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External Valuation of European Union's Cooperation with Myanmar

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External Valuation of European Union's Cooperation with Myanmar FJPF External valuation of European Union’s Cooperation with Myanmar (2012-2017) Volume 2 Indicators January 2020 ___________ Evaluation carried out on behalf of the European Commission International Cooperation and Development This report has been prepared by Consortium of ADE, PEMconsult and IRAM Consortium leader: ADE s.a Contact Person: Edwin Clerckx [email protected] Contract No COM 2015/Lot 1 Evaluation N° 2017/390539 This evaluation was commissioned by the Unit in charge of Evaluations of the Directorate-General for International Cooperation and Development (European Commission) The opinions expressed in this document represent the authors’ views; these are not necessarily shared by the European Commission nor by the authorities of the countries concerned. PEMconsult A/S ADE SA Wilders Plads 9 A, 2. Sal Rue de Clairvaux 40, Bte 101 1403 København K (Denmark) 1348 Louvain-la-Neuve (Belgium) +45 32 95 26 26 +32 10 45 45 10 [email protected] [email protected] www.pem.dk www.ade.eu EVALUATION OF EUROPEAN UNION’S COOPERATION WITH MYANMAR (2012-2017) PEM-ADE Table of contents EVALUATION QUESTION 1: Strategic Relevance .................................................................. 1 EVALUATION QUESTION 2: Education .............................................................................. 64 EVALUATION QUESTION 3: Peacebuilding........................................................................ 39 EVALUATION QUESTION 4: Governance .......................................................................... 16 EVALUATION QUESTION 5: Rural Development ............................................................. 37 EVALUATION QUESTION 6: Instruments and modalities ................................................ 92 EVALUATION QUESTION 7: Cross-cutting issues ............................................................. 36 EVALUATION QUESTION 8: Synergies, coordination and complementarity ................ 26 Photographs on front page: Top left: Image by EU Delegation to Myanmar Center left: Image by Thomas Pedrazzoli, Pixabay Bottom left: Image by Htoo Tay Zar, Creative Commons Bottom center: Image by David Mark, Pixabay Right: Image by Banita Tour, Pixabay Final Report October 2019 Table of Contents EVALUATION OF EUROPEAN UNION’S COOPERATION WITH MYANMAR (2012-2017) PEM-ADE EVALUATION QUESTION 1: Strategic Relevance EQ1. Was the EU’s assistance to Myanmar coherent and corresponding to the priorities and needs in Myanmar? Rationale: The operating environment in Myanmar in 2012-2017 was characterised by significant political reform and economic growth and a dramatic increase in international assistance, including EU assistance. Nonetheless, the country is still affected by fragility, ethnic conflict (including alleged ethnic cleansing in Rakhine State) and vulnerability to natural hazards, such as cyclones. It is thus vital that the EU responds to these changes and adapts its engagement in Myanmar to an evolving and politically sensitive operating environment (where the army still holds significant power with limited control by the civilian government). EU support is intended to assist the Government in implementing its development policy aspirations, but at the same time EU support is also intended to assist vulnerable (including ethnic) groups and should thus also respond to their needs and priorities (which are not always the same as the Government’s priorities). JC- Degree of responsiveness and adaptability of EU cooperation to Myanmar needs and priorities taking into account the changing 11 context and emerging issues Indicators Sources of Quality of information evidence I- Myanmar partners were involved in the design of the strategy, the choice of focal sectors, the selection of geographical focus, and 111 the programming of interventions Summary: EU support at both strategy and intervention level was well aligned with Myanmar’s development priorities and needs. Great care was taken to consult and engage national stakeholders, e.g. from the Government of Myanmar (GoM) and civil society, in the development of both the EU’s country strategy for Myanmar and individual interventions. Interventions used bottom-up approaches, where stakeholders (e.g. communities) were actively engaged in the identification of activities to be implemented. Geographic targeting was not explicit in the strategy but mainly decided at the intervention level, but the focus on peacebuilding implied a focus on conflict-affected ethnic minority areas; the lack of explicit geographic targeting was criticised by the European Court of Auditors, but the EC and EEAS maintained that geographic targeting had to be done on an annual basis to maintain flexibility and responsiveness in a rapidly evolving and volatile context. Nonetheless, the Livelihoods and Food Security Trust Fund (LIFT) will increase its engagement in conflict-affected areas with at least 50% of its budget and thereby reduce its presence in the Dry Zone and the Delta) and JPF will engage in Rakhine. The European Court of Auditors also found that four sectors were too many but considering the large volume of funding for Myanmar (one of the EU’s largest country programmes) and absorption capacity constraints, it appears justified to cover four focal sectors. Revenue collection is essential for state-building, but while revenue not explicitly covered in the EU’s country strategy, EU support did contribute Final Report October 2019 Page 1 EVALUATION OF EUROPEAN UNION’S COOPERATION WITH MYANMAR (2012-2017) PEM-ADE indirectly in different ways to this, e.g. through support for rural income generation (see I-532), EITI and FLEGT, which in turn enhances the potential base for revenue collection. Support is also planned for the multi-donor Public Financial Management Trust Fund. • EU support was aligned with, and supporting, Myanmar’s development priorities and • ECA report, Strong development needs in general and in the focal sectors. This applies to both the overall strategy 2018 confirmed by and to the individual interventions (see I-211, I-311, I-411, I-511) • I-211, I-311, several • Until 2015 EU support was aligned with the Framework for Economic and Social Reforms I-411, I-511 sources including (FESR), the national development plan for 2012-2015. Since 2016 EU support has been aligned • EU Support wirh economic policy and sectoral policies but there has been no comprehensive national to Food external development plan. The Myanmar Sustainable Development Plan 2018-2030 was launched in mid Security and views 2018. Rural • In the absence of a finalised national development plan (National Comprehensive Development Developmen Plan), the EU used the Framework for Economic and Social Reforms (FESR) of the government t, internal of Myanmar/Burma as the main point of reference, as well as key sector policies, such as the sector fiche Agricultural Development Strategy (ADS) (see I-211, I-311, I-411, I-511) • EC, Country Fiche Myanmar, 2018 • Comprehensive stakeholder consultations were carried out for the preparation of the country • ECA report, Satisfactory programme and MIPs, for example: 2018 detailed account of o Consultation process for the preparation of the MIP 2014-2020 and the choice of focal • EC/EEAS sectors, incl. meeting GoM at Minister’s level (2012) response to dialogue/con sultations o Policy dialogue and consultations with different parts of GoM, incl. Ministry of National ECA, 2018 Planning and Economic Development and line ministries (2012) • Internal o EU co-funded conference on Development Policy Options in Nay Pyi Taw in February documentati 2012 – with discussions with line ministries on how to cooperate (2012) on 2012, o Consultations with CSOs/NGOs on the MIP preparation and indicative focal sectors 2013, 2014 (2012, 2013) • Consultations with CSOs/NGOs on the EU roadmap for engagement with civil society (2013, 2014) • Numerous stakeholder consultations were carried out for programmes and interventions, for • Internal Satisfactory example: documentati detailed account of o Policy dialogue and consultations with line ministries (2012) on 2012, Final Report October 2019 Page 2 EVALUATION OF EUROPEAN UNION’S COOPERATION WITH MYANMAR (2012-2017) PEM-ADE o "Roundtable discussion on Environmental Conservation Policy and National Technical 2013, 2014, dialogue/con Needs in Myanmar", with discussions on GoM’s interest in widening the cooperation on 2015, 2016, sultations environment and natural resources management, incl. FLEGT (2012) 2017 o Consultations with local GoM, civil society and agencies working in refugee camps in Thailand in the preparation of projects under the Aid to Uprooted People (AUP) programme (2012) o Consultations with CSOs as part of the start-up of QBEP, 3MDG, and for the preparation of LIFT’s Rakhine programme (2012) o Scoping missions for EIDHR, DG TRADE, FLEGT with stakeholder consultations (2012) o Consultations with local and international NGOs to review programmes strategies and prepare new interventions under regional and thematic budget lines (NSA, EIDHR, AUP, FSTP, CSO/LA) (2012, 2013) o Informal dialogue with CSOs on IFS project selection (2013) o Dialogue with CSOs/NGOs on the calls for proposals (NSA/LA, 2013; EU support to Peace, Reconciliation and Development Program, 2014) o Consultation with industry association and trade union on a project in the garment industry (2013) o Discussions with Government and ethnic armed groups re. the setting up of the JPF (2015, 2016) o Consultations with GoM for the formulation of MYSAP (aquaculture) (2015)
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