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Joint Evaluation: Danish-Bhutanese Country Programme, 2000-09

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Joint e valuation Joint evaluation ISBn: 978-87-7087-426-7 Danish-Bhutanese Country Programme e-ISBn: 978-87-7087-429-8 Danish-Bhutanese Country Programme 2000-09 SYNTHESIS REPORT 2000-09 SYNTHESIS RE P ORT GROSS NATIONAL 2 asiatisk Plads haPPINESS COMMISSION/BHUTAN DK-1448 Copenhagen K gross national happiness Commission Denmark June royal government of Bhutan P.o Box 127, tashi Chhodzong, thimphu, Bhutan tel +45 33 92 00 00 2010 tel: 00975-2-325192 Fax +45 32 54 05 33 Fax: 00975-2-326779 [email protected] www.gnhc.gov.bt www.um.dk dVd Bhutan and denmark through 30 years 2 . V directed By tsering Penjore . t r a t s o t u a t o n s e o d d c f i m t h . x e d n i n o k c i l C Joint Evaluation: Danish-Bhutanese Country Programme 2000-09 SYNTHESIS REPORT JUNE 2010 © Ministry of Foreign Affairs of Denmark June 2010 Production: Evaluation Department, Ministry of Foreign Affairs of Denmark Cover: Henrik A. Nielsen Graphic Production: Ph7 kommunikation, Århus Print: Schultz Grafisk ISBN: 978-87-7087-426-7 e-ISBN: 978-87-7087-429-8 This report can be obtained free of charge by ordering from www.evaluation.dk or from www.danida-publikationer.dk. This report can be downloaded through the homepage of the Ministry of Foreign Affairs www.um.dk or directly from the homepage of the Evaluation Department www.evaluation.dk. Contact: [email protected] Responsibility for the content and presentation of findings and recommendations rests with the authors. Preface Denmark has provided development assistance to Bhutan for 30 years starting through multilateral agencies from 1978. Bilateral development cooperation dates back to 1985. In 1989 Bhutan was selected as one of Denmark’s programme countries, and from 1992 development cooperation was concentrated within three areas: health, environmental and natural resource management, and urban development. Education was added in 2003. Support to good governance and public administrative reform, including decentralisa- tion and democratisation, was initiated through the flexible Local Grant Authority right from the beginning of the bilateral cooperation, but emerged as a full programme from 1998. The early support to industrialisation was phased out in the late 1990s. The Local Grant Authority has provided flexible support to a number of activities throughout the period. The total Danish assistance since 1989 amounts to almost DKK 1.4 billion in current prices. As Bhutan’s population is small, about 700,000 people, the assistance per capita, around DKK 2,000, has been the highest Danish assistance per capita to any of its 15 partner countries. In Bhutan, Denmark has for many years been the second largest bilateral provider of assistance after India. The current period for the Danish Bhutanese Country Programme (2008-13) is expected to be the last full-fledged programme support period for Denmark’s bilateral develop- ment assistance. This will be followed by a transition phase during which a gradual phas- ing of the sector programmes will take place with special attention to consolidation of the results achieved through previous Danish assistance. After this phase, the collaboration is expected to focus on other areas and relationships such as private sector development, cultural and civil society cooperation, but support to combating the effects of climate change may also be considered. The evaluation was commissioned as part of the collaboration between Danida’s Evalua- tion Department and the Research and Evaluation Division of the Gross National Hap- piness Commission Secretariat of Bhutan. Inserted in the report is a brief – 33 minutes – documentary film on a DVD: “Bhutan and Denmark through 30 years”. The film was directed by Tsering Penjore and written by Nyingtob Pema Norbu and shows the partnership as seen by the Bhutanese. The pro- duction of the documentary was supported by the Evaluation Department. 3 Table of content Acknowledgements 6 Executive Summary 10 1 Introduction and background 20 1.1 Objective of the evaluation 20 1.2 Approach and methodology 21 1.3 Outcome indicators 23 1.4 Sources of information 23 2 Trends in economic, social and political development since 2000 25 2.1 Macro-economic trends 25 2.2 Profile and achievements in poverty alleviation 26 2.3 Introduction of constitutional democracy 27 2.4 Human rights 28 3 Danish Bhutanese Country Programme 29 3.1 Country Strategy 1997 29 3.2 Strategy for Development Cooperation 2003-07 29 3.3 Strategy for Development Cooperation 2008-13 30 3.4 Summary of intervention logic 31 3.5 Summary of Danish support 32 4 Focus sectors: Achievements and challenges 34 4.1 Support to education 34 4.2 Support to health 44 4.3 Support to governance and decentralisation 54 4.4 Support environment and urban management 65 5 Aid relations: Denmark as development partner 75 5.1 Policy dialogue 75 5.2 Aid modalities, harmonization and alignment 75 5.3 Capacity development achievements 77 5.4 Relevance and effectiveness 79 6 Lessons learned, challenges and recommendations 81 6.1 Lessons learned 81 6.2 Recommendations 82 7 Beyond 2013 85 4 Table of Content Annexes: 1. Terms of Reference 2. Evaluation Matrix 3. List of persons met 4. References 5. Present and recent Danida programmes 6. Selected statistical data Working Papers: Additional working papers to the evaluation report can be viewed at the website www.evaluation.dk. I. Sector note on Education II. Sector note on Health III. Sector note on Governance IV. Sector note on Environment and Urban Development V. Thematic paper on Decentralisation and Local Empowerment VI. Thematic paper on Local Service Delivery VII. Thematic paper on Private Sector Potential VIII. Thematic paper on Capacity Development 5 Acknowledgements The evaluation team consisted of Jorgen Billetoft (team leader; environment & urban development and private sector), Anne Thomson (governance/decentralisation/local empowerment), Patrick Vaughan (public health), Jeef Bech (education and capacity de- velopment), Lham Dorji (local service delivery) and Tshoki Zangmo (local governance). Quality assurance was provided by Stephen Jones. The evaluation team visited Bhutan in November as well as December 2009. During its visit in December the team conducted interviews in four dzongkhags: Samtse, Punakha, Monggar and Bumthang. The key findings and recommendations were presented at a validation workshop in Thimphu in March 2010. The evaluation team would like to express their gratitude to representatives of the Royal Government of Bhutan, Ministry of Foreign Affairs of Denmark, the Liaison Office of Denmark in Thimphu and all others that provided valuable input into the evaluation during interviews, discussions, informal chats and focus group meetings. In addition to this report, which synthesises the findings of the evaluation, a number of sector notes and thematic papers were prepared (see list in Table of Contents). These can be found on the website of the Evaluation Department of the Danish Ministry of Foreign Affairs (www.evaluation.dk). Views and opinions expressed in this report are those of the evaluation team alone and not necessarily the same as those of the Evaluation Department of the Danish Ministry of Foreign Affairs or the Research and Evaluation Division of the Gross National Happi- ness Commission Secretariat. 6 Abbreviations and acronyms ACC Anti-Corruption Commission AIDS Acquired Immunodeficiency Syndrome ADB Asian Development Bank ASR Annual Sector Review BBS Bhutan Broadcasting Service BHU Basic Health Unit BTN Bhutan Ngultrum (the national currency) 1 DKK equalled BTN 7.02 in October 2003 and 9.17 in October 2009 CBS Centre for Bhutan Studies CSO Civil Society Organization CTEM Cleaner Technology and Environmental Management DAC Development Assistance Committee Danida Danish International Development Assistance DEO District Education Officer DEnO District Environment Officer DH District Hospitals DKK Danish Kroner DRC Department of Revenue & Customs DSP Decentralisation Support Programme DUDES Department of Urban Development and Engineering Services ECB Election Commission of Bhutan ECCD Early Childhood Care & Development EdSPS Education Sector Programme Support ESIP Education Sector Implementation Plan ESPS Environment Sector Programme Support EU Environment Unit EUSPS Environment and Urban Sector Programme Support FY Financial Year FYP Five-Year Plan GAO Gewog Administrative Officer GDP Gross Domestic Product GG Good Governance GG/PARP Good Governance/Public Administration Reform Programme GGSP Good Governance Support Programme GNHC Gross National Happiness Commission GOI Government of India HIV Human Immunodeficiency Virus HR Human Resource HR Human Rights HRD Human Resource Development HSPS Health Sector Programme Support ICBP Integrated Capacity Building Plan ICT Information and Communication Technology IFAD International Fund for Agricultural Development IT Information Technology JAR Joint Annual Review JICA Japan International Cooperation Agency 7 abbreviations and acronyms JSP Joint Sector Programme LGA Local Grant Authority LOD Liaison Office of Denmark LGSP Local Government Support Programme LSS Lower Secondary School M&E Monitoring & Evaluation MDG Millennium Development Goals MFA Ministry of Foreign Affairs (Denmark) MoA Ministry of Agriculture (and Forests) MoC Ministry of Communication (now Ministry of Information and Communication) MoE Ministry of Education MoEA Ministry of Economic Affairs MoF Ministry of Finance, Bhutan MoH Ministry of Health MoHCA Ministry of Home & Cultural Affairs MoHE Ministry of Health & Education
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