Final Evaluation Report
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FINAL EVALUATION REPORT Project Number: AFG/G76 Project Title: Alternative Livelihoods, Capacity Building at National and Regional Level Country : Afghanistan External Evaluator Lenard Milich UNITED NATIONS OFFICE ON DRUGS AND CRIME Vienna – March 2009 1 Table of Contents List of Acronyms ............................................................................................................................................... iii Summary matrix of findings, supporting evidence, and recommendations.........................................................1 Executive Summary.............................................................................................................................................4 a) Description of the project ............................................................................................................................4 b) Major findings of the evaluation .................................................................................................................4 c) Lessons learned and best practices ..............................................................................................................5 I. Introduction .....................................................................................................................................................6 A. Background and Context of the Project..................................................................................................6 A.1. The AL Context in Afghanistan ..........................................................................................................7 A.2. UNODC’s Counterpart Ministry: An Overview of MCN and PDCN Functions and Capabilities ...10 B. Purpose and Scope of the Evaluation....................................................................................................14 C. Evaluation Methodology.......................................................................................................................14 D. Limitations to the Evaluation................................................................................................................15 II. Major Findings .............................................................................................................................................16 A. Immediate Objective 1: Capacity Building .............................................................................................16 B. Immediate Objective 2: Mainstreaming CN/AL Objectives....................................................................18 C. Immediate Objective 3: Strengthen AL Coordination Mechanisms ........................................................18 D. Immediate Objective 4: National Expertise on M&E and Impact Assessment for CN/AL.....................18 E. Immediate Objective 4: The AL Database...............................................................................................19 F. Partnerships: Synergistic or at Cross-Purposes? ......................................................................................19 G. The Overall Implementation Process.......................................................................................................21 i. Rationalizing Procurement: UNDP-UNODC Functionality Reaches a Nadir......................................21 ii. UNODC’s Provincial Coordinators .....................................................................................................23 iii. UNODC’s Provincial AL Experts.......................................................................................................23 iv. Brief Responses to the TOR’s Remaining “Implementation Process” Bulletpoints...........................23 H. Project Concept and Design.....................................................................................................................25 i. Assessing the Impact of G76: The Project Logframe ...........................................................................25 ii. G76 and UNODC’s Comparative Advantage in AL............................................................................26 iii. G76 and the Afghanistan National Development Strategy.................................................................26 iv. G76 and the Afghanistan Compact .....................................................................................................27 v. G76 and the 2008 UNODC Thematic Evaluation................................................................................27 vi. Sub-Contract Performance..................................................................................................................27 vii. Incorporation of Recommendations from the G76 Mid-Term Evaluation (Sept. 2007)....................27 III. Lessons Learned and Best Practices ...........................................................................................................28 IV. Constraints that Impacted Project Delivery................................................................................................30 V. Conclusions and Final Recommendation.....................................................................................................30 Appendix A: TOR..............................................................................................................................................31 Appendix A: List of People Interviewed ...........................................................................................................38 Appendix C: The PRR vs. the MCP ..................................................................................................................41 ii List of Acronyms ABP Afghan Border Police ADB Asian Development Bank ADP/E Alternative Development Program/Eastern Region (formerly ALP/E) AKDN Aga Khan Development Network AKF Aga Khan Foundation (a division of AKDN) AL Alternative Livelihood(s) ALP/E AL Program/Eastern Region (USAID) ALWG AL Working Group ANDS Afghanistan National Development Strategy ANP Afghan National Police ARD Associated in Rural Development AREU: Afghanistan Research and Evaluation Unit ASI Adam Smith International (embedded in MCN) CARD Comprehensive Agriculture and Rural Development Facility (DFID) CDC Community Development Council (formed under MRRD’s NSP) CHA Coordination of Humanitarian Assistance (an NGO) CN Counter Narcotics CNAT Counter Narcotics Advisory Team (a directorate within MCN) CNTF Counter Narcotics Trust Fund (end date December 2008) COAFG UNODC Country Office, Afghanistan CRS Catholic Relief Services DDA District Development Assembly DEcon (Provincial) Department of Economics DEW (Provincial) Department of Energy and Water DFID (UK) Department for International Development DG Director-General FAO Food and Agriculture Organization of the United Nations GAA German Agro-Action (aka Deutsche Welthungerhilfe) GIRA Government of the Islamic Republic of Afghanistan GPI Good Performance Initiative GTZ Gesellschaft für Technische Zusammenarbeit (German Technical Cooperation) HDI Human Development Index IARCSC Independent Administrative Reform Civil Service Commission IDEA Incentives Driving Economic Alternatives (USAID) IDLG Independent Directorate of Local Governance GPI Good Performers Initiative JICA Japan International Cooperation Agency LDC Less/Lesser/Least Developed Countries MAIL Ministry of Agriculture, Irrigation, and Livestock MCN Ministry of Counter Narcotics MCP Management Capacity Program (administered by the WB under IARCSC) MEW Ministry of Energy and Water MoWA Ministry of Women’s Affairs MPA-N Mint Producers Association - Nangarhar MRRD Ministry of Rural Rehabilitation and Development NABDP National Area-Based Development Programme (under MRRD) NDCS National Drug Control Strategy (MCN, 2006) iii NGO Non-Governmental Organization NRAP National Rural Access Programme (under MRRD) NSP National Solidarity Programme (under MRRD) NVDA Nangarhar Valley Development Authority (a MAIL directorate) OECD Organization for Economic Cooperation and Development PAR Public Administration Reform Programme (a component of IARSC) PDAIL Provincial Department of Agriculture, Irrigation, and Livestock PDC Provincial Development Council PDCN Provincial Department of Counter Narcotics PIC Public Information Campaign PRR Priority Reform and Restructuring (a component of the PAR) PRRD Provincial Department of Rural Rehabilitation and Development RED Rural Enterprise Development UNAMA United Nations Assistance Mission to Afghanistan UNDP United Nations Development Programme UNEP United Nations Environment Programme UNESCO United Nations Educational, Scientific, and Cultural Organization UNFPA United Nations Fund for Population Activities UNICEF United Nations Children’s Fund UNIFEM United Nations Development Fund for Women UNODC United Nations Office on Drugs and Crime USAID United States Agency for International Development WATSIP Water, Sanitation, and Irrigation Programme (under MRRD) WB The World Bank WFP United Nations World Food Programme iv Summary matrix of findings, supporting evidence, and recommendations Findings: problems Supporting evidence Recommendations and issues identified 1. G76 is mostly Delivery of services to MCN has Greater emphasis on educating and efficient, with some few been made; the AL database has training UNODC national staff, both exceptions. been set up; alternative livelihood at Kabul and provincial levels, will working groups are sporadically yield efficiency increases; increased meeting; CN public information national