Assessment Of Development Results: Rwanda
ASSESSMENT OF DEVELOPMENT RESULTSEVALUATION OF UNDP CONTRIB UTIONRWANDAEvaluation Office, May 2008United Nations Development Programme
REPORTS PUBLISHED UNDER THE ADR c of the CongoEgyptEthiopiaHondurasIndiaJamaicaJordanLao aSudanSyrian Arab RepublicUkraineTurkeyViet NamYemenEVALUATION TEAMTeam LeaderBetty BigombeTeam MembersKlaus TalvelaSamuel RugabirwaResearch Assistant Elizabeth K. LangASSESSMENT OF DEVELOPMENT RESULTS: RWANDACopyright UNDP 2008, all rights reserved.Manufactured in the United States of AmericaThe analysis and recommendations of this report do not necessarily reflect the views ofthe United Nations Development Programme, its Executive Board or the United NationsMember States. This is an independent publication by UNDP and reflects the views ofits authors.Design: Suazion Inc. (NY, suazion.com) Production: A.K. Office Supplies (NY)
FOREWORDThe Evaluation Office of UNDP conductsindependent country-level evaluations calledAssessments of Development Results (ADRs).These assess the relevance and strategic positioningof UNDP support and its contributions to acountry’s development over a given period oftime. The aim of the ADR is to generate lessonsthat can strengthen programming at the countrylevel and contribute to the organization’seffectiveness and accountability.highly relevant. However, results have beendiminished by the sometimes less-than-optimaldelivery of UNDP services. This is a problemwith many UNDP country offices. While UNDPhas made considerable progress towards a moresustainable long-term development approach, itstill suffers from being dispersed across too manythematic areas. This impedes UNDP efforts toimprove programme administration and technicalexpertise in core areas.The ADR conducted recently in Rwanda coveredthe period 2000 to 2006. This corresponded tothe final two years of the UNDP CountryCooperation Framework for 1997-2001 and theentire Country Cooperation Framework for2002-2006. The timing of the ADR allowed theEvaluation Office to provide recommendationsto the country office as it developed its thirdCountry Cooperation Framework, approved bythe Executive Board in September 2007. TheADR also offered guidance to the country officeas it begins its key role in the ‘One UN’ pilotrecently launched in Rwanda.The ADR recommends that UNDP sharpen thefocus of its Rwanda programme, concentratingon those areas within the second United NationsDevelopment Assistance Framework (UNDAF)where UNDP will be able to bring the most addedvalue while strengthening its corresponding inhouse capacities. For example, if environment is tobe retained as one of two areas of focus forUNDP under the new UNDAF, then the countryoffice should improve its contributions to thegrowing national dialogue on the critical interactionsamong environment, development and poverty.The Rwanda ADR is important for other reasonsas well. Rwanda occupies a unique position in themiddle of the heavily populated western GreatLakes region. The government has made greatstrides in restoring stability and economic growthto the country, but it remains a volatile countryat the heart of a volatile region. This makesRwanda’s partnership with the UN family all themore important. As the ADR points out, therelationship between UNDP and the Governmentof Rwanda has evolved quickly in recent years.This is likely to continue thanks to the Governmentof Rwanda’s vigorous alignment and harmonizationof its international support.The ADR concluded that the UNDP countryoffice in Rwanda has an effective workingrelationship with the Government of Rwanda,which considers UNDP contributions to beFOREWORDThe ADR suggests dialogues with the governmentabout expanding UNDP partnerships with Rwandancivil society organizations and about ensuring theeffective operation of the justice system at alllevels. The situation in Rwanda’s crowded ruralareas and in surrounding countries will be criticalin determining Rwanda’s development options,and UNDP needs to consider these dimensions.UNDP Rwanda works hard to ensure nationalownership and to help the government harmonizeand align support from development partners.Ownership and sustainable results can bestrengthened with more systematic on-the-jobtraining. While autonomous project implementation units have helped UNDP Rwanda deliverresults, they also impede national ownership andsustainability and should be phased out incoming years.i
UNDP is poised to play an important leadershiprole in Rwanda’s ‘One UN’ pilot. In this, it will beimportant for UNDP to ensure that othermembers of the UN country team and otherdevelopment partners in Rwanda understandUNDP Rwanda’s role in any given situation.UNDP should focus on roles where it canachieve maximum coherence and synergies withthe programmes of partner agencies.A number of people contributed to this evaluation, particularly the evaluation team composedof Betty Bigombe, Team Leader, Klaus Talvela,International Evaluation Specialist and SamuelRugabirwa, National Evaluation Specialist. Wewould also like to thank Elizabeth Lang for herbackground research and Concepcion Cole andAnish Pradhan for their administrative support.Research and preparation for the evaluation wasalso completed thanks to the collaboration of theUNDP country office staff in Rwanda, led byResident Representative Moustapha Soumare.iiThis report would not have been possible withoutthe commitment and support of the Governmentof Rwanda. In particular, the evaluation teamwould like to thank the Ministry of Finance andEconomic Planning for its time and insights asthe government focal point for the evaluation.The team is also indebted to representatives fromcivil society and non-governmental organizations,universities, donor countries and the UN countryteam, including those from the internationalfinancial institutions, who generously gave theirtime and frank views.I hope that the findings and recommendations ofthis report will assist UNDP in responding to thecountry’s challenges and provide broader lessonsthat may be of relevance to UNDP and itspartners internationally.Saraswathi MenonDirector, Evaluation OfficeFOREWORD
CONTENTSAcronyms and AbbreviationsExecutive Summary1. Introduction1.1 Purpose of the evaluation1.2 Methodology2. Country context2.1 Geographical, political and geopolitical context2.2. Economic situation—Recovery and trends2.3 Social situation—Indicators and trends2.4 Environmental situation—Challenges and trends2.5 Rwandan national priorities2.6 Development cooperation: Focus, challenges, coordination, harmonization3. Development results3.13.23.33.43.5Achieving the MDGs and reducing povertyFostering democratic governanceCrisis prevention and recoveryHIV/AIDSEnergy and environment for sustainable development4. Cross-cutting issues4.1 Aid coordination4.2 Institutional capacity development4.3 Gender mainstreaming4.4 Environment as a cross-cutting issue4.5 Coherence and synergies among UNDP and UN programmes4.6. Monitoring and evaluation of UNDP programmes5. Strategic positioning5.15.25.35.45.5UNDP and Rwanda’s development prioritiesUNDP’s strategic partnerships in RwandaUNDP and UN reform in RwandaUNDP Rwanda’s comparative advantages and capacitiesUNDP’s evolving role in Rwanda6. Conclusions and recommendations6.1 Conclusions6.2 Lessons learned6.3 13535373840414245454648495155555556iii
ivAnnexesAnnex A. Documents reviewedAnnex B. Individuals interviewedAnnex C. Matrix of evaluation questionsAnnex D. Factors influencing Rwandan attainment of development outcomesAnnex E. Factors influencing UNDP contributions to aid coordinationAnnex F. UNDP’s emerging support for national capacity development strategyAnnex G. UNDP Rwanda evaluation coverage, 2000-200659656977798182BoxesBox 1. Key evaluation questionsBox 2. Environmental objectives in Rwanda’s EDPRS233FiguresFigure 1. Official development assistance received by Rwanda, 1990-200411TablesTable 1. Key economic dataTable 2. Finance requirements of Long-term Investment Framework/Plan (2006-2010)Table 3. Rwandan health indicators compared to other countries in the regionTable 4. Resource mobilization by UNDP country office units, 2000-200656748CONTENTS
ACRONYMS AND PRS(P)RHRCSIDATOKTENTRACUNUN UNHRCUNICEFUNIFEMWFPAid Coordination UnitAssessment of Development ResultsCountry Cooperation FrameworkDepartment for International DevelopmentEconomic Development and Poverty Reduction Strategy (Paper)General Budget SupportGender-based ViolenceGross Domestic ProductGlobal Environment FacilityGovernment of RwandaAssociation for Technical Cooperation (German Cooperation)Human Immunodeficiency Virus/Acquired Immunity Deficiency SyndromeHuman Rights CommissionInformation and Communications TechnologyMonitoring and EvaluationMillennium Development GoalMinistry of Public Service and LabourMinistry of Local Government, Community Development and Social AffairsMinistry of Finance and Economic PlanningMinistry of CommerceMinistry of InfrastructureMinistry of JusticeMinistry of Land, Environment, Water, Forestry and Natural ResourcesMultilateral Organisation Performance Assessment NetworkNew Partnership for Africa’s DevelopmentNon-governmental OrganizationNational Human Development ReportNational Unity and Reconciliation CommissionPoverty Environment InitiativePoverty Reduction Strategy (Paper)Rwandan Human Rights CommissionSwedish International Development AgencyTransfer of Knowledge Through Expatriate NationalsTarget for Resource Assignment from the Core (UNDP budget)United NationsUnited Nations Human Settlements ProgrammeUnited Nations Capital Development FundUnited Nations Country TeamUnited Nations Commission for Trade and DevelopmentUnited Nations Development Assistance FrameworkUnited Nations Development ProgrammeUnited Nations Economic Community for AfricaUnited Nations Population FundUnited Nations Environment ProgrammeUnited Nations High Commissioner for RefugeesUnited Nations Human Rights CouncilUnited Nations Children’s FundUnited Nations Development Fund for WomenWorld Food ProgrammeA C R O N Y M S A N D A B B R E V I AT I O N Sv
EXECUTIVE SUMMARYThis report presents the results of an independentassessment of United Nations DevelopmentProgramme (UNDP) contributions to development results in Rwanda during the period 2000to 2006. Field work undertaken by the UNDPEvaluation Office consisted of a preliminary scopingmission in October 2006 and a full evaluationmission in January and February 2007. Thistiming allowed the Assessment of DevelopmentResults (ADR) recommendations to be consideredin the development of the new UNDP CountryProgramme Document for Rwanda, presented tothe UNDP Executive Board in September 2007.The evaluation team gathered a wide range ofdata, validating perceptions derived from thesedata with additional qualitative and quantitativedata and analyses. More than 110 stakeholderinterviews were conducted with direct beneficiariesand senior government officials, officers of UNDPand other UN organizations active in Rwanda, otherdevelopment partners with relations to UNDP inRwanda, representatives of civil society organizationsactive in Rwanda and other key informants withno direct involvement in UNDP activities.The fundamental evaluation questions were: Whatare UNDP Rwanda’s main achievements in its areasof intervention? What have been/what shouldbe UNDP Rwanda’s core roles and focus? Whatare the capacities of UNDP Rwanda? How muchcoherence and synergy is achieved among UNDPRwanda’s programming areas?Contributions to Rwandan development wereassessed in the five areas of focus for UNDPsupport: the Millennium Development Goals(MDGs) and poverty reduction, democratic governance, crisis prevention and recovery, respondingto HIV/AIDS, and environment and energy.MDGs and poverty reduction: UNDP’s projectportfolio in general is moving ‘upstream’, towardsEXECUTIVE SUMMARYsupporting central and regional level governmentinstitutions. Field-level UNDP interventionshave not been evaluated enough and there arefew data on the poverty reduction results ofUNDP interventions among local populations.While difficult to assess, information available tothe evaluation suggests that UNDP interventionsat field level are relevant, but their impact islimited in quantitative terms.Support to the Ministry of Finance and EconomicPlanning is one of the largest UNDP interventions in Rwanda. The ministry finds the supportcomprehensive and adequate in relation togovernment priorities. UNDP efforts to developcapacity in this ministry have been fairly successfuland some UNDP initiatives, such as the TOKTENproject, have been innovative. UNDP support tothe Ministry of Infrastructure (from 2005 to 2007)to formulate a National Information and Communications Infrastructure plan and e-GovernmentProgramme constitutes important groundwork,though the effects to date are difficult to assess.UNDP prepared the MDG Status Report of2003 together with the Government of Rwanda.Its publication generated much publicity andhelped raise national awareness of the MDGs.Since then, the MDGs have been present inthe development dialogue but not always in asystematic and organized manner. Key governmentdocuments emphasize economic factors muchmore than do the MDGs. UNDP contributed toa new MDG follow-up report prepared in 2007by managing a basket fund for the NationalInstitute of Statistics of Rwanda.Democratic governance: Most of UNDP disparatecontributions in this area have been well targetedand government stakeholders consider themparticularly relevant. The effects of UNDPcontributions have not yet fully materialized dueto a number of strategic and administrativevii
difficulties. The attainment of targeted outcomeshas been influenced by diverse factors and hasbeen partially satisfactory.Crisis prevention and recovery: UNDP results inthis area have been mixed. Its activities are notwithout risk and these risks need to be carefullyassessed. Yet this is also one of the areas where aneutral UN organization like UNDP has its greatestcomparative advantage. UNDP should continueto help the Government of Rwanda addressongoing challenges, especially those related tothe promotion and protection of human rights.Responding to HIV/AIDS: There is a lack of reliabledata on UNDP results in this area. UNDPexpenditures in the sector are not large in relationto national needs, though a substantial portion ofUNDP’s core resources has been devoted toRwanda’s HIV/AIDS response. Additional fundshave been mobilized from the AfricanDevelopment Bank. UNDP’s comparativeadvantage in this area vis-á-vis other UN organizations will need to be more clearly elaborated.Environment and energy: Recent UNDP supporthas made modest contributions to its targetedoutcome in this area, though evaluation informationis, once again, unavailable. The ADR confirmedUNDP contributions to the elaboration ofstrategies, most notably through support for theEconomic Development and Poverty ReductionStrategy (EDPRS) process, but not yet to theadoption or implementation of these strategies.UNDP has also helped the government makeenvironmental concerns more visible. The PovertyEnvironment Initiative, for example, helps ensurethat the Government of Rwanda’s emergingEDPRS will be a sustainable development strategy.UNDP Rwanda’s performance was also assessedin several cross-cutting areas: These includedareas of particular concern for the Government ofRwanda and other development partners: aidcoordination; institutional capacity development;gender mainstreaming; environment; and twoissues of particular concern for UNDP, theviiicoherence and synergies within UNDP thematicprogrammes and between UNDP programmesand other UN organization programmes, and theeffectiveness of UNDP monitoring and evaluation.UNDP Rwanda’s most impressive results haveoccurred in those areas where the Government ofRwanda is also relatively strong: aid coordinationand gender mainstreaming. Results in other areas,such as institutional capacity development, promotingenvironment as a cross-cutting issue, monitoringand evaluation of UNDP support, and achievement of coherence and synergies among UNDPand UN programmes have been more mixed.Aid coordination, harmonization and alignmentare particularly strong in Rwanda due to stronggovernment leadership and UNDP support inthese areas has been highly effective.While gender-specific projects have beenundertaken, with impressive results, there is littledirect evidence that gender issues and their impacton project beneficiaries are systematically takeninto account in other UNDP supported projects.It is hoped that UNDP Rwanda’s recent genderaudit will enable it to correct this anomaly.Many UNDP contributions to helping government partners develop capacities were cited duringthe evaluation, but there is no systematic approachto capacity development or to measuring progresstowards well defined capacity developmentobjectives. UNDP Rwanda’s decision to supportthe emerging ‘National Integrated SkillsDevelopment Policy’ and a national capacitydevelopment strategy to be closely linked to theEDPRS is a promising development.The Poverty Environment Initiative, implementedjointly by UNDP and United Nations EnvironmentProgramme, has provided environmental input intothe frameworks being developed for EDPRS inagriculture, health, water and sanitation, justice,private-sector development, social protection,environment, gender, social protection and HIV/AIDS. While this cross-sectoral analysis offersguidance for orienting these sectors, it is too earlyto assess the development results of this work.EXECUTIVE SUMMARY
Senior management of the country office viewsthe creation of a monitoring strategy and tools asa priority for strengthening UNDP capacity.UNDP Rwanda’s efforts in this area need to besynchronized with and supported by UNDPHeadquarters. Development of methodologiesand tools should be accompanied by strengthening of human resources.The greatest coherence among the five UNDPprogramming areas is among those units workingon different dimensions of governance. Themember agencies of the UN country team aim toensure complementarities and avoid duplicationthrough regular meetings of heads of UN organizations and a Rwanda UN Development AssistanceFramework (UNDAF) task force established todefine UN-wide strategic outputs, coordinate effortsat the project and programme level and promotejoint programming. Some UN organizationsobserved that UNDP gets involved in areaswhere it does not have the capacity or expertise,such as demographic data collection.Conclusions: The country office in Rwanda haseffective working relationships with the Government of Rwanda, and the government considersUNDP contributions to be very relevant. However,UNDP contributions have sometimes been deliveredwith less-than-optimal efficiency, particularly ingovernance and environment. The main problemshave been shortcomings in programme administration, management and financing.Overall, UNDP has made important progresstowards a more sustainable long-term developmentapproach, though several UNDP projects still playgap-filling roles. The dispersion of the programmeacross many small projects in multiple thematicareas impedes efforts to improve the quality ofprogramme administration and technical expertisein core areas.With UNDP support, Rwanda and its developmentpartners have made considerable progress in theharmonization and alignment of developmentcooperation and their experience should be ofinterest to the international community.EXECUTIVE SUMMARYSystematic performance monitoring is lacking inmost UNDP interventions. This has a
strides in restoring stability and economic growth to the country, but it remains a volatile country at the heart of a volatile region. This makes Rwanda’s partnership with the UN family all the more important. As the ADR points out, the relationship bet ween UNDP and the Go vernment of Rwanda has evolved quickly in recent years.
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