Assessment NGO Non Governmental Organization NORAD Norwegian Agency for Development Cooperation O&G Oil and Gas PNSCRNIE Plataforma Nacional da Sociedade Civil de Recursos Naturais e Indústria Extractiva / National Civil Society Platform on Natural Resources and Extractive Industries RAP Resettlement Action Plan WLSA Women and Law in Southern Africa (in Mozambique) WoMIN The African Gender and Extractives Alliance ACKNOWLEDGEMENTS The consultant would like to extend her thanks to Oxfam staff, civil society partner representatives, and other stakeholders who made time in their busy schedules to share their views on the state of accountability and active citizenship in the context of extractive industries in Mozambique. Interviewees provided invaluable information on the value of program interventions, offered suggestions for program improvement and shared their views on current affairs in Mozambique. To all of them, my sincere gratitude. Special thanks go to Kimberley Miller, Julie Kim and Hélder Paulo for their openness, critical spirit and continuous engagement in all phases of the assignment. 4 EXECUTIVE SUMMARY The first 3-year NORAD grant for the program Accountability through Active Citizenship: Improving Petroleum Governance in Ghana, Mozambique and Tanzania has ended. Therefore, this End of Project Evaluation (EPE) has been conducted. In Mozambique, the program aims to enable the active and informed participation of communities, Civil Society Organizations (CSOs) and the media in the emerging Oil and Gas (O&G) sector. The program was designed to meaningfully contribute to the development of a gender in extractives agenda. Geographically, the program focus was in two areas of the country: Northern Inhambane, where gas has been produced since 2004 and the most northern district of the country – Palma – where large gas discoveries placed Mozambique in the global spotlight raising huge expectations in this poverty-stricken, donor-dependent country. The objective of the EPE is to analyze and document (i) progress of activities; (ii) results achieved; (iii) relevant contextual changes; (iv) program management practices and (v) put forth recommendations to support the extension of the program planned for 2017-2018. Also, the EPE assesses the program using OECD criteria1 as well as answers key EPE questions identified by the country office. The EPE involved 10 days of fieldwork, carried out in February 2017. A total of 27 people were interviewed from various stakeholder groups, including CSOs, media players, government and the private sector. Access to reports and material produced by partners and collaborators, as well as Internet searches and media articles provided contextual information on the dynamic nature of the context, which affect active citizenship in extractives and program progress. Prior to the start of the program many thought about the investments and challenges expected with Final Investment Decision (FID) and associated massive infrastructure and construction investments and a distorted impression that wealth was soon coming. Instead, FID is still pending and investment activity has stalled in Palma. Politically motivated assassinations were frequent and severe repression feared during the first two years of the program. Whilst awaiting the end of the armed conflict, Mozambique also faced unaccounted state debts, unleashing a huge financial national crisis affecting ordinary Mozambicans and creating a disturbing precedent that appears to be permeating the rest of society. Whilst Mozambique's needs and capacities are still vast, CSOs today are more capable on technical issues related to O&G and citizenship rights than before and this is reflected in their work. Communities (in general) are much more vocal and daring and do not hesitate to knock on the government´s door when unrightly treated. The media goes beyond only reporting events and is now much more critical than five years ago. The government and O&G companies are coming to realize the role played by CSOs beyond service delivery functions. It is evident that the program has contributed, albeit not alone, to increasing the knowledge and awareness of the complexities of O&G among communities, CSOs and media players in Mozambique. However, it is not possible to establish direct attribution lines between program interventions and the overall situation of accountability and citizenship in extractives in the country. In its last year of operations the program supported a few strategic interventions valued by Oxfam partners in the context of citizenship in extractives. The two main topics were: resettlement and distribution of government revenues from O&G to communities. Key findings are presented in line with program outcomes: 1 http://www.oecd.org/dac/evaluation/daccriteriaforevaluatingdevelopmentassistance.htm 5 Outcome 1 (Community Capacity) Findings: The program contributed to the establishment of mechanisms enabling information sharing, and the reporting of potential human and social rights abuses. Equally, the program exposed representatives of affected communities in Palma to potential effects of negatively managed resettlement programs and of participating in the first National Resettlement Seminar hosted by the government. In Northern Inhambane, communities received training on O&G economics with the view to strengthening their understanding of issues around the distribution of O&G benefits to communities and prepare them for engagement in other Oxfam supported activities. Outcome 2 (CSO and Media Capacities) Findings: Program results were
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