Ministry of Local Government Republic of Uganda United Nations Capital Development Fund United Nations Development Programme District Development Project – Pilot and Kotido District Development Project Mid-Term Evaluation January – February 2001 Final Report PROJECT DATA SHEET COUNTRY: UGANDA FULL PROJECT NUMBERS: UGA/95/C01, UGA/97/008, & UGA/96/C01, UGA/98/005 PROJECT TITLE: DISTRICT DEVELOPMENT PROJECT – PILOT, & KOTIDO DISTRICT DEVELOPMENT PROJECT PROJECT SECTOR: DEVELOPMENT STRATEGIES, POLICIES & PLANNING (0210) SUB-SECTOR: LOCAL GOVERNANCE EXECUTING AGENCY: MINISTRY OF LOCAL GOVERNMENT IMPLEMENTING AGENCIES: LOCAL GOVERNMENTS OF ARUA, JINJA, KABALE, MUKONO & KOTIDO FUNDING AGENCIES: UNCDF, UNDP & GoU PROJECT COSTS: UNCDF US $ 12,273,520 (UGA/95/C01) US $ 2,693,493 (UGA/96/C01) UNDP US $ 2,048,445 (UGA/97/008) US $ 500,000 (UGA/98/005) GoU US $ 242,397 (UGA/96/C01; UGA/98/005) PROJECT APPROVAL DATES: July 1997 (UGA/95/C01, UGA/97/008), October 1997 (UGA/96/C01, UGA/98/005) PROJECT START DATES: July 1998 (UGA/95/C01, UGA/97/008 & UGA/96/C01, UGA/98/005) PROJECT COMPLETION DATES: June 2001 (UGA/95/C01, UGA/97/008) June 2002 (UGA/96/C01, UGA/98/005) EVALUATION DATE: JANUARY – FEBRUARY 2001 Page 1 of 159 Acknowledgements The Team is grateful to a number of people whose support made the preparation of this report possible. We wish to acknowledge the support and understanding of the UNDP Country Representative, Mr. Daouda Toure, and his deputy, Dr. Dan Temu, during the course of our work. Other senior staff of UNCDF and UNDP in Kampala also provided useful information. UNCDF Country Office provided us with relevant literature as well as logistical support. We would also like to thank the Ministry of Local Government, and in particular the Decentralisation Secretariat/ Project Management Unit, especially Mr. Mugabi (Director, DS) and Mr Onyach-Olaa (Co-ordinator, PMU), who provided us with detailed information about decentralisation in Uganda in general and the DDP/KDDP in particular. We would also like to thank the dedicated staff of PMU who responded to our requests for data regardless of the time and day of the week and also accompanied us to all the districts we visited. The Team is also thankful to the representatives of Uganda’s development partners, whose names appear elsewhere in this report, for their frank discussion of their organisations’ policies and how these relate to the development policies of the country. These discussions enabled us to see the project within the wider donor perspective of Uganda’s development in the context of decentralisation. We are thankful to all the participants of the two consultative meetings held in Kampala, one at the beginning of the Mission and the other at the end of the Mission. While in the field, we also received the full co-operation of district and sub-county political executives as well as their technical staff. Their frank discussions of the issues related to the project and readiness to allow us access to relevant documents enabled us to gain clearer perspectives of the performance of the Project on the ground. At the project level, the Project Management Committees that we talked to at various sites were more than prepared to give us the information we needed. And when the draft report was ready, the Team benefited from the constructive discussions that were held during the debriefing meeting at UNCDF Headquarters, New York. Subsequently, comments from UNCDF Technical Advisors (Local Government Unit), UNCDF Evaluation Unit, UNCDF Country Office, MoLG, Mukono District, and Mrs. R .P. Tumusiime (Commissioner for Agricultural Planning) were of great benefit in producing the final report. The Team alone takes the responsibility for the contents of this Final Report and any other weaknesses that may still remain herein. Finally, the Team is grateful to the Government of Uganda and the Project donors, namely UNCDF and UNDP, for having given us the opportunity to serve on the Mission. Page 2 of 159 Abbreviations and Acronyms CAO Chief Administrative Officer CBF Capacity Building Fund CBO Community Based Organisation CDRN Community Development Research Network CG Conditional Grant CoU Church of Uganda Danida Danish International Development Assistance DDP District Development Project DfID Department for International Development DMU Dispensary Maternity Unit DPU District Planning Unit DS Decentralisation Secretariat DTB District Tender Board FaAR/ LGFaAR Local Government Financial and Accounting Regulations FY Fiscal Year GAD Gender and Development GoU Government of Uganda GPT Graduated Personal Tax HoDs Heads of Departments HQs Headquarters IC Investment Committee IDA International Development Association IPFs Indicative Planning Figures KDDP Kotido District Development Project LCs Local Councils LC1 Local Council level 1 (Village Council) LC2 Local Council level 2 (Parish Council) LC3 Local Council level 3 (Sub-county Council) LC5 Local Council level 5 (District Council) LDF Local Development Fund LG Local Government LGDP Local Government Development Programme LGFC Local Government Finance Commission M&E Monitoring and Evaluation MCs & PMs Minimum Conditions and Performance Measures MGLSD Ministry of Gender, Labour and Social Development MISR Makerere Institute of Social Research MoFPED Ministry of Finance, Planning and Economic Development MoLG Ministry of Local Government NGOs Non-Governmental Organisations NRM National Resistance Movement O&M Operations and Maintenance Page 3 of 159 PAF Poverty Action Fund PAIMS Planning, Allocation and Investment Management System PEAP Poverty Eradication Action Plan PMA Plan for Modernisation of Agriculture PMC Project Management Committee PMU Programme Management Unit (MoLG) PPAs Priority Programme Areas PS Permanent Secretary PSC Policy Steering Committee PTA Parents Teachers’ Association PTC Project Technical Committee PUIP Peri-Urban Infrastructure Project PDWs Poor Disadvantaged and Widows SMC School Management Committee SWAP Sector-Wide Approach UBN Unsatisfied Basic Needs ULAA Uganda Local Authorities Association UNABCEC Uganda National Association of Building and Civil Engineering Contractors UNCDF United Nations Capital Development Fund UNDP United Nations Development Programme UNFPA United Nations Fund for Population Activities UPE Universal Primary Education UPPAP Uganda Participatory Poverty Assessment Project USAID United States Agency for International Development Ushs. Uganda Shillings WB World Bank (The) WID Women in Development Page 4 of 159 INTRODUCTION TO THE EVALUATION REPORT This report is submitted to UNDP/UNCDF and the Government of Uganda as one of the outputs required by the Terms of Reference for the Evaluation Team carrying out the Mid Term Evaluation (MTE) on the District Development Project-Pilot (DDP-Pilot) and Kotido District Development Project (KDDP). The broad objectives of the evaluation, which guided the work of the Team, are set out in part 1 of the T.O.R., on page 2, quoted here below: 1. Assess the overall progress (or lack thereof) and detect early signs of success or failure; 2. Assess the initial project design and project relevance to the current situation; 3. Establish the likely impact of the DDP/KDDP on vulnerable and marginalised groups such as the internally displaced and persons with disabilities; 4. Examine the impact of DDP design/ objectives and mode of operation on on-going policy debate on and implementation of such initiatives as Universal Primary Education, Plan for Modernisation of Agriculture, Water and National Sanitation Strategy, etc. 5. Assess sustainability of implemented activities and/or exit strategies; 6. Assess the monitoring and evaluation system (including review and comparison of Project Performance Indicators, i.e. the SRFs and KPIs); 7. Set the course for the remaining duration, including the one year extension of the project; 8. Draw initial lessons learnt about project design, implementation and management. The four-member Evaluation Team was made up of two international and two national consultants, viz.: • Prof. Walter O. Oyugi (Team Leader): The Decentralisation Policy and Institutional Change Expert (University of Nairobi, Kenya); • Ms. Monica Ramirez: Poverty and Participation Expert (Consultant, Bogota, Colombia); • Mrs. Elizabeth Eilor: Gender Expert (Eastern Africa Sub-Regional Support Initiative for the Advancement of Women, Kampala, Uganda); and • Eng. Patrick Batumbya: Infrastructure Specialist (MBW Consulting Engineers, Kampala, Uganda). The Team assembled in Kampala on 14th January, and held its first briefing meeting with UNDP and UNCDF senior staff on 15th January. During its first week in the country, the team held meetings with government officials in Kampala and also met a cross-section of Uganda’s development partners based in Kampala. In between these meetings, the Team worked on the Inception Report – the instrument that guided the activities of the mission for the rest of the duration of their stay in the country. Between 22nd January and 14th February the Team moved in and out of Kampala to all the five project districts, viz. Kabale, Mukono, Jinja, Arua and Kotido. While in the districts, the Team held meetings with both the political and administrative leaders who are members of the District Executive Committee and District Technical Committee respectively. These meetings were followed with more focused person-to-person interviews with individual heads of departments/directorates. While in the districts, the Team also visited selected