Chapter 3 UNDP CONTRIBUTION TO DEVELOPMENT RESULTS

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

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

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

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

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

n Core resources n Other resources 6

5

4 s e c r

u 3 o s e R 2

1

0 2004 2005 2006 2007 Year

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

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

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

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

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

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

Component / activity Execution Duration Budget US$

Component 1: Democratic Governance

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

Component 2: Administrative Governance

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

Component 3: Local Governance

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

Component 4: Economic Governance

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

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

Source: UNDP Republic of the Congo country office.

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

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

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

34 Comités Locaux D’évaluation des Projets.

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

Box 1. Strengthening Parliament

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

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

Box 2. Promoting women in politics

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

35 Cour des Comptes.

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

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

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

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

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

Project Execution Duration Budget (US$)

Community Action DEX 2000-2007 2.4 million

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

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

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

Source: UNDP Republic of the Congo country office.

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

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

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

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

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

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

Project Execution Duration Budget (US$ millions)

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

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

Rehabilitation of Rural Tracks DEX/AGEX 2002-2004 3.1

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

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

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

Source: UNDP Republic of the Congo country office.

37 Projet de Collecte des Armes pour le Développement.

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

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

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

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

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

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

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

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

Activity Execution Progress Budget modality (US$)

Component 1: Preparation of referential framework and capacity building

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

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

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

Establishment of an observatory and network on climate change DEX Pipeline

Component 3: Promotion and production of renewable energy

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

Production of renewable energy through solar kits DEX Cancelled

Component 4: Reduction of marine and coastal pollution risks

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

Component 5: Urban environment and living standards

Evaluation of urban pollution NEX

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

Source: UNDP Republic of the Congo country office.

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

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

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

Box 6. Preparation of referential frameworks and capacity building

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

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

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

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

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

38 CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS