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Country Strategy Paper 2007-2010 Evaluation Mokoro Lake Tanganyika TANZANIA MPOROKOSO MBALA KAMPAMPI DEM. REP. OF CONGO KASAMA KASHIBA CHINSALI ANGOLA KIPUSHI MPIKA MWINILUNGA SOLWEZI LUNDAZI MUFULIRA CHINGOLA KITWE NDOLA LUANSHYA MALAWI ZAMBEZI KAPIRI MPOSHI KABWE NYIMBA MUMBWA MOZAMBIQUE MONGU LUSAKA MAZABUKA SENANGA MONZE CHOMA KALOMO ZIMBABWE KAZUNGULA LIVINGSTONE NAMIBIA BOTSWANA Front cover pic: Kelvin Mensanje, Kasisi Agricultural training College, Zambia Photography: XXX Irish Aid is perceived as a strong and flexible partner by “ the Government of the Republic of Zambia and other Cooperating Partners... Despite being a small donor, Irish Aid has provided a significant contribution to achieving development results in Zambia ” Evaluation of the Irish Aid Zambia Country Strategy Paper 2007-2010 Evaluation of the Irish Aid Zambia Country Strategy Paper 2007-2010 iii Contents Page Acknowledgements v Preface vii Abbreviations and Acronyms viii Executive Summary X 1. Introduction 1 2. Evaluation Methodology and Process 3 3. Zambia Context 5 4. Irish Aid in Zambia 8 5. Findings for Development Strategy, Processes and Management 14 6. Findings for Development Results: Building Good Governance, Recognising and Reaching the Poorest and Making Development Work at Local Level 26 7. Findings for Development Results: Achieving a More Effective Approach to Education 39 8. Conclusions and Recommendations 52 Annexes A: Schedule for Country Visit and Persons Met 60 B: Evaluation Framework 67 C: Analysis of Staff Time Management 70 D: Assessment of the CSP Results Framework 71 E: Comments on the Education Results Framework 79 F: Analysis of Findings and Key Issues in Making Development Work at Local Level 81 G: Bibliography 87 H: Abbreviated Evaluation Terms of Reference 91 I: Management Response to the Recommendations of the Evaluation 96 Evaluation of the Irish Aid Zambia Country Strategy Paper 2007-2010 v Acknowledgements The evaluation team would like to express their deep appreciation to all the partners contacted during this evaluation. Particular thanks are due to Irish Embassy staff in Zambia for their excellent support to the organisation of the evaluation and to the logistics of the country visit. The evaluation was carried out by Dr. Ann Bartholomew and Dr. Muriel Visser-Valfrey, with valuable support and inputs from Alice Hill (Mokoro student intern). A field trip was undertaken to Zambia from 21 February to 9 March 2011, with a visit to Northern Province to Irish Aid’s area based programme. The views expressed in this report are those of the consultants, and do not necessarily represent those of Irish Aid, the Department of Foreign Affairs and Trade or the people consulted. Evaluation of the Irish Aid Zambia Country Strategy Paper 2007-2010 vii Preface This evaluation of Irish Aid’s Country Programme in Zambia is one of a series of evaluations commissioned by the Evaluation and Audit section of the Department of Foreign Affairs and Trade of the Government of Ireland. The Evaluation and Audit section holds a remit to commission independent external evaluations of strategic importance to the mission of the Department. The Country Programmes of Irish Aid (IA), a division within the department, constitute an important and strategic element of the government’s official development assistance and are therefore evaluated on a regular basis to fulfil the accountability requirements for the expenditure of public funds and to enable lesson learning across Irish Aid and the wider department. The evaluation was carried out by a team of independent consultants, Mokoro Ltd. The evaluation focuses on the Country Programme performance during the period 2007-2010 with the main field work being carried out in February-March 2011. The Evaluation & Audit section would like to thank the evaluation team, the staff within ministries and agencies of the Government of the Republic of Zambia, other Development Partners (DP), and all colleagues in the Zambia mission and in Headquarters (HQ) in Ireland for their valuable support and input into this evaluation. The Government and people of Ireland have a long and successful association with Zambia through its official development assistance, the work of Irish missionaries and the work of many Irish Non Governmental Organisations, schools and higher level educational institutions, and increasingly through Irish based private sector enterprises. This evaluation will help the Government of Ireland, through Irish Aid and in collaboration with the Government of the Republic of Zambia (GRZ), to plan for a positive and fruitful future in Zambia in a rapidly changing world. The response of Irish Aid management to the specific recommendations in this report are annexed. William Carlos Head of Evaluation & Audit, Department of Foreign Affairs, Government of Ireland February 2012 viii Evaluation of the Irish Aid Zambia Country Strategy Paper 2007-2010 Abbreviations and Acronyms AAA Accra Agenda for Action OECD-DAC Organisation for Economic Co-operation ADCs Area Development Committees and Development, Development Assistance AIDS Acquired Immune Deficiency Syndrome Committee BESSIP Basic Education Sub-Sector Plan PEMFA Public Expenditure Management and CP Cooperating Partner Financial Assessment CPG Cooperating Partners Group PFM Public Financial Management CPI Corruption Perception Index PPE Policy Planning and Effectiveness CSO Civil Society Organisation RDCs Regional Development Committees CSP Country Strategy Paper RRP Recognising and Reaching the Poorest DAIP District Annual Investment Plan RWSSP Rural Water Supply and Sanitation DFID Department for International Development Programme (UK) SAG Sector Advisory Group DoL Division of Labour SIDA Swedish International Development DP Development Partner Cooperation Agency DS Development Specialist SNDP Sixth National Development Plan EC European Commission SWAp Sector Wide Approach EFA/FTI Education for All Fast Track Initiative TBS Targeted Budget Support EU European Union UN United Nations FNDP Fifth National Development Plan UK United Kingdom GDP Gross Domestic Product US United States GFATM Global Fund for AIDS, Tuberculosis and WB World Bank Malaria WHIP Wider Harmonisation in Practice Initiative GIDD Gender in Development Division WILDAF Women in Law & development in Africa GTI Deutsche Gesellschaft für Internationale ZGF Zambian Governance Fund Zusammenarbeit ZNAN Zambia National AIDS Network GRZ Government of the Republic of Zambia ZOCS Zambia Open Community Schools HDI Human Development Index HIV Human Immunodeficiency Virus HoD Head of Development HoM Head of Mission HQ Headquarters IA Irish Aid IOB Policy and Operations Evaluation Department, Ministry Foreign Affairs, Netherlands JAR Joint Annual Review JASZ Joint Assistance Strategy Zambia MAPs Multi Annual Programme Schemes MDWLL Making Development Work at Local Level MCDSS Ministry of Community Development and Social Services MDG Millennium Development Goal MfDR Managing for development results MoE Ministry of Education MISA Media Institute of Southern Africa MoESP Ministry of Education Strategic Plan MoU Memorandum of Understanding MP Member of Parliament MTR Mid-Term Review NAC National AIDS Council NGO Non-Governmental Organisation NIF National Implementation Framework Evaluation of the Irish Aid Zambia Country Strategy Paper 2007-2010 ix List of Boxes, Figures and Tables Boxes Box 1: Core Evaluation Questions 1 Box 2: Categories of stakeholders consulted 4 Box 3: Irish Aid share of total Cooperating Partner Disbursements in 2009 7 Box 4: CSP Strategies 2007-2010 10 Box 5: Irish Aid’s Contribution to Aid Effectiveness/JASZ 23 Box 6: Contribution Analysis Approach 26 Box 7: Irish Aid Partners/Funding Channels for Governance 28 Box 8: Irish Aids Contribution to Governance 30 Box 9: Irish Aid Partners/Funding Channels for RRP 32 Box 10: Irish Aid’s Contribution to RRP 33 Box 11: Irish Aid Partners/Funding Channels for MDWLL 35 Box 12: Irish Aid’s Contribution to MDWLL 36 Box 13: Expanding access to education for vulnerable children 43 Box 14: Targeted Budget Support for the Education Sector 47 Box 15: Overarching Evaluation Question 56 Box A1: MDWLL 2007 Components 81 Box A2: Irish Aid Support to DOPE 85 Figures Figure 1: Conceptual Framework for the use of Contribution Analysis in the Zambia CSP 2007-2010 Evaluation 3 Figure 2: Irish Aid Zambia CSP Expenditure 2007-2010 (Euros) 9 Figure 3: Abbreviated Version of the Zambia CSP 2007-2010 Logic Model 27 Tables Table 1: Total External financing to Zambia 2006-2009 7 Table 2: Irish Aid Zambia CSP Objectives 2007-2010 9 Table 3: CSP 2007-2010 Original Budget, Actual Budget and Actual Expenditure 11 Table 4: Description of the Irish Aid Programme Components 12 x Evaluation of the Irish Aid Zambia Country Strategy Paper 2007-2010 Executive Summary S3. The Irish Aid Zambia Country Strategy 2007-2010 Background and was designed and implemented around four key areas of Methodology work (or Pillars); a. Achieving a More Effective Approach to Education: S1. This report presents the findings and conclusions of working closely with the Ministry of Education (MoE) an independent evaluation of the Irish Aid Zambia Country and other partners, Irish Aid sought to improve Strategy 2007-2010. The purpose of the evaluation is to the effectiveness and capacity of institutions and provide Irish Aid with an independent, evidenced-based, systems to address access, quality and equity issues objective assessment of the Country Strategy. The stated in primary education.