Download Uganda-Evaluation of Public Sector.Final Report

GOVERNMENT OF UGANDA
Evaluation of increased Public Sector Efficiency
Transparency and Accountability
Final Report
For
GoU/UNDP Good Governance for Poverty Eradication Programme
By
Evaluation Team1
Kampala, Uganda
September 23rd, 2005
1
Dr. James Katorobo (Team Leader), Dr. May Sengendo, and Dr. R. J. Kalibwani,
Table of Contents
Page
Acronyms
iii
Executive Summary
iv
1
Introduction
1
2
Uganda Development and Governance context
1
3
Brief Description of the outcome
3
4
SRF/ROAR Reporting System and Procedures changes
5
5
Rationale for UNDP’s involvement in the outcome
6
6
Objectives of the evaluation
6
7
Scope of the evaluation
7
8
The Logic Model of the overall good governance programme
9
9
Evaluation of programme components
10
9.1 Strengthen the capacities of the Uganda Parliament
10
9.2 Strengthening the capacity of Human Rights Commission to promote, protect
14
and realize human rights in Uganda
9.3 Strengthen capacity of Ministry of Gender, Labor and Social Development
19
9.4 Strengthening the capacity of the Office of Inspector General of Government
24
9.5 Strengthening the Capacity of the Directorate of Ethics and Integrity
30
9.6 Strengthening the Capacity for Tendering and Procuring of PPDA
34
9.7 Strengthening Policy Analysis and Poverty Monitoring (PAPM)
40
9.8 Strengthening the Participatory Development Management (PDM) Project
46
9.9 Strengthening AMICAALL for urban leadership to respond to the challenges
53
of HIV/AIDS in Uganda
8
Overall Conclusions
59
9
Findings
62
10
Recommendations
68
Bibliography
75
Annex 1, Terms of reference
77
Annex 2, Methodology
79
Annex 3, Itinerary of programme evaluation
81
Annex 4, List of persons met by the evaluation Team
86
ii
Acronyms
ADB
African Development Bank
AMICALL
Alliance of Mayors’ Initiative for Community Action on AIDS at the Local Level
DEI
Directorate of Ethics and Integrity
DFID
Department for International Development
HIV/AIDS
Human Immuno Deficiency Virus/Acquired Immune Deficiency Syndrome
IAPSO
Inter-Agency Procurement Services Office
IGG
Inspector General of Government
PDE
Procurement and Disposal Entities
PPDA
Public Procurement and Disposal of Public Assets Authority
ROAR
Results Oriented Annual Reporting
SRF
Strategic Results Framework
UNAIDS
United Nations Joint Programme on AIDS
UNDP
United Nations Development Programme
UNV
United Nations Volunteer Programme
MoFPED
Ministry of Finance Planning and Economic Development
PEAP
Poverty Eradication Action Plan
MDGs
Millennium Development Goals
MoGLSD
Ministry of Gender, Labour and Social Development
UHRC
Uganda Human Rights Commission
CCF
Country Cooperation Framework
CPAP
Country Programme Action Plan
GGPEP
Good Governance Programme for the Eradication of Poverty
NGO
Non-Governmental Organisations
MP
Member of Parliament
PSIDP
Parliamentary Strategic Investment Development Plan
PLA
People Living with AIDS
PSO
Programme Support Objective
EOC
Equal Opportunity Commission
UNCDF
United Nations Capital Development Fund
LGDP
Local Government Development Programme
HPPG
Harmonized Participatory Planning Guides
PMA
Programme for Modernization of Agriculture
iii
PDM
Participatory Development Management
iv
EXECUTIVE SUMMARY
The political history of Uganda since independence (1962) can be summed up as a crisis
of good governance. Except for the first four years of independence (1962-1966), the rest
of the period (1966-1986) was dominated by autocratic misrule, overgeneralization,
struggle for power, violation of human rights and civil wars. Since 1986 with the advent
of the NRM regime, efforts have been invested in the restoration of democracy and good
governance. While many reform interventions such as decentralization, streamlining and
rationalization of the public sector and privatization of loss-making public enterprises had
connections to good governance, it was in 1998 that UNDP supported Uganda to design
an explicit programmes focusing on good governance directly. By 2000 Uganda, with the
assistance of UNDP, had developed a comprehensive integrated good governance
programme with nine (9) focus areas. It is out of this national strategy that the UNDPsupported Good Governance for Poverty Eradication programme (2001-2005) was
derived. The overall objective was to strengthen capacities of key selected central
government institutions to put in place policies and plans that facilitate poverty
eradication through decentralized, broad-based, equitable development. The intended
overall outcome was increased efficiency, transparency and accountability in the public
sector. This outcome is the focus of the evaluation.
The good governance programme has nine (9) project components: (i) strengthening
Parliament to enable it fulfils its legislative and oversight roles, (ii) strengthening Uganda
Human Rights Commission to protect and promote peoples rights, (iii) Strengthening the
capacity of Ministry of Gender, Labour and Social Development (MoGLSD) to deal with
equity strategies and policies, (iv) strengthening the capacity of the Office of the
Inspector General of Government to combat corruption and to promote integrity in the
public sector, (v) Strengthening the Capacity of Directorate of Ethics and Integrity (DEI)
to promote ethics in the public sector focusing on the design of strategies, policy making
and monitoring, (vi) strengthening the capacity of the Public Procurement and Disposal
of Public Assets Authority in Uganda (PPDA), (vii) strengthening the MoLG with
participatory Development Management (PDM), (viii) strengthening Ministry of Finance,
Planning and Economic Development (MoFPED) with capacities for policy analysis and
poverty monitoring, and finally, (ix) strengthening AMICAALL to meet the challenge of
HIV/AIDS in urban areas.
The evaluation methodology focuses on outcome evaluation. In the past the emphasis has
been placed on the outputs evaluation. However, it was realized that project outputs could
be achieved without having beneficial results or outcomes. As such, this report begins
with objectives, tracks the activities, the outputs and finally the outcomes or short term
impacts. This evaluation has noted that, on the whole, most of the objectives, outputs and
outcomes have been achieved. The report points out few areas of under performances and
proposes improvement.
In this report emphasis has been put on the use of a logic model to explicate the expected
logical flow of events from objectives, to inputs, outputs and then to outcomes. This is
captured in a logic diagram, which is a summary of the life history of the project or
programme in a nutshell.
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The TORs were reduced to a set of evolution questions which have been used in the
interviews.
 What were the objectives, and how adequate was project design to achieve these
objectives?
 What was the overall outcome and immediate outcomes and have these been
attained?
 What was the situation (prior conditions) before the intervention and how is the
situation after the intervention?
 How appropriate and effective was the UNDP partnership strategy?
 How were crosscutting issues incorporated and what was their contribution to the
achievement of the outcome?
 What are the recommendations for the future of the programmes?
Each of the nine (9) projects has been analysed separately to give it maximum focus. It
also makes it easy for decision-makers to see how project components performed instead
of being hidden in general assessment statements. Findings and recommendations have
been summarised in two integrated chapters found at the end of this report for convenient
reading and access.
The focus of outcome evaluation is to compare the situation before the project
intervention/prior conditions (2001) and the situation after the intervention, the situation
at the period of this evaluation (2005). In general the assisted entities had lower capacity
to conduct studies of policy issues and problems, to develop strategies out of those
studies, to make relevant policies and get them adopted, and to mainstream and promote
new principles and best practices. The report illustrates these before and after portraits.
The achievement of capacities is a relative matter. No sooner have past incapacities been
addressed, than a whole set of new ones emerge. Thus capacity building will always be a
continuous process as new innovations are constantly being invented and brought into
existing institutions. UNDP, and other donors’ support will be needed to consolidate
current achievements.
General Recommendations2
Reporting, communication and documentation: Although the programme had good
lessons to learn from, efficient reporting on outcomes was still limited in all projects and
requires urgent remedy. Communication, documentation and utilization of information or
data should be made part of the accountability measures. It would also be an opportunity
to share experiences of best practices realized from different projects undertaken in the
Good Governance programme. The following strategies should be undertaken to address
this concern: UNDP should strengthen its reporting systems by having a designated
monitoring and evaluation staff to deal with communication and documentation needs of
2
These are general recommendations that apply to all projects. Other recommendations that are specific to
the different project components are given in section 10 of this report.
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the organization as well as the project components. Each project that UNDP funds should
have an in-built system of reporting, documenting and communicating towards processes,
results and outcomes over a specified period of time. Monitoring indicators should be
clearly stated during the planning phase of the project and used when reporting.
Crosscutting issues: Methodologies and indicators of mainstreaming crosscutting issues
were well done in some projects while they were minimal in others. In order to integrate
gender, human rights, HIV/AIDs and environment in different projects, effort should be
made by UNDP to formulate strategies and provide guidelines that would enable the
different components of the Good Governance programme to learn from each other’s
methodologies and processes that can contribute to effective application of these
crosscutting issues. This would ensure harmonization of guidelines and formulation of
indicators for effective monitoring of outcomes that are derived from mainstreaming of
these crosscutting issues into projects.
Funding and implementation of projects: i) In terms of the design of the project,
UNDP should ensure that in the next SRF, implementation and resources needed to carry
out the activities are planned for together. This would ensure that any other needs that
require funding when the project is in its implementation stage, are only considered in
cases where they highly affect the outcome.
Building capacity and learning across the projects: i) UNDP should design strategies
to enable the different projects funded in a specific programme as well as other
programmes in CCFII, to learn from each other’s methodologies and processes in order to
contribute to effective outcomes.
Partnerships and collaborations: i) Effort should be made by UNDP to enable
coherence of projects with other UN or other Development partners’ activities through
encouraging joint planning of activities that have similar goals or needs (such as equity
project and work done by UNCDF). ii) UNDP should identify and concentrate on areas
of good governance where it has highest expertise, which is mainly in supporting policy
and strategic planning at national and district level. It should make further effort to
engage into effective partnerships by providing support to areas where other development
partners have specific skills and funding. Partnerships should be invested in through:
Allocation of staff time to engage in sharing of experiences, learning from others such as
the members of the Uganda Joint Assistance Strategy (UJAS)Encouraging and supporting
project component managers to document results and outcomes and be able to share
experiences through partnership building and strengthening of collaborations.
Staffing: The Good governance programme has only two staff members. Given the
amount of work and the reporting requirements that will enable efficient achievement of
outcomes of this programme, there is need to add two more staff who may not necessarily
be fully employed but can be consultants who support the programme on specific
activities.
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1.
Introduction
Uganda was one of the 15 sub-Saharan countries that participated in the UNDP Africa
Region Governance Capacity Assessment Programme that supported government to
identify needs for good governance in order to initiate support to governance institutions.
In December 1998 Uganda’s proposal on good governance was approved by UNDP and
funded to the tune of US$180,000. UNDP’s support was based on the principle that it is
the responsibility of the people of a country and its leaders to determine the strategy and
content of their governance programmes and that the role of UNDP was to provide
technical and professional guidance where and when it was needed. UNDP provided
resources to enable the conducting of governance needs assessment, the technical design
of projects and programmes and the conduct of national and international stakeholder’s
consultation. UNDP support could also be used to build capacity for management and
coordination of the programmes, and it is during this period that MoFPED assumed the
role of focal point for governance in Uganda. During this period the foundations were
laid for the current SRF of UNDP Uganda (2001-2005) Good Governance for Poverty
Eradication, that is being evaluated.
2.
Uganda Development and Governance context
The Government of the Republic of Uganda has been committed to implementing reform
programmes geared to achieving sustainable livelihoods for the people of Uganda. As a
result significant progress has been realized in form of economic growth accompanied by
improvements in the quality of life in the last decade. During this period it is reported that
income poverty fell from 56% in 1992 to 35% in 2000. However, since 2000 income
poverty has taken an up turn, with the proportion of people below the poverty line rising
from 35% in 2000 to 38% in 2003. This has also been accompanied by a marked
increase in inequality, with the Gini coefficient, which measures inequality, rising from
0.35 in 1997/98 to 0.43 in 2003. The reasons for these patterns include; a slow down in
agricultural growth during the last three years due to decline in farmer’s prices reflecting
world market conditions, insecurity, and high birth rates. Regional and gender
inequalities are high. Poverty is largely concentrated in the northern region as well as in
some parts of the eastern region and western region. These are the areas that have been
severely affected by war. On the whole the manifestation of poverty in these areas has
been a result of many years of insecurity due to civil war and lawlessness, and social and
economic exclusion.
Uganda has enjoyed political stability since 1986 and has generally made considerable
progress in addressing the development problems of the country including issues relating
to governance. Since 1986, the Government has strived to forge and reinforce national
unity and people’s participation in decision-making through the decentralization process,
which has devolved powers from the center to the local administrations, and regular
elections at national and lower levels of administration. The interests of vulnerable
groups (youth, women and the persons with disabilities) are now articulated at all levels
1
of government especially through their representatives. Through affirmative action
programmes, there is a higher degree of women’s participation in public life, both at the
national and local levels. But more remains to be achieved. On the other hand, northern
Uganda continues to lag behind the rest of the country in all aspects of development,
primarily as a result of the armed rebellion led by Joseph Kony, which has disrupted not
only economic activity but also caused a breakdown of social infrastructure and
networks. A significant portion of the economic and social infrastructure in these areas
was destroyed, and about 2.0 million people have been displaced with the majority now
living in protected camps. This has had a negative impact on systems of governance and
delivery of development and social services to the people in this region. As a result, the
proportion of people living in poverty in the north rose from 60% in 1997 to 66% in 2000
and 64% in 2002.
In the area of good governance, there have been a number of positive achievements such
as the political will to sustain good governance practices, public awareness and
acceptance of democratic principles, constitutionalism, rule of law and separation of
powers, decentralization, human rights, empowerment of civil society, good relations
with the donor community, and formulation and implementation of public policies
targeting poverty eradication, among others.
The Poverty Eradication Action Plan (PEAP) was developed in 1997 to serve as the
country’s main development strategy and planning framework for fighting poverty.
Government’s overriding aim as espoused in PEAP is the reduction of the total number of
people living in absolute poverty to less than 10 % of the population by 2017. Attaining
this target would put Uganda on a better footing as far as the Millennium Development
Goals (MDGs) are concerned.
Until 2003, the PEAP had four pillars (or goals) namely a) creating an enabling
environment for economic growth and structural transformation, b) good governance and
security, c) increasing the ability of the poor to raise incomes; and d) improving the
quality of life of the poor. In 2003, the PEAP was revised to align it to emerging
challenges namely;
 Restoration of security, arising from political conflicts/insurgency and the need to
improve regional equity.
 Restoration of sustainable growth in incomes of the poor,
 Human development and
 Using public resources transparently and efficiently to eradicate poverty.
The revised PEAP now has five pillars or components namely, i) economic management,
ii) production, competitiveness and incomes iii) security, conflict resolution and disaster
management iv) good governance and v) human development.
However, a number of challenges remain to be addressed before one can see concrete
improvements in governance. As can be seen from above, good governance is reflected
as one of the pillars of the revised PEAP. Some of the major challenges facing the
2
country today include, but are not limited to, illiteracy, sectarianism, ethnicity and
regional social and economic imbalances, the search for a consensus on system of
government and transition, the question of Presidential term limit, political pluralism,
corruption, HIV/AIDS, natural disasters and environmental mismanagement and abuse,
over-dependence on external aid and the debt burden, compounded by limited
management and technical capacities at different levels of government. The revised
PEAP identifies three key priorities under the Good Governance Pillar: (i) human rights
and democratization, (ii) the development of a better legal system, and (iii) transparency,
accountability and the elimination of corruption.
UNDP’s contribution to the outcome of political empowerment for democratic
governance was intended to contribute to the PEAP (1997) goal of “good governance
and security” and reinforces the strategy of the revised PEAP (2004) of “promoting and
consolidating good governance both at central and local levels to ultimately eradicate
poverty”.
3.
Brief description of the outcome
In the current SRF of UNDP Uganda (2001-2005) there are nine development outcomes
to which UNDP would like to contribute. The outcome to be evaluated is stated in the
SRF/ROAR as “increased efficiency and accountability in the public sector”.
Towards the achievement of this outcome, UNDP provided capacity building support to a
number of key institutions, which included The Office of the Inspector General of
Government (IGG), the Directorate of Ethics and Integrity in the Office of the President
(DEI), the Parliament of Uganda and later the Public Procurement and Disposal of Public
Assets Authority (PPDA), with mandates to combat corruption and abuse of office in one
way or the other. In addition the programme supported the Ministry of Local
Government to pilot a participatory development management (PDM) initiative in eight
districts (eight sub-counties) that aimed at entrenching the devolution of decision-making
powers to local governments at the parish and village levels. The intention was to
empower local communities to formulate their development plans and monitor
implementation of plans and programmes in their areas. In addition, Local Council
Courts were assisted to build capacity for administration of justice at level one and two in
the districts of Kayunga, Kabale, Yumbe, Arua, Mukono and Jinja. Besides the Ministry
of Local Government, the programme supported the following other key institutions:
 Ministry of Gender Labour and Social Development (MoGLSD), regarding
promotion of equity issues;
 Uganda Human Rights Commission (UHRC), regarding support towards enhanced
observance, promotion and protection of people’s rights as an essential aspect of good
governance
 Alliance of Mayors Initiative for Community Action on HIV/AIDS at the Local Level
(AMICAALL) in Africa, regarding capacity building for urban leadership to respond
to the challenges of HIV/AIDS in their areas of jurisdiction;
3
 Parliament, regarding the support given towards capacity building for appropriate
legislation and oversight functions in the context of the poverty eradication drive and
good governance.
 A special project aimed at increasing capacity for policy analysis and poverty
monitoring, which focused on advocacy and monitoring Government interventions in
as far as poverty eradication is concerned.
All in all, UNDP’s support in these areas was expected to lead to reduction of incidence
of corruption and abuse of office by public officers, which would eventually increase and
improve the quality service delivery at minimized cost and reduce inequality. Ultimately
reduction in corruption would translate into improved private sector investment and
therefore economic growth. It was also expected to lead to increased observance,
protection and promotion of various key rights of the Ugandan people.
It was envisaged that the capacity of the IGG’s Office would be strengthened to carry out
investigations, prosecution and exhibit management; and conduct the second national
integrity survey. A national strategy for mainstreaming ethics, integrity and anticorruption commitments in all institutions, organizations and sectors (public, private and
civic) would be developed and disseminated. Local councils, tender boards, land boards
and public accounts committees would be sensitized about transparency and
accountability and the dangers of corruption to national and local development. The
Directorate of Ethics and Integrity is mandated to, among other things, promote and
develop ethical standards and integrity in the conduct and management of public affairs,
while the procurement authority is fighting corruption through reforms, development of
procurement standards, training staff of procurement entities and carrying out inspection
and audits. Parliament has an oversight function and acts as watch dog to the operations
of the Executive arm of Government, through the Public Accounts Committee.
The SRF/ROAR Outcome identified by the Country Office (CO) is summarized in the
following table:
Table 1, The SRF/ROAR Outcome identified by the Uganda UNDP country Office
Intended SRF/ROAR Outcome
Baseline
SRF end target 2004:
outcome:
indicator
Increased efficiency
Existence of
Existing
Forge strategic
and accountability in
strong political
institutions are
partnerships to enhance
the public sector
will to promote
weak or
the functions of the IGG,
through capacity
accountability
inadequate to
DEI, PPDA and
development and
and transparency combat
Parliament to promote
strategic partnerships
in the public
corruption and
accountability,
sector
abuse of office
transparency and
efficiency in public
sector management
4
4.
SRF/ROAR Reporting System and Procedures changes
It is important to note that the SRF/ROAR reporting system and procedures changed in
2004 and have involved a refocusing of the overall intended outcome to “increased
efficiency and accountability in the public sector, through capacity development and
strategic partnerships”. The annual target(s) for 2004 towards the intended outcome is
“forge strategic partnerships to enhance the functions of the Inspectorate of Government,
Department of Ethics and Integrity, procurement authority and Parliament to
promote/increase accountability, transparency, and efficiency in public sector
management”.
There is not much difference in the reformulation of the outcomes from the previous one.
But the major change is in the objectives and concept of drivers. UNDP is
operationalising the concept of Multi-year Funding Framework (2004-2007) and
programmes directions points to five strategic goals:





Achieving the MDGs and reducing human poverty
Fostering democratic governance
Managing energy and environment for sustainable development
Supporting crisis prevention and recovery
Responding to HIV/AIDS
Each of the five strategic goals has been broken down to specific service lines. The total
service lines are thirty (30). The service lines for fostering democratic governance are:







Policy support for democratic governance
Parliamentary development
Electoral systems and processes
Justice and human rights
E-governance and access to information
Decentralization local governance and urban/rural development
Public administration reform and anti-corruption
The performance of support programmes in the strategic areas, and service lines will be
in terms of factors that cause development effectiveness and organization effectiveness.
These factors are called drivers and UNDP has identified five drivers in terms of which
programmes will be monitored, reported on and evaluated:





Developing national capacities
Enhancing national ownership
Advocating and fostering an enabling policy environment
Promoting gender equality
Forging partnerships for results
5
It strongly recommended that as part of next CCF national managers of UNDP supported
components should be made aware of the new system and its procedures.
5.
Rationale for UNDP’s involvement in the outcome and why
it is being evaluated
As already indicated above, the UNDP Uganda CCF II was formulated and launched in
July 2001; it was anchored in Uganda’s national planning framework, the Poverty
Eradication Action Plan (PEAP) and specifically the two pillars of good governance and
that aimed at increasing the ability of the poor to raise their incomes. Throughout the
CCFII implementation and the process of revising the PEAP several challenges of good
governance and their impact on realizing the PEAP targets as well as the MDGs have
emerged prominently. These have already been mentioned in section 1.1 above. Good
governance still remains a major pillar of Uganda’s planning framework. This is
reinforced through the Multi-Year Funding Framework, one of whose goals is fostering
democratic governance, and one of the service lines under this goal is public
administration reform and anti-corruption.
The Good Governance programme addressed four out of the nine strategic objectives for
the promotion and consolidation of good governance, namely capacity building for
legislators/parliamentarians; promotion of transparency and accountability; capacity
building for decentralization and local governance; and promotion and protection of
human rights and equity. The programme was also expected to mainstream three
crosscutting issues of HIV/AIDS, gender and environment.
The outcome is being evaluated to assess the progress of UNDP’s interventions towards
achievement of the outcomes and to evaluate the efficacy of the strategies employed in
contributing to the achievement of the outputs. In addition, the rationale is to generate
lessons and recommendations that could be applied in reorienting or enhancing the
interventions towards achievement of the outcome for the rest of the CCF period. The
evaluation should also generate lessons and experiences that could provide inputs or feed
into the development of the next Country Programme Action Plan (CPAP).
6.
Objectives of the Evaluation
The objective of the outcome evaluation was to take stock of UNDP's contribution to
increased efficiency and accountability in the public sector and assess the extent to which
activities undertaken by the different institutions have been achieved and how they
contributed to the realization of the outcome. The evaluation aimed at assessing the
strengths, weaknesses and limitations relating to the attainment of the intended outcome.
The evaluation drew lessons that would help UNDP fine-tune its current focus on
promoting efficiency and accountability in service delivery through reduction in
6
corruption and abuse of office and better management of public affairs. The outcome
evaluation not only assessed progress towards the achievement of outcomes but made
recommendations on the realignment of future programme design and delivery in line
with current programming guidelines.
7.
Scope of the Evaluation
Evaluation Questions
The evaluation covered all good governance activities supported by the UNDP country
office to increase efficiency and accountability in the public sector outcome. In particular,
the following were included: UNDP’s support through the Good Governance for Poverty
Eradication Programme (GGPEP) to the IGG, DEI and PPDA as well as Support to the
Parliament of Uganda (for its oversight function). Others were UHRC, Ministry of
Gender Labour and Social Development, AMICAALL, PDM, the UNV Support to
Human Rights and the Policy Analysis and Poverty Monitoring projects. The evaluation
team has transformed the TORS (Annex 1) into key focus questions:
 What were the objectives, and how adequate was project design to these
objectives?
 What was the overall outcome and immediate outcomes and have these been
attained?
 What was the situation (prior conditions) before the intervention and how is the
situation after the intervention?
 How appropriate and effective was UNDP partnership strategy?
 How were crosscutting issues incorporated and what was their contribution to the
achievement of the outcome?
 What the recommendations for the future of the programmes?
Participatory Methodology3
This report is a product of wide ranging participation of stakeholders in the GoU/UNDP
Good Governance for Poverty Eradication 2001-2005. Interviews and discussions were
held in central ministries, in Parliament and in agencies in which capacity building
activities were carried out. Field visits were conducted in remote villages of eight (8)
districts in which the pilot projects were undertaken. The evaluation team interacted with
direct beneficiaries of the programme. A total of 438 informants were interviewed and or
participated in stakeholder consultation workshops. The latest conceptual and practical
steps4 in outcome evaluation were discussed with project managers and who were able to
generate project implementation data and information consistent with and in the format of
outcome evaluation. This information was used to construct logic models of project
3
See Annex 2, Methodology
Jody Zall Kusek and Ray C. Rist, Ten Steps to a Results-Based Monitoring and Evaluation System. A
handbook for Development Practitioners. Washington, D.C., : The world Bank, 2004
4
7
outcomes for each project showing the linkages between project outputs and outcomes.
This can be seen in the logic diagram presented in the account of each of the projects.
The draft report was presented at several meetings and revised after each of those
meetings. The meetings culminated in the final stakeholders meeting that attracted 64
participants. The findings and conclusions in this report are the sum total of joint
participation and contribution of the diversity of actors who were involved in the
programmes during the last fives years.
Stakeholder strategies in the governance capacity building programme
Capacity building of central government agencies is complex and expensive beyond the
means of single actors. Thus from a strategic point of view donors come together and
pool resources to provide assistance to governments. Multilateral agencies provide a
coordinated pooling of resources and action guided by harmonized codes of conduct and
practice. Even in the case of bilateral assistance donors have found it useful to form such
groups, parliament donors groups, to coordinate their actions (sector working groups). It
is a common practice for these groups to have one spokesperson.
But another important stakeholder strategy is the one that brings together actors involved
in the same governance promotion operations. Many capacity building activities were
subcontracted to NGOs, or private sector providers. It enhances performance and
effectiveness when their actions are coordinated. Thus all agencies and NGOs involved in
anticorruption activities are brought together to meet and share experience, lessons and
strategies. UNDP has encouraged joint action and cooperation among stakeholders and
this had contributed to the success of the programmes. It is therefore important to
emphasize that many actors share in the achievement of these complex outcomes. It is an
agreed principle among donors that no one should claim responsibility of an outcome as
the sole contributors. Thus when this report states that UNDP contributed to the
achievement of an outcome, it is not to the exclusion of other partners that will have
contributed to the achievement of the same outcome. It is to meet the need to conduct
results oriented outcome evaluation of UNDP funded interventions.
UNDP funding of good governance capacity building in Uganda
The actual funding received by GoU/UNDP Good Governance for Poverty Eradication
programme has been as follows: in 2001 US$358,177; in 2002 US$1,126,957; in 2003,
US$1,481,552; in 2004 US$1,827,560 and by June 2005, US$872,819. The expected
actual funding from July to December 2005 is US$800,000. Total funding from UNDP
stands at US$6,467,065. The institutions that have benefited from this funding and that
have been able to build capacity are very appreciative of UNDP assistance.5
5
Interview with Finance officer ALD, Good Governance for Poverty Eradication Programme
8
8.
The logic model of the overall good governance
Programme
In this report emphasis has been put on the use of logic models to explicate the expected
logical flow of events from objectives to inputs, outputs and then to outcomes. This is
captured in a logic diagram, which is a summary of the life history of the programme in a
nutshell. It enables the evaluator to have a bird’s eye view of the interlinkages between
the different projects and how they relate to the overall programme’s objective and
outcome.
Level 1
(National
Strategy)
Level 2
(Sub –
Strategy)
Consolidation of good governance
PSP Page 4
Democratization
Human
Rights
Equity
Strength
en
MoGLS
to deal
with
Equity
Transparency
and
Accountability
Level 3
(Institutio
ns)
Strengthen
legislative
Capacity
Strengthen
HR
Capacity
Strengthen
IGG, DEI to
promote
Accountability
Level 4
(communi
ty)
MPs and
District
Councils
IGG Regional
HRs outreachMoLG
regional
office
sensitization
workshops
Offices
Policy Analysis and
Poverty Monitoring
Decentralization
Cross
cutting
issues
Poverty
Eradication
Design
and pilot
PDM, at
District,
S/county
& Village
Identify
needs,
Strategies
& main
stream
Strengthen
MoFPED
to deal
with
poverty
Pilot
PDM, at
Villages
and
Parishes
CSOs and
CBOs
Poverty
Studies
and
Surveys
Fig 1, Logic diagram of the overall good governance programme
The projects are also located in terms of levels: from the national level, the macro-level,
of overall national governance strategy and the lower levels of sub-strategy, the level of
9
institutions, and the community level. Each of the projects contributes of governance
improvements at all the levels. Even those which appear to be located in the community
such as PDM and PAPM, have impacts at the top level of strategies and policies.
The evaluation report is arranged in terms of one component after another that received
UNDP support.
9.
Evaluation of programme components
9.1
Strengthening the capacities of the Uganda Parliament as a Central
Governance Institution
Background: UNDP Uganda Parliament capacity building project
Parliament is recognized as the third pillar of the state, the other being the executive, and
the judiciary. An effective and autonomous directly elected Parliament provides a
democratic channel through which the demands and the interests of the public are
expressed and protected. Democratic governance is promoted by effective institutional
checks and balances between the three organs of the state. It is also promoted by the
institutionalization of separation of powers between the three organs of the state. UNDP
approach to governance emphasises the importance of complimentary joint contributions
of the three domains of governance: an effective and capable state, a productive private
sector that drives the engine of growth and prosperity, and a vibrant civil society that
mobilizes public opinion, galvanizes the expression and articulation of public interest,
and taps the springs of social capital in the culture and traditions of Ugandan society.
In order for the Uganda Parliament to fulfill these roles it needs to have the appropriate
and requisite individual (MPs, and staff) and institutional capacities. UNDP support for
the capacity building of the Uganda Parliament was conceived to promote these
objectives6 in response to Uganda’s democratization strategy which is “Democratization:
Strengthening legislative capacities: A Plan of modernizing Parliament. There is a need
to build on this plan to develop a longer term and more visionary perspective on the
development of Parliament and to launch a capacity building programme7.
Objectives of the Parliament capacity building project to strengthen the capacities
of Parliament as a Central Governance Institution.
The overall immediate objective of the Parliament capacity building project was to see
the “capacity of Parliament strengthened with legislators sensitized and trained in
poverty and related issues, planning, legislative and representation skills so as to
6
GoU/UNDP, Good Governance for Poverty Eradication, PSD second CCF 2001-2005, Kampala:
UNDP, July 2001 page 4
7
Ibid.
10
formulate and pass laws that are sensitive to poverty and related issues/concerns; and
capacity built in the Office of the Clerk to Parliament through staff training in relevant
skills”8.
Outputs of the Parliament capacity building project to strengthen the capacities of
Parliament as a Central Governance Institution.
 Staff trained in management, MPs inducted in parliamentary procedures
 Training in effective representation (MPs representing marginalized and
disadvantaged groups)
 MPs trained in integrating crosscutting issues in legislation
 CSOs with shared vision of participatory democracy and clear understanding of
their roles in influencing law making
 Strengthened Parliament and district councils relations through linkages and
networks.
Contribution and Relevance of the strengthened Parliament to the overall
governance Strategy.
The effectiveness of central governance institutions (ministries, departments and
agencies), the functioning of markets in which the private sector organizations compete,
and the CSO capacity to play advocacy roles depend on a conducive legislative and legal
regulative frameworks crafted and enacted by well informed and representative
parliaments. A Uganda Parliament that is strong and enhanced is able to contribute to
increased transparency and accountability through its Public Accounts Committee (PAC)
and Local Government Accounts Committee (LGAC). The reports of the Accountant
General, those of the Auditor General and those of the Office of the Inspector General of
Government are scrutinized and accountability enforced by Parliament. The project has
also contributed to making MPs conscious of the need integrate crosscutting equity issues
in the law making process.
8
Ibid. page 15
11
Increased Capacity of Parliament by members being
trained in legislative and representation skills for effective
governance of broad-based, equitable and participatory
development
Inputs
The staff of
Parliament,
OPPD
UNDP, SIDA,
DFID,
Parliamentary
Donor Group
NGO Forum
and other
CSOs
Parliamentary
Commission.
Outputs
Staff trained,
MPs
inducted,
management
and
procedures
Training in
effective
representation
(MPs of
disadvantaged/
marginalized
groups)
MPs trained
in
crosscutting
issues
CSOs with
shared vision
of
participatory
democracy
Strengthened
parliament
and District
Councils
Relations
Public Access
to live
Parliamentary
proceedings
and official
reports
introduced
Outcomes
Increased
efficiency of
parliament staff
to manage and
plan legislative
business
MPs increased
participation in
legislation and
production of
effective
legislative
frameworks
Increased
understanding of
CSO roles in
participatory
parliamentary
democracy
Enhanced
integration of
crosscutting
issues in
legislation and
parliamentary
business
Fig 2, Logical diagram of UNDP support to Parliament capacity building
12
Implementation Progress and Achievements of the Parliament capacity building
project
Most of the support activities have been carried out and the operational capacities have
been transformed from a rudimentary level when the project began to the present
Parliament that is equipped with modern features. From a time when Parliament had
limited capacity for verbatim reproduction of parliamentary debates, to the current
capacities to reproduce these data bases on a daily basis. Other improvements are
parliamentary ICT and Internet connections, databases and audiovisual TV systems on
which parliamentary proceedings are televised.
UNDP contribution to the Parliament capacity building project Outcomes
UNDP is a significant contributor to the capacity building of parliament through
providing management skills to the professional and technical staff of the Office of the
Clerk to Parliament, the parliamentary commission, and the Members of Parliament
especially those representing marginalized and disadvantaged segments of the population.
UNDP support also promotes themes fundamental to improvement of the quality of
legislation such as capacity to integrate crosscutting issues in legislation. The support has
enabled the realization of the following specific project outcome (See Logic Diagram of
the UNDP support to Parliament capacity building):
 Increased efficiency of Parliament staff to manage and plan legislative business
 MPs increased participation in legislation and production of effective legislative
frameworks
 Increased understanding of CSO roles in participatory parliamentary democracy
 Enhanced integration of crosscutting issues in legislation and parliamentary
business
 Public access to live parliamentary proceedings and official reports has been
introduced
Challenges faced in the design and implementation of the Parliament capacity
building project
 There was low absorptive capacity which needs to be fully analyzed. Measures to
increase the absorptive capacity need to be found by dealing with the factors that
caused it.
 Need to fully link the capacity building to the parliamentary committee on public
accounts.
 The project has coincided with and built the capacity of the Seventh Parliament
(2001-2006) but these will leave in 2006 as there is normally a high turnover
(60%) of MPs. The country will have to deal with building the capacity of new
entrants in Parliament.
13
Conclusions
The last three decades have seen the restoration of a national representative and
autonomous Parliament that has provided the foundation of democratic governance in
Uganda. The Uganda Parliament has demonstrated its good governance role by passing
votes of no confidence in corrupt ministers and getting the executive to fire them.
Parliament has been able to reject poorly drafted legislation by the executive and have it
returned to drawing board. The democratic role of Parliament is going to increase in new
era of multiparty democracy and MPs will need to develop new debating and
representational skills. The UNDP support to capacity building of the Uganda Parliament
has increased its effectiveness especially the capacity to reproduce and disseminate
verbatim
parliamentary
proceedings.
9.2
Strengthening the capacity of the Uganda Human Rights
Commission (UHRC) to promote, protect and realize human rights in
Uganda.
Background: UNDP support to capacity Building of the Uganda Human Rights
Commission.
The establishment and practice of democracy is closely linked with respect and protection
of human rights. Universally recognized human rights are entrenched in the Uganda
Constitution of 1995 which also provided for the establishment of the UHRC to promote
and protect these rights. One of the first major responsibilities of the UHRC was the
investigation of human rights violations of previous regimes. During the next five years
the UHRC grew steadily, developed a strategic plan and defined its mission. It also
embarked on expanding its outreach by establishing regional offices. In 2001 UHRC
needed support to perform its core functions of monitoring, handling complaints and
investigations. There was also need to strengthen its capacities to provide strategic
leadership in key areas of strengthening human rights in the country, such as human
rights education and the mainstreaming of a rights approach to development. This was
also the time when UNDP had taken a lead role at the UN to promote the recognition and
adoption by the United Nations of the right to development. There was therefore a
coincidence of common interest in the promotion of a human rights agenda as a key
ingredient of participatory democracy in which the fruits of development are shared
broadly and equitably.
Objectives of the Project to strengthen the capacity of the UHRC to promote protect
and realize human rights in Uganda
The overall objective of the UNDP project was to increase the capacity of UHRC and its
partners to promote, protect, and realize human rights in Uganda and to put in place
14
policies and plans that facilitate poverty eradication through decentralized, broad based
and equitable development.9
Immediate Objectives
The rationale for designing and introducing human rights education in the primary school
curriculum was aimed at inculcating beliefs and commitments to human rights a tender
age. Human rights especially the right to development should be mainstreamed in
institutions to be integrated in development planning. The immediate objectives were:
 To design a human rights education strategy and mainstream in education
institutions
 To design and implement a human rights information and communication strategy
 To strengthen regional out reach especially at the local level
 To develop a programme on the rights of people living with AIDS (PLA)
Outputs of the Project to strengthen the capacity of UHRC to promote, protect and
realize human rights in Uganda
The expected outputs of the project to strengthen the capacities of the Uganda Human
Rights Commission were:
 Human rights education strategy developed and implemented by at least 15
institutions.
 Strategy for mainstreaming human rights in PEAP developed.
 Strengthened capacities of key institutions in PEAP for implementing
mainstreaming and strategy implementation started.
 UHRC capacities for regional outreach strengthened and human rights
sensitization done with local governments at all levels.
 Major private sector organizations and companies with human rights codes or
plans.
 A programme of awareness raising on human rights of PLA and monitoring of
their protection.
Contribution and relevance of the UHRC project to the overall governance strategy
The beneficiaries of human rights protection tend to be the poor and the marginalized.
These activities contribute to the objective of poverty eradication, and by targeting the
poor they contribute to the benefits of development being broad-based. The UHRC
outreach programme ensures that the outcomes are decentralized and distributed to the
grassroots level. The mainstreaming of the right to development makes decision makers
aware of their responsibilities to the poor who can now assert their right to development.
Backward communities can now assert this right. UHRC also promotes the rights of
people living with HIV/AIDS from being neglected and stigmatized. Many Ugandans
9
GoU/UNDP, Good Governance for Poverty Eradication, PSD second CCF 2001-2005, Kampala:
UNDP, July 2001 page 15
15
whose rights have been violated by state agencies have been awarded compensation. All
this is evidence of the increasing efficiency and capacity of UHRC.
Increased capacity of UHRC and its partners to promote,
protect, and realize human rights in Uganda and to put in
place policies and plans that facilitate poverty eradication
through decentralized, broad based and equitable
development
Inputs
UHRC
staff and
office
HR
promotion
NGOs
UNDP funding
Outputs
Human
Rights
education
strategy
Strategy for
mainstreamin
g Human
Rights in
PEAP
Human
Rights
information
and
communicati
on strategy
Human
Rights
outreach 6
HRs
regional
offices
The rights
of People
Living with
HIV/AIDS
(PLA)
Outcomes
An informed
society that
respects and
upholds human
rights and rule
of law
Human rights,
especially, the
right to
development,
mainstreamed
planning
institutions
Improved
and
operational
Human
Rights ICT
systems, net
works, and
databases
Fig 3, Logical diagram of UNDP support to UHRC
16
Enhanced
protection and
care of PLA and
rights of the
disadvantaged
Implementation progress and achievements of UNDP support to UHRC
The objective of designing a Human Rights education strategy
The target was to develop human rights education modules and to integrate them in the
curricula of schools and institutions of higher learning. The activities were not carried out
because the curriculum for primary schools had just been produced and could only be
reviewed after 5 years. UHRC decided to form human rights clubs in schools while
waiting for the curriculum to be reviewed in 2006.
The objective of mainstreaming human rights approach in PEAP and strengthening
capacities of key institutions.
The intended outcome was to introduce a Rights Based Approach to Development as a
measure of development. This would result in reduced reliance of GDP and per capita as
indicators of growth and broaden and deepen measures of development. A national
discussion paper was produced and was discussed nationally. However, the discussion
paper is still in draft and has not yet been adopted as a policy. Nevertheless, personnel
responsible for planning in key line ministries have appreciated the concept and are
integrating it in their planning.
The objective of designing and implementing a human rights information and
communication strategy
The intended outcome was to ensure that human rights institutions have a common and
shared vision of the rights being promoted in Uganda.
An information and
communications strategy for UHRC and its partners was developed and implemented.
The result is that UHRC and its partners have a common set of rights that they are
promoting in the country.
The objective for regional outreach strengthened especially at the local government
level
The intended outcome was to strengthen regional offices and use them to reach the
districts and the lower local governments and to sensitise leaders about the importance of
protecting human rights. The regional offices were thinly staffed and lacked skills to
manage records and reports about human rights. As result of UNDP-supported minilibraries have been developed at the UHRC regional offices. UHRC profile and presence
has been enhanced at the regional and local level.
The objective of developing a programme on the rights of people living with HIV/AIDS
The intended outcome of this intervention was to enhance the protection and care for
PLA through the holding of regional workshops and highlighting the plight of PLA.
UHRC had not yet come up with a policy on how to deal with this. Three regional
workshops were held in conjunction with Ministry of Health, Uganda AIDS Commission,
17
and NGOs. UHRC now has a vulnerable persons desk to deal with issues of HIV/AIDS
among others.
UNDP contribution to the UHRC Project Outcome
The contribution of UNDP to the UHRC has promoted several important project
outcomes:
 The movement towards a society that is well informed, respects, and upholds
human rights and rule of law;
 Improved and operational Human Rights ICT systems, net works, and databases;
 Increased awareness of the need to integrate human rights, especially, the right to
development planning processes;
 Enhanced protection and care of PLA and rights of the disadvantaged.
Challenges faced by the Project to support the UHRC
 The target of introducing human rights education in the curricula of schools was
not achieved because the syllabus was already approved and it rakes 5 years for
the next review.
 A draft strategy for mainstreaming a right-based approach to development was
designed but has not yet been adopted as policy.
 The work of UHRC has expanded to outreach regional office and the volume of
workload has increased. There is a need for further review of new capacity
building needs and how to meet them.
Conclusions
During three decades of misrule in Uganda there were massive violation of human and
rights and freedoms. The NRM government, which came into power in 1986 was
resolved to restore human rights. A commission was set up to investigate the gross
violation and when the opportunity came to draft a new Constitution in 1995 the
protection of human rights was entrenched in the Constitution and provided for the
establishment of a Human Rights Commission. The commission was established in 1996
and has since been able to provide an institutional forum in which cases of human rights
violation can be taken. The commission has resolved many cases of aggrieved persons.
However, as a new institution it had limited capacity to handle highly complex legal and
human rights issues and needed technical capacity building, which were, provide by
UNDP and other donors. The focus of interest for UNDP was the promotion of human
rights in the education system through the introduction of human rights education. While
it was not possible to implement this component because the syllabus was already
approved, the next review of the syllabus is expected in 2006 and this desirable objective
18
can now be pursued. Another major area of capacity building was the promotion and
mainstreaming of rights based approach in planning and in decision-making. UHRC also
embarked on decentralizing its services in regional outreach offices and a lot of cases are
now being received at these regional offices. However, professional and technical
capacity at the national and regional offices is still low.
9.3
Strengthening the capacity of the Ministry of Gender, Labour and
Social Development (MoGLSD)
Background: Project of the MoGLSD
One of the components the Good Governance programme in Uganda was designed to
deal with was strengthening the capacity of governance institutions, especially ministries,
departments and agencies. Within this arrangement, immediate objective 1.3 focused on
strengthening the capacity of the MoGLSD to promote equitable, broad-based
development.
UNDP’s support towards the capacity strengthening was extremely essential in that this
ministry is responsible for the promotion of social equity. This was indeed a strategic
contribution from UNDP that responded to a need shared by diverse categories of
stakeholders, especially women, men, youth, persons with disability and PLA.
The project was designed to work through partnership-building with stakeholders whose
activities dealt with equity issues. Although it was planned that the immediate
beneficiaries would be MoGLSD, its partners as well as the women and girls of Uganda,
such partnership building enabled the results of the project to be extended to other
stakeholders including men and boys.
Objectives of the project on strengthening the MoGLSD
The objectives of the various components of this project included the following:
 To develop an equity strategy that provides a guide to the lead agency (MoGLSD)
and other implementing partners on ways and means of strengthening capabilities
to identify where inequities are likely to influence resource allocation and
expenditure; Assist in developing activities and approaches to promote equity in
the development process through linkages and coordination with existing efforts
in Uganda.
 To undertake capacity needs identification exercises through carrying out
consultations at different levels in order to identify capacity gaps that are critical
in developing action-specific programmes for equity promotion.
 To develop a community mobilization and empowerment strategy for effective
participation in the development processes.
19
Capacity needs met by MoGLSD and adequacy of project design
As a crosscutting concern, the design of activities for promoting equity involved various
actors that included10: the Aid Liaison department of the MoFPED with the role of donor
coordination; and the MoGLSD as implementing institution and coordinator of activities.
This institution was also provided with a National Social Development expert and one
UN Volunteer. The UNDP provided the funds. Partnerships were built with other
ministries, civil society organizations and districts. The beneficiaries included the
MoGLSD (the main implementer) as well as the partners who were involved in the
activities.
The methodology that was used for the implementation of activities included: research,
training, dialogue through workshops and planning sessions. The activities were
undertaken at various levels including national, district, and community level. However,
it should be noted that such a diversity of target groups would have required a large
number of staff. The MoGLSD used the strategy of working with already existing
personnel at district and community level in order to enable them to own the process and
sustain the equity promotion initiatives.
The main project design limitation was reliance on many actors who would sometimes
have the mandates to do the work but who gave less priority to the activities of the
MoGLSD project, for which they think they owe no accountability.
10
see logical model of the project in Fig 3.
20
Capacity of the MoGLSD strengthened to promote
equitable broad-based development
Inputs
MoFEPD
(ALD)
MoGLSD;
National Social
Development
Expert and only
one UNV
UNDP funding
Collaborating
ministries,
departments, CSOs
& districts
Outputs
Dialogue &
strategies for
increasing equity
in Uganda
Dialogue & strategies for
identifying all
disadvantaged groups
Measures to
improve status of
all disadvantaged
groups
Capacities of
MoGLSD, agencies &
CSOs strengthened
effectively to improve
equity for their
constituencies.
Outcomes
Effective projects
formulated through
comprehensive
equity promotion
strategy & related
action plans
Improved service
delivery to the poor
and vulnerable
achieved through
clear formulation of
the scope of equity
promotion
The poor &
vulnerable
empowered to
demand for services
and participate in
development
processes
Framework for
interventions in social
development goals
provided in ways which
ensure that performance
measures address a
rights perspective (issues
of discrimination,
conflicts, women’s
rights, etc.)
Fig 4: Logical diagram of UNDP support for enhanced capacity of the MoGLSD
21
Outputs from MoGLSD capacity building for equity promotion
Within the context of the first output on dialogue and strategy formulation, some of the
activities have enabled the creation of linkages with international and national gender
committees. For example, the ministries support to the validation of the Third Convention
on the Elimination of all forms of Discrimination against Women was a response to
Uganda’s obligations under the CEDAW treaty having been signed and ratified in 1985.
Also, the support to the formulation of draft Community Development Policy provided
guidance to interventions in community development programmes.
The second output that was undertaken, involved effective strengthening of capacities of
MoGLSD and other key agencies as well as Civil Society Organisations to improve
equity for their constituencies, including measures to strengthen local community
capacities.
The capacity building efforts with MoGLSD produced the following outputs:











Dialogue and strategies for increasing equity in Uganda
Dialogue and strategies for identifying all disadvantaged groups
Measures to improve status of all disadvantaged groups
Capacities of MoGLSD, agencies & CSOs strengthened effectively to improve
equity for their constituencies.
Formulation of strategies, action plans and measures for promoting equity
concerns
Building of capacity of MoGLSD, CSOs and other actors for efficient and
effective ways of working on activities that promote equity as a good governance
issue.
Promotion of women’s rights through contributing to the validation of the third
report of CEDAW and survey of work places in 8 districts and private companies
Finalization of the Social Development Sector Strategic Investment plan
Support to the technical in-puts that are required for establishment of the Equal
Opportunities Commission.
Provision of technical in-put to the sector working groups to mainstream gender
in the revision of PEAP
Facilitating and providing encouragement for formulation of a policy for People
with Disabilities as well as mainstreaming gender in their activities
Outcomes
The capacity building activities and outputs had the following outcomes and results:
 Effective projects were formulated through comprehensive equity promotion
strategy and related action plans
 Improved service delivery to the poor and vulnerable was achieved through clear
formulation of the scope of equity promotion
22
 The poor & vulnerable were empowered to demand for services and participate in
development processes
 Framework for interventions in social development goals was provided in ways
which ensure that performance measures address a rights perspective (issues of
discrimination, conflicts, women’s rights, etc.)
Contribution of MoGLSD towards achieving the SRF/ROAR outcome
The project has contributed to provision of means for increasing equity in Ugandan
society by formulating effective and comprehensive equity promotion strategy as well as
related action plans. This has enhanced the efficiency of planning and delivery of services
as well as minimising duplication of effort. Identification of the scope of equity
promotion of good governance by various institutions and service delivery agents, has
enabled the poor and vulnerable to demand for such services.
The formulation of implementation guidelines and standards has provided ground for a
transparent planning, implementation and monitoring process for equity related
programmes. Although this does not mean that the participation of the disadvantaged
groups is ensured, it is one of the ways through which service providers can be
accountable to serving the disadvantaged groups.
Partnership approaches that were created provided ground for coordination and synergy
building with on-going activities at district and ministry level. Increased awareness in
articulating equity needs and concerns enabled formulation of linkages with other UNDP
programmes, such as Uganda Human Rights Commission and AMICAALL. Also, the
equity activities undertaken by the MoGLSD created further demand for formulation of
strategies and action plans in areas that were emerging out of the changing
socioeconomic conditions of the country (such as the need to develop the National
Employment Policy, revise the obsolete labour laws and have equity regulations in the
workplace to address problems at employment level).
UNDP contribution to MoGLSD Project Outcome
 The staff working on the project at the MoGLSD gave a rating of 80% as the
contribution made by UNDP towards the project outcomes (See outcomes in Fig
3).
 Building of greater attention to equity as a development issue has been instituted
in Government Ministries, CSOs and other stake holders that have interacted with
MoGLSD
 Work done to support processes of the Equal Opportunities Commission have
enabled creation of a starting point for mainstreaming a rights based approach in
development concerns
 The stakeholder groups that have been involved in this project have obtained
skills, which will enable them to effectively contribute to policy change and legal
interventions.
23
Challenges faced by the MoGLSD Project
The implementation of the MoGLSD project largely depended on building alliances and
partnerships to achieve its objectives. This approach enabled the building of synergies in
work done to promote equity in Uganda.
One of the major weaknesses that the project faced was that of limited financial
resources. There was a need to seek for collaborative efforts with line ministries and
other stakeholders in both financial and human resources. This would ensure effective
implementation of activities.
The mandates of gender and other components of equity concerns continue to be critical
and strategic in the role of the MoGLSD. There is a need to further support
mainstreaming of these concerns in all development activities. This requires further
funding from UNDP and other development partners.
Conclusions
The Equity project of the MoGLSD is an example of a project that contributed to good
governance through promoting equity strategies and measures. This was possible through
building partnership with different stakeholders who brought together their concerns,
skills and methodologies in ways that helped to provide synergies in work done. It is also
an example of how good governance can be worked on through linking government
ministries with CSOs and other actors.
9.4
Strengthening the capacity of the Office of the Inspector General of
Government
Background
To the poor, corruption is an additional cost above the legitimate price. The National
Integrity Survey 2003 indicates that the sectors leading in corruption are the same ones
that the poor desperately demand services from: the Police, health services, the judiciary,
tax collection, and local councils. Corruption hits the poor more than anyone else
because the poor are too powerless to resist. Moreover, corruption drains the government
of its resources thus undermining its ability to deliver services. For this and other reasons,
PEAP strongly links poverty eradication with the good governance issues that eliminate
corruption, bribery, social inequity and unfairness.
Objective of UNDP support to the Office of the IGG
The overall purpose of UNDP intervention under this component was to increase the
capacity of the IGG to combat corruption and, in conjunction with the Department of
24
Ethics and Integrity (DEI) and others, ensure transparency and accountability, in all
sectors at all levels. UNDP supports the IGG and the DEI under the same Programme
Support Objective.
Good governance calls for accountability of the use of the national resources on the part
of the leadership. It expects transparency, efficiency and responsibility. This essential
aspect of good governance coincides with the mission statement of the IGG: “promoting
good governance through enhancing accountability and transparency: and enforcement of
the rule of law and administrative justice in public offices”. UNDP support to the IGG
therefore, contributed to the good governance strategy.
Outputs of the IGG programme





Increased skill in handling high profile cases of investigation and prosecution.
Thoroughness in investigation and prosecution.
Improved report writing.
Increased awareness about dangers of corruption.
Sanitised district leaders, Local Councillors, private sector, media and civil
society.
 Increased awareness about crosscutting issues like HIV and AIDS.
 Participation in Anti-Corruption Week every year.
 Second National Integrity Survey carried out and results disseminated.
Capacity needs of the IGG and adequacy of project design
The IGG’s Office was in existence many years before the UNDP project but its low
internal capacity to detect, investigate, and prosecute corruption cases legitimately led to
the need for external assistance. The provision of technical personnel to train staff on
the job was appropriate. The use of relatively inexpensive UNVs, who typically combine
operational and advisory roles, promoted efficiency in project delivery.
Contribution and relevance of IGG project to overall governance strategy
Good governance calls for accountability of the use of the national resources on the part
of the leadership. It expects transparency, efficiency and responsibility. This essential
aspect of good governance coincides with the mission statement of the IGG: “promoting
good governance through enhancing accountability and transparency; and enforcement of
the rule of law and administrative justice in public offices”. UNDP support to IGG,
therefore, contributed to the good governance strategy.
Implementation Progress
The project has been successfully implemented as designed. The UNVs were supplied
and have trained and mentored IGG staff in investigation and prosecution for the entire
duration of the project. Beneficiaries of the training testified to the Evaluation Mission
25
that the UNVs had imparted invaluable skills e.g. in Kabale. UNDP, in partnership with
DANIDA, further assisted to conduct the 2002-2003 National Integrity Survey. It also
financed regional meetings of the IGG to sensitise districts about ethics, accountability,
integrity and transparency. UNDP also provided direct funding for project activities for
example IGG in Kabale received financial support to investigate alleged failure to
account for funds in Kanungu district and alleged lack of value for money spent in
counties. It also financed an alleged corruption and embezzlement of funds at Katuna
where collectors of border fees were not remitting it to the government. UNDP also
financed the radio programme “Ngazoire” to increase awareness of the local community
about the IGG.
During the Second National Integrity Survey conducted by the Office of the IGG in 2003,
it was established that the public awareness of the work of the IGG had risen to 70% of
the respondents, compared to 32% in 1998. Although most of the cases handled by the
IGG continue to be received in Kampala, there is a marked increase in those received at
the regional offices. Between January and June 2005, Kabale IGG Regional Office
received 184 cases for investigation.
The Leadership Code Amendment Bill was passed by Parliament in April 2002. Under
the revised Code, specified public officials were required to declare their wealth by 12th
November 2002 after which sanctions would come into force. The office of the IGG has
set up a Leadership Code Directorate to implement the Leadership Code provisions.
More than 8,000 submissions of statements of income, assets and liabilities were received
by the IGG as of the due date of 13 November 2002. A majority of the total of over
17,000 eligible to declare their assets liabilities and incomes did declare.
Achievement by the IGG of the intended outcomes
The Project Support Document identified two intended outputs from this intervention,
namely, the strengthened capacities of the IGG in investigation, prosecution, inspection,
and fighting corruption procedures (output 17) and the conduct of the Second Integrity
Survey (Output 18). These outputs were realised and in turn contributed to a downward
trend in overt incidences of corruption. For example, reported incidence of bribery
decreased as follows from 1998 to 2003: Police from 63% to 46%; URA from 40% to
31%; and Magistrates Courts from 50% to 29 %.
To enhance access to IGG services, the IGG established 10 regional offices. Although
most of the cases handled by the IGG continue to be received in Kampala, there is a
marked increase in those received at the Regional Offices. The presence of IGG’s Office
in the regions increased its visibility and brought it closer to complainants. It also
increased the speed with which local issues are dealt with. The Second National Integrity
Survey conducted by the Office of the IGG in 2003, established that the public awareness
of the work of the IGG had risen to 70% of the respondents, compared to 32% in 1998.
26
Outcomes of the IGG programme
 IGG staff got on-job training in preparation and information gathering, evidence
recognition and analysis, possible offences and their ingredients, statement and
report writing, witness preparation and briefing, case presentation, dealing with
appeals.
 National Integrity Survey was carried out and results were disseminated. This
resulted in increased public awareness about evils of corruption, increased
number of complaints received by IGG.
 Indirectly contributed to the anti-corruption legislation: - Inspectorate of
Government Act 2002, and Leadership Code Act 2000.
 Strengthened the capacity of the IGG in investigation, prosecution, inspection,
and fighting corruption.
 Reduction in corruption.
 Increase in accountability in public sector.
 Significant recovery of public funds are realized when officers fail to account,
which results in cost effectiveness.
 Where officers have been improperly recruited, the IGG’s investigations have led
to their removal from office and the recruitment of suitable and appropriately
qualified staff, which enhances efficiency.
UNDP Contribution to the project outcome
UNDP’s financial contribution to the IGG was small relative to the entire IGG budget.
The Government of Uganda provided the bulk of its expenditure. But UNDP’s technical
support to develop technical skills for the IGG to function efficiently was much more
than the relatively little money provided. The success of the IGG during this period is
therefore to a large extent credited to the good focus of UNDP support.
Contribution towards achieving the SRF/ROAR outcome
By becoming a stronger and more effective institution, the IGG has contributed to the
SRF/ROAR outcome of “increased efficiency and accountability in the public sector
through capacity development”. Together with sister organisations like the Public
Accounts Committee of Parliament, the Directorate of Ethics and Integrity, the Auditor
General, the PPDA, and others, the IGG is increasingly becoming more efficient and
accountable to the general public.
Effectiveness of UNDP Partnership Strategy
UNDP effectively partnered with others to achieve this outcome. UNDP is one of the
several donors and stakeholders that assisted the Inspectorate. Others are DANIDA
($1,424,000), DFID, Irish Aid. The donors’ annual contribution to the expenditure of the
27
Office of the IGG constitutes about 3.5% of IGG resources11, the bulk of which are
provided by the government of Uganda (96.5%).
Overall Project
Objective
To increase the capacity of the IGG to promote ethics and integrity, to fight corruption
and ensure transparency and accountability in all sectors at all levels
Inputs
Government:
Operational costs
Office accommodation and
facilities
UNDP:
5 UNVs,
direct funding of specific
activities
office equipment
Outputs
Strengthened capacity of
IGG in investigation,
prosecution, inspection,
and fighting corruption
Second
Integrity
Survey
Outcomes
Reduction in
corruption
Increase in
accountability in
public sector
Reduced loss of
government
resources
Fig 5, Logical diagram of UNDP support for the IGG capacity building
11
Ref. Projected Expenditure for 2004/05 in IGG Corporate and Development Plan (CADP) 20042009, April 2004.
28
Challenges
The IGG has been effective at investigating corruption cases but it has no powers to
enforce its recommendations hence relies on the commitment of others for enforcement.
The IGG is greatly understaffed, both at the headquarters and regional level. For
example Kabale IGG regional office has five technical staff covering the districts of
Kabale, Kisoro, Kanungu, and Rukungiri districts. During the first six months of 2005
alone, the office received 184 new cases for investigation, that is, an average 36.8 new
cases per officer. Kabale office estimates that, on average, an officer handles about 100
cases (new and old cases). The understaffing of this magnitude overburdens efficiency.
Although the UNVs provided by UNDP are based at the headquarters to provide on the
job training, it is widely believed that they also play a gap-filling role, thus undermining
the sustainability of the capacity created.
Although corruption had reduced, it still exists, (and evidenced by new cases for
investigation). DEI attributes corruption in Uganda mainly to “low salaries and delays in
payment of salaries12, political corruption involving buying of votes and the need for
politicians to recoup election expenses, when they acquire power; and profiteering by
some politicians from a situation of insecurity in some parts of Uganda” (DEI. October
2004). Empirical evidence does not show that the root causes of these factors have been
significantly addressed.
Conclusions
The support provided by UNDP built and strengthened the capacity of the IGG to more
efficiently investigate and prosecute cases of corruption. The concentration of the UNVs
at the Headquarters, to some extent, reduced their impact in districts where they are not
posted. The effect of the combined efforts of the IGG and all institutions charged with
promoting accountability, and ethics resulted in efficiency in tracking down corruption
and promoting good governance. The intervention of UNDP contributed to the
SRF/ROAR outcome of increased efficiency and accountability through capacity
development. But corruption in Uganda remains a big problem. The root causes of
corruption remain elusive. Nevertheless UNDP and other partners laid the foundation of
a sustainable capacity to combat corruption on a long-term basis.
12
It is noteworthy that high profile cases of corruption are not committed by persons of low income.
29
7.5
Strengthening the capacity of the Directorate of Ethics and Integrity
Background
By the mid 1990s there were many agencies involved in the fight against corruption in
the public sector. The office of the IGG had also been combating corruption since1986,
but these operations agencies were acting without a policy framework. In 1998 the
President established the Directorate of Ethics and Integrity (DEI) underscoring the need
for political, legislative, and strategic framework to promote integrity and to guide anticorruption polices and programmes. DEI embarked on the design of Government’s
Strategy and Plan of Action to Fight Corruption and Build Ethics and Integrity in Public
Office (GSPOA), which was completed and launched in year 2000. Promoting
accountability and transparency was included among nine components of the National
Programme of Good Governance and was one of the focus areas of GoU/UNDP
cooperation and support. “The capacities of the DEI and the IGG need to be strengthened
to promote ethics and integrity, transparency and accountability and to build alliances
with civil society and the private sector for improved performance in curbing
corruption”13
Role and mandate of DEI
The role of the DEI is “to coordinate anti-corruption efforts in the country, to formulate
anti-corruption policy for and reviewing the relevant legal provisions, spearheading the
development of ethical and integrity standards, and causing capacity to be built among
public anti-corruption agencies and facilitating the development of mechanisms for
monitoring and evaluation of performance”14. In the fulfillment of this role the DEI
developed the following activities for the 2001-2004 period15:
 Coordinating and monitoring the activities of the Inter-Agency Forum.
 Mainstreaming ethics and rebuilding Integrity in the public office.
 Receiving, following-up and ensuring enforcement and implementation of the
recommendations of various Commissions of Inquiry.
 Educating and mobilizing the people of Uganda to reject corruption and other
unethical behaviour.
 Playing the role of a public relations office for the enhancement of those societal
norms that develop and promote good ethics and high levels of integrity.
 Disseminating information on the implementation of government policies and
programmes against corruption.
 Coordinating and managing joint participation in national and international
functions that relate to the fight against corruption.
13
GoU/UNDP, Good Governance for Poverty Eradication, PSD second CCF 2001-2005, Kampala:
UNDP, July 2001 page 5
14
Republic of Uganda, Anti-corruption Progress Report on the Government Strategy and Plan of
Action to Fight Corruption and Rebuild Ethics and Integrity, May 2001-October 2004, Kampala:
Directorate of Ethics and Integrity, October , 2004 page 7
15
ibid. page 8
30
Strategic Objective
This project was directly related and relevant to the overall objective of the UNDP
supported good governance programme: namely, increasing the efficiency, transparency,
and accountability in Uganda through the strengthening of the capacities of central
governance institutions to put in place policies and plans that facilitate poverty
eradication through decentralized, broad-based, equitable development. The immediate
objective was phrased combining the DEI and IGG as “increased capacity of the Office
of the Inspector General of Government (IGG), and the Directorate of Ethics and
Integrity, Office of the President, and their partners to combat corruption and ensure
transparency and accountability in all sectors at all levels through the promotion of
ethics and integrity”16 The division of labour is such that the DEI deals with policy
making and monitoring and the IGG deals with anti corruption operations.
Outputs of capacity building to DEI
 Needs assessment workshops to design ethics and integrity strategies and policies
 Consultative workshops to broaden participation in the strategy and policy
making process
 Sensitization workshops to promote knowledge, awareness and commitment to
ethics and integrity in the national and local governments
 Strategy and policy papers and action plans for coordinating the adoption and
practice of ethics and integrity in the public sector
Contribution and relevance of the project to the overall governance outcome
The project to combat corruption in government was directly linked to the overall
governance outcome, which is “increasing the efficiency, transparency, and
accountability” in Uganda.
Capacity needs of the DEI and adequacy of project design
As can be seen from the logic diagram of the UNDP support to the DEI there a logical
and proper flow from the immediate objective to the inputs, the outputs and then to the
outcomes. The DEI had been set up in 1998, and was therefore two years old, and clearly
needed support in terms of acquiring skills and competencies in diagnostic analysis of
lack of integrity in public office and the rampant corrupt practice. It needed support in the
translation of findings into policy proposal and policy alternative choices, and the
construction of strategies and action plans. The DEI was supported to conduct
consultation and sensitization activities to increase and widen public awareness of the
scourge of corruption and the appropriate actions to combat it.
16
GoU/UNDP, Good Governance for Poverty Eradication, PSD second CCF 2001-2005, Kampala:
UNDP, July 2001 page 16
31
The two outputs were well articulated (i) a national strategy paper and action plan
developed and launched (ii) sensitized and knowledgeable local councilors and
administrators. However, the specification of the outcome indicators, and baseline and
targets were poorly defined17. For example, “Frameworks and guidelines distributed to
participating Districts”, is indicated in 2001 as outcome indicator as well as in 2002, 2003
and 2004 as the same benchmark. But if it is already achieved in 2001 why should it
appear in all the subsequent years? The challenge here is to specify increasing or
reducing quantities of benchmarks.
Implementation progress and achievements
All the planned consultation and sensitization workshops were held, and a National
Strategy and Action Plan to Fight Corruption and Rebuild Ethics and Integrity in Public
Office (2004-2007) were completed by July 2004. But the DEI has been unable to carry
out mainstreaming activities for lack of funds. In the interviews in the field, one district
officer asserted that he had attended the Ethics and Integrity Workshop and had found it
very informative. He also had the view that anti-corruption officials were carrying out
unobtrusive investigations and observations. Whether this is true or false as long as it is
believed it has a deterrent effect on public officials.
Contribution towards Achieving the SRF/ROAR outcome
SRF/ROAR outcome for the period 2001-2003 was stated as “increased efficiency and
accountability in the public sector” and the activities of the DEI contributed directly to
this outcome. Organization of consultation, training, public awareness, and sensitization
workshops, and widespread dissemination of information about ethics and integrity have
resulted in increased public knowledge of government anti-corruption campaigns. The
results of national integrity survey have shown improvement in perception of corruption
in public institutions. The capacity of the DEI to conduct policy need assessment and to
design strategic action plans has been strengthened making it an efficient and effective
organ of government. Largely because of this success, there is increasing demand for
guidance on ethics and integrity, which the DEI is unable to meet because of inadequate
professional and technical staffing.
17
GoU/UNDP, Good Governance for Poverty Eradication, PSD second CCF 2001-2005, Kampala: UNDP,
July 2001 page 53 and 54
32
Increased Capacity of the Directorate of Ethics to promote
Ethics and Integrity, and fight corruption and ensure
transparency and accountability in Uganda
Inputs
DEI staff
and office
Anticorruption
agencies
NGOs
UNDP funding
Outputs
Needs
Assessment
Workshops
Consultative
Workshops
Sensitization
Workshops
Strategy and
Policy Papers
Outcomes
Knowledgeable
and informed
pubic officers on
issues of ethics,
accountability and
integrity as a result
of sensitization
DEI increased
capacity to deal
with issues of
ethics and
integrity as a
result of handson training
Increased
awareness among
local governments
about ethics, and
integrity as a result
of sensitization
Mainstreaming
not yet done
because of lack
of financial
resources
Fig 6, Logical diagram of UNDP support to Directorate of Ethics and integrity
Specific outcomes of DEI capacity building
 Knowledgeable and informed public officers on issues of ethics, accountability
and integrity as a result of sensitization
 DEI increased capacity to deal with issues of ethics, and integrity as a result of
hands-on training
33
 Increased awareness among local governments about ethics, and integrity as a
result of sensitization
 Mainstreaming not yet done because of lack of financial resources
UNDP contribution to the project outcome
UNDP support to the DEI was highly catalytic and focused on building capacity for
developing strategy and action plans for mainstreaming ethics and integrity. The support
enabled the DEI to organize stakeholder consultations on the strategy and action plan.
Five (5) regional sensitization workshops promoted awareness and understanding of
ethics and integrity among local government actors. UNDP and the Government of
Uganda have been the main contributors to this project outcome.
Conclusions
While there were many agencies involved in anti-corruption activities, there was a need
for a policy making and coordinating institutional framework. This was met by the
creation of the DEI in 1998. UNDP support to build the capacity of this new unit was
timely and relevant. Developing an ethics and integrity strategy and policy and
mainstreaming it throughout government was directly connected to the SRF/ROAR
outcome of increasing efficiency, transparency and accountability in the public sector.
7.6
Strengthening the capacity of the Public Procurement and Disposal of Public
Assets Authority in Uganda (PPDA)
Background
PPDA was established in 2003 to: ensure the application of fair, competitive, transparent,
non-discriminatory and value-for-money procurement and disposal standards and
practices; harmonize the procurement and disposal policy systems and practices of
central government, local governments and statutory bodies; set standards for the public
procurement and disposal systems in Uganda; monitor compliance of procuring and
disposing entities; and build procurement and disposal capacity in Uganda.
Objectives of UNDP/ PPDA Project
The immediate objectives of the project as reflected in the project document were:
 To build the institutional capacity of the Institutional and Manpower Division
of the PPDA to undertake its responsibilities as coordinator/provider of
procurement training for staff in all procurement entities and serve as a
national procurement advisory centre.
 To build the capacity of local training institutions to enable these institutions
34






to deliver the required procurement training for staff in all training
procurement entities
To build institutional and staff capacity in all procurement entities to ensure
that all procurement activities are conducted in a timely, efficient, and
transparent manner.
The project thus targets the capacity of (i) the PPDA itself, (ii) the capacity of
the local training institutions, and (iii) the capacity of staff of the procurement
and disposal entities (PDEs).
To train and sensitize public officers about appropriate tender and procedures,
disposal of public assets procedures and systems
To produce and distribute capacity building reports and manuals
To build sustainable institutional and human resources capacity in all PDEs
To ensure that all public sector procurement and disposal of assets activities
are conducted in a competitive, fair, transparent, non-discriminatory, timely
and efficient manner
Outputs of capacity building at PPDA
 The revision of training modules was fully achieved.
 The drafting of training policy and national training framework was fully
achieved.
 Inception of instructional training in local government institutions was fully
achieved.
 The development of a database for the staff of PDEs was partially achieved.
 The development of a cadre of trained procurement specialists, were partially
achieved.
 The creation of awareness among all stakeholders of deviant conduct by PDEs
was partially achieved.
 Promotion of sustainable capacities of PPDA and the PDEs to support budget
execution and empower local firms to respond to the training needs of PDES was
partially achieved.
 What was not achieved was the significant reduction in incidence of irregular and
non-compliant conduct on the part of PDEs.
 Strategies and guidelines for capacity building tendering and procurement
processes and procedures were developed
 Capacity of public officers, providers, PDEs to ensure value for money in
procurement and disposal of assets was enhanced.
Expected Outcomes of PPDA capacity building
By addressing the challenges of the then Reformed Central Tender Board, the project
intended to contribute towards the following outcomes: improved accountability;
35
reduction in the incidence of corruption; and ensuring value for money in the application
of public funds. The expected outcomes were:







Efficiency and transparency of PPDA and PDEs
Reduced procurement irregularities
Reduced risk of corruption
Improved level of institutional, administrative, and human resources procurement
Improved rates of transparency and accountability
Reduced bureaucracy and increased efficiency
Improved ethical conduct
Capacity needs of PPDA and adequacy of project design
PPDA had just been established and had little capacity to fulfill its mandate. The
procurement system was new to training institutions and to the PDEs both at central and
local government levels of government. The project, therefore, was designed to meet
urgent needs at these levels. The project’s target to strengthen the internal capacity of
PPDA itself, training institutions, and PDEs at all levels simultaneously was a correct
strategy to contribute to the outcome of increasing national procurement efficiency and
reducing irregularities. The project may have been overambitious in setting its
deliverables but it reflected the real capacity needs all the same.
The PPDA developed a training plan of all procurement entities and training modules to
cover all aspects of procurement. The plan provided for: training of Central Government
staff; training of contracts committee; and on-the-job training of PDEs.
.
The areas of training that targeted institutions appear to have been comprehensive. The
compositions of UNDP-funded technical personnel to PPDA and the array of training
courses were relevant to the skill needs of the target institutions.
Contribution and relevance of the PPDA project to the overall governance strategy
UNDP intervention supported the training of the staff of PPDA as well as the staff of
procurement entities to enforce compliance with the new procurement requirements
under the new procurement law. These requirements were in turn designed to improve
accountability, integrity, and transparency, reduce incidents of corruption, and ensure
value for money in all procurement entities. UNDP, therefore, through this project
sought to contribute to the tenets of good governance.
Implementation Progress
The project operated on less than the planned financial and technical resources. The Chief
Technical Adviser left early in 2004 and was not replaced. The senior consultant was not
36
recruited. Only one of the two national experts was recruited and did not assume duty
until June 2004.
Achievement of the specific objectives, as assessed by the PPDA (Shipman 2005), ranged
from complete, partial and non-achievement. The revision of training modules, the
drafting of training policy and a national training framework, as well as the inception of
instructional training in local government institutions were achieved. The development of
a database for the staff of PDEs, the development of a cadre of trained procurement
specialists, the creation of awareness among all stakeholders of deviant conduct by PDEs,
promotion of sustainable capacities of PPDA and the PDEs to support budget execution
and empower local firms to respond to the training needs of PDEs were partially
achieved. What was not achieved is the significant reduction in incidence of irregular
and non-compliant conduct on the part of PDEs.
Of the 10 deliverables listed above, three were achieved, five partially achieved, and two
not achieved, indicating an overall low achievement. Of the 5,565 participants planned
for training, only 3,450 (62%) were trained.
PPDA gives several reasons for this underachievement. First, there was cancellation of
training by PDEs due to other commitments. Second, there was limited time to plan and
prepare for the scheduled training. Third, there was limited human resource in the PPDA
to carry out all the training. Fourth, some PDEs showed little interest in participation
because no allowances were given for the participation.
Achievement of intended outcomes of the PPDA Project
The project sought to lead to improved accountability, reduction in corruption, and
ensuring value for money. Though not completed, the training provided the necessary
skills to gradually contribute towards this outcome. However, as malpractices are not
based on ignorance alone, the training programme would not by itself be sufficient to
achieve these outcomes. Indeed procurement audits based on a small sample frame have
revealed, “procurement continues to be conducted by irregular and non-compliant
practices” (Shipman 2005). A survey of perceptions of corruption planned for late in the
year will provide further evidence. In addition, the compliance by local government still
awaits the amendment of the Local Government Act, currently in progress.
Contribution towards achieving SRF/ROAR outcome
The SRF/ROAR intended outcome was the “increased efficiency and accountability in
the public sector”. The establishment of the PPDA and the development of its internal
capacity contributed to this outcome. Although not all planned participants were trained,
those that were represented a cross-section of PDEs. They therefore, to some extent,
contributed to efficiency in the capacity to apply these new regulations.
37
UNDP Contribution to the PPDA Outcomes
UNDP was a major player in the capacity building support to the PPDA project and
consequently contributed significantly to the outcome. Others were IAPSO as executing
agent, the Royal Netherlands Government, and the World Bank, in different roles.
38
Fig 6, Logical Framework of the PPDA project
Overall Project
Objective
To build the institutional capacity of PPDA, local training institutions, and procurement
PDEs so as to ensure that all procurement activities are conducted in a timely, efficient
and transparent manner
Inputs
Government ($264,000):
 Counterpart personnel
 Office space
 Printing and diffusion
of training materials
 Computerisation of
PDEs
UNDP:US$520,000):
 Technical personnel
and equipment
Outputs
Developed
Training
materials
Training
courses
delivery
On-thejob
training
Website
Strategy and
training policy
Outcomes
Efficiency and
transparency of
PPDE and PDEs
Reduced
procurement
irregularities
Challenges
39
Reduced
risk of
corruption
Database
on course
participants
As many as 2,115 would-be-participants were not trained, leaving a wide skills-gap in the
PDEs. The gap is a threat to the intended reduction in procurement irregularities and
non-compliant practices in public institutions. The following were among the challenges
faced:




Lack of enough trainers in the field of procurement and disposal
Inadequate funding for capacity building programs
Lack of commitment by the public officers to be trained and resistance to change.
Lack of an independent procurement professional body to regulate the
procurement practitioners
 Inadequate monitoring and evaluation system to help in the quality assurance of
training activities and related outputs
 Lack of a statistical database to identify how far desirable outcomes have been
achieved
Conclusions
Although not all of the original objectives and deliverables were achieved, much valuable
work has been done. The project underperformed in training all planned participants and
all expected deliverables were not realised, due to factors outside the component
management. Further support to PPDA is still needed in this regard. There is urgent
need to strengthen the training and capacity building department in the PPDA and to
build up the external resources to ensure that training can be completed and sustained.
The ongoing process of revising the Local Government law to enable local district
governments to implement the new procurement procedures should be expedited and will
create the necessary conducive legal environment for PPDA operations in local
governments.
7.7
Strengthening the project on Policy Analysis and Poverty Monitoring
(PAPM) in Uganda
Background
The Economic Development Policy and Research Department of the Ministry of Finance,
Planning and Economic Development is responsible for formulation, overseeing and
monitoring implementation of national policies for economic development and poverty
eradication. The PAPM Project activities and outputs are aimed at informing or feeding
into planning and policy making for the development of pro-poor policies, and better
targeted, more poverty-focused plans and strategies for poverty eradication at the national
and local levels, and enhancing participatory planning, budgeting and policy making
processes. The PAPM Project is aligned to the EDP & RD within the Ministry so that the
project can be responsive and relevant to the Government of Uganda’s (GoU) policy
40
development agenda and likewise so that this can be informed by PAPM Project outputs.
UNDP support under PAPM is intended to strengthen the capacity of national, local,
government institutions, and civil society organizations to have a profound understanding
of poverty issues and to be able to craft policies and anti poverty interventions that should
result in the eradication of poverty.
The project has assisted Uganda’s objectives of the Poverty Eradication Action Plan
(PEAP) through poverty monitoring and enhanced capacity for policy analysis and policy
development. The Project supports policy work through research and analytical studies
on emerging development concerns. The studies feed into the National Poverty Forum
dialogues, and debates, which promote participation, accountability and a well-informed
citizenry, which is the bulwark of democracy. The PAPM project has supported increased
participation of civil society organizations in shaping public policies and enhanced the
good governance role of civil society as one of the pillars (domains) of good governance.
Objectives of the project on PAPM18
The PAPM overall development objective has been to support policy endeavors directed
at strengthening Uganda’s ability to sharpen and to continuously refine its poverty
reduction policies, strategies and approaches in order to contribute to pro-poor
development and attain the national poverty eradication goals as spelt out in the PEAP.
The three main immediate objectives have been:
 To strengthen national and local institutional and analytical capacity particularly
of the civil society organizations to engage in national policy debates particularly
on issues emerging from the Consultative Group (CG) meetings, especially those
pertaining to the poverty eradication agenda.
 To build capacities at national and district levels, especially of CSOs and support
analysis of policy impact on poverty, poverty monitoring and policy fine-tuning in
the context of the PEAP and the IDGs/MDGs commitments.
 To enhance national capacity for policy dialogue, policy development and finetuning through policy advice and feedback from studies, policy debates in various
fora, especially through the National Forum and National Human Development
Report and Development Co-operation Report process.
Contribution and relevance of PAPM to the overall governance strategy
PAPM has engaged parliamentarians in policy issues and increased their knowledge and
promoted greater awareness of government programmes. This has increased the
efficiency of parliamentarians to make legislation that is pro-poor and that is based on
18
GoU/UNDP, Policy Analysis and Poverty Monitoring, Kampala: UNDP Second CCF Project Document
2001-2005, July 2001 , page 13-16
41
well-researched data and information. There is enhanced efficiency in the deliberation of
consultative meetings from analytical public expenditure reviews, and development
Cooperation reports. The participation of civil society organizations in making policy
proposals, the debates in the National Poverty Forum, the studies carried out by
universities and research centres have ensured that policies are based on real data and
evidence. This promotes effectiveness, efficiency, accountability, and representativeness
of poverty eradication strategies and plans of action, and the public policy process in
general.
Capacity needs met by PAPM and adequacy of project design
As can be seen from the logical model of the project (Fig 1), it is a complex design
involving a diversity of actors: the EDP&RD as coordinator, the UNDP as a source of
funds, the National Poverty Forum and other civil society organizations as first the
beneficiaries of capacity building and the implementing agents. The second aspect of
complexity is the fact that PAPM is carried out at national, district, and community level.
All these aspects were adequately articulated in the project document. The project was
also given an open-ended assignment: namely, to deal with emerging issues from the
deliberation of the Consultative Group Meetings. This is why the project has taken on the
responsibility for NEPAD/APRM support. The project design also has an excellent
budget and financial allocations specified in detail for specific activities, as well as
annual financial estimates. The annual monitoring benchmarks were adequately and ably
formulated. This is a perfect example of transparent project design permitting
accountability19.
The main project design limitation is dependency on so many actors over whom the
project may have no control: researchers in universities who may have other
commitments competing for time to be allocated to project activities. Thus the
completion rate of studies may take longer than was anticipated.
19
GoU/UNDP, Policy Analysis and Poverty Monitoring, Kampala: UNDP Second CCF Project Document
2001-2005, July 2001 , page 19-26
42
Enhanced Policy Analysis and poverty Monitoring:
strengthening national, and institutional, CSOs capacity
for analysis of poverty and human development and
promotion of policy dialogue and debates resulting in
greater efficiency and accountability
Inputs
MoFEPD
EDP&RD
NPF, CSOs,
UBOS,
DPUs, MISR
UNDP funding
Universities,
EPRC
Outputs
Strategies and
guidelines for CSO
participation
Six studies on
LTEF for PEAP
by EPRC, NHDR
10 Graduate
dissertations,
DCRs
Strategy and
action plans for
NEPAD/APRM
Outcomes
CSOs
empowered to
participate
effectively in
policy making
processes
Greater access
by the public of
information on
government
policy and
programmes
Government
capacity for
informed policy
making has been
strengthened
Districts are
collecting and
analyzing poverty
data in a more
efficient manner and
use it to inform
planning
Fig 8, Logical diagram of UNDP support for enhanced capacity for PAPM
Implementation progress and achievements of PAPM
43
On the whole most of the activities planned for the period were carried out. Institutions
such as the National Poverty Forum have been established and are now operational. But
the achievement of some of the activities is long term. Working with UBOS to set up
statistical systems for District planning will take time. While many development partners,
including UNCDF, DANIDA, and Rockefeller Foundation have provided funds to build
the capacity of District Planning Units, the achievement will take time to be realized.
Some areas where PAPM is pioneering the testing of methods such as community
poverty monitoring show great promise20. In community poverty monitoring,
communities develop the capacity to monitor poverty (by identifying poverty indicators
that are meaningful to them) after which they design their own community responses.
Outputs of PAPM












Strategies and guidelines for CSO participation
Six studies on LTEF for PEAP by EPRC
Produces National Human Development report
Produces Development Cooperation Report
Ten Graduate Dissertations
Strategy and action plans for NEPAD/APRM
A NEPAD/APRM secretariat has been established in the National Planning
Authority
Conducted assessment of poverty-focused District Development Planning in
Mpigi, Kabale, Iganga and Mubende districts.
Provided vital support to EDP& RD to revise PEAP
Commissioned studies aimed at aligning the MDGs and PEAP
Supported CSO-led MDG campaigns and raised profile of MDGs
Supporting UBOS in setting up a District Poverty Monitoring Statistical system.
Contribution of PAPM towards achieving the SRF/ROAR outcome
The national planning process has been made transparent and open to the participation of
the public through the contributions of CSOs and the National Poverty Forum. The
revised PEAP benefited greatly from the studies conducted under PAPM, which was a
key facilitator of the PEAP process. Development cooperation reports have increased
government accountability to development partners and to the public at large. The
efficiency of planning has been boosted by PAPM-supported analytical and empirical
studies. PAPM supported District Data Needs Assessment reports in 13 districts
including a set of indicators for planning by departments. The PAPM project is also an
example of a UNDP project that largely depends on building alliances and partnerships to
achieve its objectives.
20
The Evaluation Team was able to observe the process taking place at Bugiri and shared observation with
the community participants. The issue, however, is how long it will take to upscale these experiences and
tested methodologies to community planning in the villages of Uganda.
44
UNDP contribution to PAPM project outcome
UNDP is the main contributor to the PAPM project outcomes, which may be summarized
as follows (See outcomes in Fig 1).
 CSOs have been empowered to participate effectively in policy-making processes.
 Greater access by the public of information on government policy and
programmes
 Government capacity for informed policy making has been strengthened.
 Districts are collecting, analyzing poverty data in a more efficient manner and use
it to inform planning.
 Pioneered and piloted community based poverty analysis and monitoring
methodology.
 PAPM has engaged parliamentarians in policy issues and increased their
knowledge and promoted greater awareness of government programmes.
 This has increased the efficiency of parliamentarians to make legislation that is
pro-poor and that is based on well-researched data and information.
 There is enhanced efficiency in the deliberation of consultative meetings from
analytical public expenditure reviews, and Development Cooperation reports.
 The participation of CSOs in making policy proposals, the debates in the National
Poverty Forum, the studies carried out by universities and research centres have
ensured that policies are based on real data and evidence.
Challenges faced by PAPM
During a period of five years, two human development reports have been produced one
of the challenge of HIV/AIDS-Maintaining the Momentum for Success” in 2002, and the
other on “Linking Environment to Human Development: Human Development: a
Deliberate Choice”. There would be greater coverage of issues and greater impact on
development if the HDR were produced annually. Similarly, there appears sluggishness
in the completion of dissertation studies and therefore delayed influence on the policy
process. The NEPAD/APRM appears to moving slowly illustrating the risks of
partnership approaches, which depend to coordinated and synchronized timing of
activities and action plans. The debates of the Poverty Forum are so infrequent as to have
the desired effect of deepening understanding of policy issues and being well informed
about them.
Conclusions
PAPM is truly a partnership project tapping the synergies of joint action between
government agencies and CSOs but it can also be slowed down by the need to
synchronize the diverse agendas of the different actors. It is also a complex project
involving the mobilization of many actors at all levels from the national to the district and
finally to the community level. It has promoted the understanding of poverty issues and
the crafting a more pro poor national development strategy and action plan (PEAP).
45
PAPM has built the capacity of CSOs to be effective partners with government in the
promotion of good governance.
7.8
Strengthening the Participatory Development Management
(PDM) project
The Participatory Development Management project (PDM) aims at strengthening
participatory planning at community level, in order to provide a strong base for
decentralized development planning and management. It uses a building-block
methodology to support the process of community participation right from the village
level, through the parish, then to the sub-county. Guided by principles of self-reliance,
openness, inclusiveness, transparency and accountability communities are mobilized and
facilitated to generate village development plans. This is a step-by-step process is
undertaken to integrate the data collected into parish, sub-county, and eventually district
plans.
The PDM project started in 2002 and was planned to end in December 2005. As a pilot
scheme, this project was designed to demonstrate the effectiveness of community
participation in development management. One lower level Local Government in each of
the districts of Arua, Busia, Jinja, Kabale, Kalangala, Lira, Masindi and Mukono, were
selected to operate as the pilot areas. The result of this pilot was planned to be a
formulated participatory management modality that could be adopted in local government
development initiatives. It was planned that replication in other districts would then be
undertaken by using lessons learnt and experiences gained.
Objectives of the PDM
The main objective of PDM is to empower the local population to effectively participate
in the planning and management of development programmes. Such involvement would
impact on the participants of PDM through carrying out their own situation analyses and
coming up with vision-driven, strategic and action plans for improving their livelihood.
PDM was designed to address specific strategic objectives that focus on the following:
 Enhancing capacities of the MoLG and its partners to promote and facilitate
participatory development management at all levels.
 Strengthening the capacity in eight districts to promote and facilitate participatory
development management for broad-based, equitable, self-reliant and sustainable
development and to sensitize development planners and managers at all levels on
key crosscutting concerns in gender, environment, HIV/AIDS human rights,
equity and poverty.
 Establishing a one-stop public access information centre (telecom-centre)
covering all topics vital to effective participatory development management in
each of the eight sub-counties/districts with connectivity to higher levels.
 Providing or strengthening key development management and technical skills
required for the successful implementation of village and parish plans.
46
 Building the capacity of sub-counties to develop and implement sub county
development plans based on parish development plans produced using village
plans as building blocks.
 Assisting and strengthening all villages in the eight lower level governments (one
from each participating PDM district) to effectively address crosscutting as well
as poverty eradication issues in their development plans.
Contribution and relevance of PDM to the overall governance strategy
The Constitution and the Local Government Act 1997 provide for the formulation of
development plans that are comprehensive, integrated and that incorporate plans of lower
levels of government. However initiatives to strengthen capacity to plan and manage
development programs had all along been limited to the district and sub-county levels.
Participation of communities at the grassroots in decision-making was limited to political
representation in administrative constituencies or areas of jurisdiction at district and subcounty levels. Parish development planning and management was restricted to projects
envisaged by higher levels of administration. Village planning was confined to mere
listing of aspirations determined on ad hoc basis.
Under the LGDP, the government has developed Harmonized Participatory Planning
Guides (HPPG) for Lower Level Governments that have provided the framework for
participatory planning. PDM empowers the local communities to effectively participate
in the analysis of their situation, the assessment of their potentials, the identification of
their development needs and the determination of priority interventions to fit into the
framework.
Therefore, in line with the general decentralization policy, PDM deepens
decentralization of decision-making and development management to the grassroots.
Also since rational decision-making has to be based on adequate understanding of
national policies and strategies, PDM is a vehicle for disseminating such policies and
ensuring their practical application to the development management process right from
the grassroots.
47
1. Strengthen capacitates of selected central governance institutions to put in place policies and plans to
facilitate poverty eradication through decentralized, broad based equitable development
2. Capacity of eight districts strengthened to participate in implementing PDM initiative.
3. Demonstrate the efficacy of systematic PDM practices at LCI & II, & build capacity for the
production of people-oriented village plans as well as their implementation
Inputs
MoFEPD
(ALD)
MLG; National PDM
Coordinator, a PDM specialist
(UNV), accounting assistant,
secretary & driver; 1 laptop; 1
double cabin vehicle
UNDP funding
Eight district
local
government
administrations,
NGOs
Outputs
PDM strategy developed
for testing
framework & guidelines
for implementation
developed
Guidelines for standards
for social service delivery
developed
Strategy for integration of
crosscutting issues in local
government plans developed &
practiced
Enhanced
experiential learning
through PDM
Capacities of
MoGLSD, agencies &
CSOs strengthened
effectively to improve
equity for their
constituencies
Outcomes
PDM has led to
development of
representative plans
that are built on the
needs, interests,
priorities and demands
of the communities
PDM has enabled a
more democratic
participatory planning
process to be
institutionalized in
local government
planning.
Transparency has been
enhanced since plans
are decided on in an
open and inclusive
manner
Improved political will
from the district
councils, as they are
adequately informed
about the problems
and needs of the
communities.
Increased capacity to
plan has resulted in
increased access to
finances (due to well
prepared and fundable
projects).
Fig 7, Logical diagram of PDM capacity building
48
Improved budgeting that
takes into account needspecific projects for
village level developed
Transparency enhanced
through step-by step
problem analysis &
action planning
Implementation progress and achievements of PDM
Most of the activities were carried out as planned.
 An inception workshop was held to bring national institutions on board with the CCF
II. This was followed by a capacity enhancement workshop, which was facilitated by
an international consultant.
 The political leadership, technical staff, religious leaders and opinion leaders at
district, sub county, parish and village levels in the program areas were sensitised
about the PDM modality.
 Trainers of community facilitators were trained to train village/cell PDM community
facilitators.
 Village/cell community facilitators were selected and trained in participatory
management facilitation skills
 Under the guidance of the village/cell community facilitators, village/cell
communities produced comprehensive village/cell strategic and one-year action
plans.
 The village/cell Participatory Village and Cell profiling and Development Planning
Manual was produced.
 Members of the Parish Development Committees were trained in techniques of
integrating village/cell profiles and strategic developing plans into parish Plans.
 Parish Development Plans were produced using village development plans as
building blocks.
 The Parish Participatory Profiling and Development Planning Manual was produced.
 Members of the sub-county Technical Planning Committees were trained in
techniques of integrating parish/ward profiles and strategic developing plans into subcounty plans.
 Sub-county development plans were produced using the parish development plans.
 Implementation of selected community projects was supported
 One-stop centres for Participatory Development Management were established at sub
county headquarters and were equipped with computer sets (including scanners and
printers) fully installed with PDM customized software.
 Solar energy systems were installed at sub-county centres, which were not connected
to the electric power grid.
 Best Participatory Development Management practices were video documented for
resource mobilization, community mobilization and accelerated learning.
Communities were mobilized and facilitated to generate village development plans,
which were progressively built into and integrated in parish and sub-county plans.
In order to complete the PDM modality, it is planned to produce manuals for
participatory implementation, monitoring and evaluation of community-generated plans.
Outputs of PDM
 PDM Strategy developed for testing
 Framework and guidelines for implementation developed
 Enhanced experiential learning through PDM
49
 Strategy for integration of crosscutting issues in local government plans
developed and practiced
 Guidelines for standards for social service delivery developed
 Strategy for integration of crosscutting issues in local government plans
developed and practiced
 Capacities of MoGLSD, agencies and CSOs strengthened effectively to improve
equity for their constituencies.
Contribution of PDM towards achieving the SRF/ROAR outcome
PDM has become an effective means for fostering efficiency, transparency and
accountability in lower local governments. The principles of self-reliance, openness,
inclusiveness, transparency and accountability observed throughout the PDM processes
have been promoted and consolidated.
UNDP contribution to PDM Project Outcome
 PDM has led to the development of representative plans that are built on the
needs, interests, priorities and demands of the communities.
 PDM has enabled a more democratic participatory planning process to be
institutionalized in local government planning.
 Transparency has been enhanced since plans are decided on in an open and
inclusive manner
 Improved political will from the district councils, as they are adequately informed
about the problems and needs of the communities.
 Increased capacity to plan has resulted in increased access to finances (due to well
prepared and fundable projects).
Challenges faced by the PDM project
 Lack of confidence: PDM communities initially lacked confidence in their ability to
plan and relied on higher authorities to make decisions for them. However, PDM has
empowered communities and given them positive attitudes about their own capacity
to plan for themselves.
 Accessibility: Within the decentralization framework District Local Councils were
given liberty to select sub-counties for piloting the program. In many cases the least
accessible and consequently the most deprived were selected. This made monitoring
and backstopping by district authorities straining21.
 Levels of illiteracy: To provide for all-inclusive participation by all, the PDM
process demands the use of facilitators who are freely approachable and in whom the
21
For example Namasale sub county of Lira is over 160km from Lira town along a bad earth road and with
no suitable accommodation. The shortest route to the sub-county from Kampala is by canoe, which is risky.
Also when there is a breakdown of the ferry, Kalangala is not accessible. Seeta Namuganga, the sub-county
selected in Mukono district is about 50km from the district headquarters.
50
community has confidence and trust. Some of these could read and write but their
level of understanding was still low. Hence preliminary training and sensitization
took longer than anticipated. Such a challenge also affected the quality of data
collected in some villages.
 High expectations: High expectations were raised as the PDM planning process
revealed development problems and needs. Most of the participants in the PDM
process thought that funds would be provided for implementation of small-scale
projects. The funding of demonstration PDM projects that were supported by UNDP
provided a good example but also raised hopes for other districts, which did not
obtain such support. Good examples were raised by building collaborations with
financing measures such as other government programs, LGDP, NUSUF, PMA, SFG
etc. The high expectations however indicate communities’ awareness of their
development needs. It is also a pointer to the local authorities that what is being done
is still inadequate.
 Limited resource envelope: The limited resources both financial and human make it
difficult for lower Local Governments to take on the development challenges.
However the clear indication of where the specific problems are, as revealed through
the PDM process, enables allocation of resources to where they are most needed.
Concerning human resources there has been a major drawback at the sub county level
where human resource restructuring has been going on. It is expected that after the
restructuring exercise, better-qualified staff capable of steering the PDM process at
that level will be in place.
Conclusions
 The project design for PDM was excellently done and illustrates the importance
of stakeholder involvement in capacity building initiatives that aim at enabling
planning that builds on the needs of communities. However, the implementation
of the plans at the level of small-scale projects was not designed in line with the
capacity of the district personnel to take charge of sustaining and supervising the
projects.
 The piloting and testing of the PDM methodology at village, parish and subcounty levels has illustrated enormous impact on community empowerment,
ownership and realization of the needs of females and males at various levels.
Replicating and sustaining such planning methodology requires continued and
increased support from the district budgets, as well as various development
practitioners who operate at district level, not only UNDP.
 The PDM methodology has illustrated the merits of community participation in
development planning. The planning instruments (guidelines, manuals) provide a
basis for replication of this methodology beyond the pilot sub-counties and
districts as well as other countries. The political commitment shown by the Local
governments has also laid ground onto which PDM has been recommended to
51
become a norm for development management in local governments. However,
replicating and ensuring that PDM becomes a norm in development planning will
not be possible if the capacity of lower local governments is not strengthened to
enable them internalize and practice the modality on a sustainable basis. This
requires undertaking widening and deepening approaches. Further technical and
financial support is, therefore, required to enable such approaches to be
undertaken.
 Although PDM has performed very well at the planning level, the design,
implementation and monitoring of actual projects poses challenges which
sometimes end up straining more than empowering the individual community
members who carry out the project activities. The evaluation team realized that
although the PDM required commitment from local governments, there was very
limited involvement of the district sector specific officials (such as agriculture,
veterinary, planners, health) plus Technical Planning committees in actual project
design, implementation and monitoring of the PDM activities. Most of the work
was left to be done by the backstopping technical teams of A2N who were given
very limited time (3-6 months) but no follow-up done by the district sector
officers (after the exit of the A2N). This lack of commitment has ruined the
implementation part of most of the PDM village level projects. It was also not
clear what the role of the PDM coordination office was, since such challenges of
implementation should have been addressed during the monitoring exercises of
these projects.
 In terms of sustainability of the outcomes of PDM, effort has been made by all the
districts to integrate gender, human rights, environment and HIV/AIDS in data
collection, planning and implementation of PDM projects. There is need to
formulate further guidelines to enable institutionalization of these crosscutting
issues in the day-to-day running of the processes of planning as well as actual
administration and reporting mechanisms that require specified indicators within
the monitoring tools.
 Effort has been made by some districts to formulate strategies for ensuring
continuous coordination and monitoring of PDM through budget allocation,
building of collaborations with existing funding organizations, NGOs and other
mobilized groups. However, there has not yet been an assessment of the capacity
needs of those district officers (especially the Technical Planning Committee)
who should have the role of coordinating and monitoring the PDM processes in
the lower local governments on a continuous basis. The outcomes of the PDM
project show that if such capacity is built, this methodology can provide a set of
minimum conditions and performance measures that can be used in the annual
assessment of the performance of local governments, especially as an indication
of the extent of community participation in development management.
52
7.9
Strengthening the Alliance of Mayors’ Initiative for Community
Action on AIDS at the Local Level (AMICAALL) for urban leadership
to respond to the challenges of HIV/AIDS in Uganda
Background
Prior to implementing the AMICAALL project, urban authorities did not consider it their
mandate to plan and implement activities aimed at fighting HIV/AIDS in their areas.
Instead they considered this to be the responsibility of the relevant ministries and
departments of the central and district governments. In Uganda, AMICAALL was
launched in 2000. Its objectives were: to enhance advocacy and leadership for
HIV/AIDS in Local Governments; to build institutional capacity for effective response to
HIV/AIDS; to strengthen the coordination of the multi-sectoral response to HIV/AIDS in
Urban Local Governments; and to facilitate the development of partnership and networks
for HIV/AIDS response at local and international levels. Eighty urban authorities in the
country are members of AMICAALL.
Overall objectives of the AMICAALL Project
The overall objective of AMICAALL project is to prevent the spread of HIV/AIDS and
to mitigate the social and economic impact of the epidemic in urban areas.
 Advocacy and leadership for HIV/AIDS in local governments
 Institutional capacity development for effective HIV/AIDS response in urban
local government.
 Strengthen coordination of the multi-sectoral response to HIV/AIDS in urban
local governments.
 Facilitate the development of partnership and networks for HIV/AIDS response at
local and international levels.
 Mobilization of resources to support HIV/AIDS initiatives in urban local
governments.
Immediate objectives
 Enhance advocacy and leadership for HIV/AIDS in local government.
 Institutional capacity development for effective HIV/AIDS response in urban
local governments
 Strengthen coordination of the multi-sectoral response to HIV/AIDS in Urban
local governments.
 Facilitate the development of partnership and networks for HIV/AIDS
response at local and international levels.
53
UNDP Inputs
UNDP’s support to AMICAALL of US$510,490 supported the National Coordinating
Office to provide overall coordination, enhance leadership, and institutional capacity
development for HIV/AIDS management in all urban centres.
Capacity needs of the urban leadership and adequacy of project design
Although HIV/AIDS prevalence in Uganda declined from 20% in the 1990s to the
currently estimated 7% it remains nearly twice as high in urban areas at 10.7% compared
to 6.4% in rural areas AMICAALL National Coordination Office). There is a perception
that existing programmes for HIV/AIDS emphasizes rural areas at the expense of urban
counterparts. Before this project, urban leadership were not empowered to address
HIV/AIDS pandemic and considered it the responsibility of central and district local
governments. The project therefore addressed a capacity gap.
The UNDP intervention strategy of focusing assistance to central coordination, policy,
and resource mobilization helped to spur individual urban authorities to tap their efforts
and those of their partnerships to respond to the epidemic and its impact more effectively.
Contribution and relevance of AMICAALL to overall governance strategy
The project focuses on strengthening institutions for good governance. The project is
relevant to the needs of urban centres because past HIV/AIDS sentinel surveillance
surveys have shown that it is more prevalent in urban than rural areas. Further, the good
governance strategy seeks to hold institutions of leadership accountable to the population
they derive authority from. Urban leadership has been empowered to respond to the needs
and priorities of the people they govern, including the alleviation of the social and
economic impact of HIV/AIDS on the economically disadvantaged.
Implementation progress
UNDP provided support to the National Coordination Office, which in turn mobilized
and empowered urban leadership in different urban centres of the country to plan and
provide leadership in response to HIV/AIDS.
The National Coordination Office was established in Kampala with the support of
UNDP, UNAIDS, and the UN AMICAALL Partnership Programme. Although all the 80
designated urban centres countrywide have been mobilized and sensitized. AMICAALL
is currently providing direct support to only 12 urban centres of Kampala, Kamuli, Jinja,
Soroti, Iganga, Hoima, Fort Portal, Kisoro, Lira, Bombo, Busia and Kitgum.
In the urban centres visited, AMICAALL has achieved great successes and empowered
urban authorities with the necessary skills to plan, implement and monitor HIV/AIDS
activities in their areas. Substantial resources were mobilized to support the funding of
urban projects in these areas. PricewaterhouseCoopers provided funding to strengthen
54
the coordination mechanism for HIV/AIDS response in Jinja and Kamuli. US$53,000
was received from UNAIDS to support capacity building activities. US$43,740 was
solicited from Uganda Global Fund to fight AIDS by supporting OVC related activities.
A US$140,000 grant was solicited from the MoGLSD under PEPFAR programme. In all
these processes there has been participation of Executives and councils members of urban
authorities, civil society and private sector representatives and other stakeholders.
With these resources, AMICAALL has started several income generation and other
projects to support HIV/AIDS infected or affected families. In Jinja, OVCs were
sponsored to secondary schools; cottage industries like groundnut paste making and
tailoring were sponsored. In Fort Portal, ten AIDS-affected families were assisted to start
rearing goats pigs. In Hoima town, 10 households were assisted to rear 50 chickens each.
Partnerships between urban authorities, UNDP, UNAIDS, Global Fund, were behind the
success of these micro-projects.
Outputs of AMICAALL Project
 AIDS task forces performing the role of coordinating HIV/AIDS activities in
urban authorities.
 Strategic plan being used as a basis for guiding AMICAALL in playing its pivotal
role of coordinating HIV/AIDS activities in urban authorities.
 HIV/AIDS service directories being used as tools for coordination of HIV/AIDS
activities in urban authorities and for referral purposes.
 Annual work plans being used to guide implementation and monitoring of
AMICAALL activities.
 Documented materials being used to facilitate information sharing and
dissemination of best practices.
 AMICAALL activities assessed and technical support provided.
 A number of partners identified for coordination.
 AMICAALL receives technical support from development partners and CSOs in
the country.
 A partnership programme has been established between the city of Kampala and
the city of Winnipeg within the framework of the Federation of Canadian
Municipalities. A Joint HIV/AIDS project proposal between the two cities
developed and is to be funded by CIDA.
 Collaboration established with a number of partners hosted. AMICAALL
currently networking with a number HIV/AIDS partners.
 Shared experience between AMICAALL Uganda and AMICAALL Swaziland.
Municipal structures and services offered by the two cities are well understood by
the partner cities.
 US cities being identified to develop partnerships with municipalities/towns in
Uganda with the support of US Conference of Mayors.
 Under AMICAALL PricewaterhouseCoopers, a joint project to strengthen
coordination mechanism for HIV/AIDS response was carried out in Jinja and
Kamuli.
55
Outcomes from UNDP/AMICAALL project
The project contributed to the following outcomes: increased capacity of urban
authorities to respond to HIV/AIDS; increased household income for households that
benefited from income generating projects; and, increased awareness and prevention of
HIV/AIDS in the urban population. The specific outcomes were:
 Enhanced involvement and leadership of mayors in mobilization and campaigns
for the local HIV/AIDS response
 Enhanced institutional capacity of urban local governments to effectively respond
to HIV/AIDS programmes at the local level
 Improved coordination of HIV/AIDS activities at the municipal level with defined
coordination teams
 Partnerships developed to support implementation of AMICAALL activities in
urban authorities
 Urban authorities accessing resources to support local HIV/AIDS initiatives
56
Overall Project
Objective
To prevent the spread of HIV/AIDS and to mitigate the social and economic impact of
the epidemic.
UNAIDS:
US$53,000
Global Fund:
US$43,740
Inputs
Urban Authorities:
Budget contributions
UNDP:
US$510,490
Mayors Charity
Funds
Beneficiaries:
Infrastructure
Min. of Gender,
Labour &Social
Development:
US$140,000
Outputs
Empowerment of
Urban leadership
as a motive
development
force
Household enterprises to
support HIV/AIDS
affected families
Cottage industries
and agriculture to
support HIV/AIDS
affected families
Outcomes
Increased
household income
Increased awareness
about in HIV prevention
Increased capacity of
urban authorities to
respond to HIV/AIDS
Fig 9, Logical diagram of the AMICAALL Project
UNDP contribution to the AMICAALL outcomes
The outcomes listed above would probably not have been achieved without the leadership
of the National Coordinating Office, financed by UNDP. This achievement can therefore
be significantly and credibly attributed to UNDP, without negating the initiatives of local
leadership, and other stakeholders. Although UNDP support was limited to supporting
57
the National Coordination Office, and the cost has been small relative to the entire
resources dispensed, the catalytic role of UNDP was key to all the outcomes.
Contribution Towards Achieving SRF/ROAR Outcome
The SRF/ROAR outcome being evaluated is the “increased efficiency and accountability
in the public sector through capacity development and strategic partnerships”. Arising
from the outcomes brought about by AMICAALL in its areas of coverage, urban
authorities became more efficient at combating HIV/AIDS and increased their
accountability to their partners and stakeholders. It also contributed to mainstreaming
HIV/AIDS in the functions, budget, and programmes of urban authorities.
Effectiveness of UNDP Partnership Strategy
The success of UNDP partnership strategy has been demonstrated under AMICAALL
project. UNDP only supports the National Coordination Office in Kampala, which in
turn coordinates its members and the members themselves mobilize the private sector,
other NGOs, donors and other participants to raise resources for its programmes in all
urban centres the Alliance operates in.
Challenges
AMICAALL Uganda faces a number of challenges. First is the small coverage of the
programme. Of about 80 designated urban centres countrywide, AMICAALL is currently
operating in 12 urban centres of Kampala, Kamuli, Jinja, Soroti, Iganga, Hoima, Fort
Portal, Kisoro, Lira, Bombo, Busia and Kitgum. Secondly, some of the micro-projects
like chicken rearing and tailoring do not have a reliable revolving mechanism where one
beneficiary transfers the resource gains to a new beneficiary. Currently AMICAALL
grants end with the beneficiary, unlike for example the send-a-cow programme under
PDM (A system has been put in place to revolve the micro projects for example in Fort
Portal and Busia, at least one out of the 7 or 8 piglets per delivery are being collected by
the AIDS Task Force to be given to other OVC not originally included in the project. The
magnitude of funding i.e. sh400, 000 per household is very small and does not warrant a
quick revolving scheme to reach out to more orphans).
Conclusions
Urban leadership transformed the essentially government institutions (municipalities) into
NGOs to creatively mobilize private sector and civil society organizations’ resources to
achieve very important outcomes such as the mitigation of the impact of HIV/AIDS on
poor urban and peri-urban communities.
A lesson leant is that UNDP did not put resources in different municipalities and towns
under this project but the municipalities visited achieved great results e.g. Jinja. This
illustrates the still powerful catalytic role of UNDP provided the project design and
synergies are well articulated.
58
8.
Overall Conclusions
Strengthening Parliament to enable it fulfill its legislative and oversight roles
The last three decades have seen the restoration of a national representative and
autonomous Parliament that has provided the foundation of democratic governance in
Uganda. The Uganda Parliament has demonstrated its good governance role by passing
votes of no confidence in corrupt ministers and getting the Executive to fire them.
Parliament has been able to reject poorly drafted legislation by the Executive and have it
returned to drawing board. The democratic role of Parliament is going to increase in the
new era of multiparty democracy and MPs will need to develop new debating and
representational skills. The UNDP support to capacity building of the Uganda Parliament
has increased its effectiveness especially the capacity to reproduce and disseminate
parliamentary
proceedings.
Strengthening the UHRC to protect and promote peoples rights
During two decades of misrule in Uganda, there was massive violation of human and
rights and freedoms. The NRM that came into power in 1986 was resolved to restore
human rights. A commission was set up to investigate the gross violation of human rights
and when the opportunity came to draft a new Constitution 1995 the protection of human
rights was entrenched in the Constitution and provided for the establishment of a Human
Rights Commission. The Commission was established in 1996 and has since been able to
provide an institutional forum in which cases of human rights violation can be taken. The
Commission has resolved many cases of aggrieved persons.
However, as a new institution it had limited capacity to handle highly complex legal and
human rights issues and needed technical capacity building, which was, provided by
UNDP and other donors. The focus of interest for UNDP was the promotion of human
rights in the education system through the introduction of human rights education. While
it was not possible to implement this component because the syllabus was already
approved, the next review of the syllabus is in 2006 and this desirable objective can now
be pursued. Another major area of capacity building was the promotion and
mainstreaming of a rights-based approach in planning and in decision-making. UHRC
also embarked on decentralizing its services in regional outreach offices and a lot of cases
are now being received at these regional offices. However, professional and technical
capacity at the national and regional offices is still low.
Strengthening the capacity of Ministry of Gender, Labour and Social Development
(MoGLSD) to deal with integrity strategies and policies
The Equity project of the MoGLSD is an example of a project that contributed to good
governance through promoting equity strategies and measures. This was possible through
building partnership with different stakeholders who brought together their concerns,
skills and methodologies in ways that helped to provide synergies in work done. It is also
an example of how good governance can be worked on through linking government
59
ministries with CSOs and other actors. However, it is also noted that such processes of
working can create challenges when stakeholders seek for ownership of outputs and
require reflecting their contribution to the outcome. Although there were such
challenges, the positive results emerged as key lessons for future projects on equity. The
mobilization of many stakeholders enabled promotion of equity at different levels, thus it
was possible to have visible achievements.
Strengthening the capacity of the Office of the Inspector General of Government to
combat corruption and to promote integrity in the public sector
The support provided by UNDP built and strengthened the capacity of the IGG to more
efficiently investigate and prosecute cases of corruption. The concentration of the UNVs
at the headquarters, to some extent, reduced their impact in districts where they are not
posted. The effect of the combined efforts of the IGG and all institutions charged with
promoting accountability and ethics resulted in efficiency in tracking down corruption
and promoting good governance. The intervention of UNDP contributed to the
SRF/ROAR outcome of increased efficiency and accountability through capacity
development. But corruption in Uganda remains a big problem. The root causes of
corruption remain elusive. Nevertheless UNDP and other partners laid the foundation of
a sustainable capacity to combat corruption on a long-term basis.
Strengthening the capacity of the Directorate of Ethics and Integrity (DEI) to
promote ethics in the public sector, focusing on design of strategies, policy-making
and monitoring
While there were many agencies involved in anti-corruption activities, there was a need
for a policy-making and coordinating institutional framework. This was met by the
creation of the DEI in 1998. UNDP support to build this new unit’s capacity for strategy
and policy formulation in the field of ethics and integrity was timely and directly relevant
to the SRF/ROAR outcome of increasing efficiency and accountability in the public
sector.
Strengthening the capacity of the Disposal of Public Assets Authority in Uganda
(PPDA)
Although not all of the original objectives and deliverables were achieved, much valuable
work has been done. The project under performed in training all planned participants and
all expected deliverables were not realized, due to factors outside the component
management. Further support to PPDA is still needed in this regard. There is urgent
need to strengthen the training and capacity building department in the PPDA to ensure
that training can be completed and sustained. The ongoing process of revising the Local
Government law to enable local district governments to implement the new procurement
procedures is urgent.
Strengthening MoLG with Participatory Development Management (PDM)
60
The project design for PDM was excellently done and illustrates the importance of
stakeholder involvement in capacity building initiatives aimed at enabling planning that
builds on the needs of communities. However, the implementation of the plans at the
level of small-scale projects was not designed in line with the capacity of the district
personnel to take charge of sustaining and supervising the projects.
The piloting and testing of the PDM methodology at village, parish and sub-county levels
has illustrated enormous impact on community empowerment, ownership and realization
of needs of females and males at various levels. Replicating and sustaining such planning
methodology requires continued and increased support from the district budgets as well
as various development practitioners who operate at district level, not only UNDP.
The PDM methodology has illustrated the merits of community participation in
development planning. The planning instruments (guidelines, manuals) provide a basis
for replication of this methodology beyond the pilot sub-counties and districts as well as
other countries. The political commitment shown by the local governments has also laid
the ground onto which PDM has been recommended to become a norm for development
management in local governments. However, replicating and ensuring that PDM becomes
a norm in development planning will not be possible if the capacity of lower local
governments is not strengthened to enable them internalize and practice the modality on a
sustainable basis. This requires undertaking widening and deepening approaches. Further
technical and financial support is therefore required to enable such approaches to be
undertaken.
Effort has been made by some districts to formulate strategies to ensure continuous
coordination and monitoring of PDM through budget allocation, building of
collaborations with existing funding organizations, NGOs and other mobilized groups.
However, there has not yet been an assessment of the capacity needs of those district
officers (especially the Technical Planning Committee) who should have the role of
coordinating and monitoring the PDM processes in the lower local governments on a
continuous basis. The outcomes of the PDM show that if such capacity is built, this
methodology can provide a set of minimum conditions and performance measures that
can be used in the annual assessment of the performance of local governments,
especially, as an indication of the extent of community participation in development
management.
Strengthening the Ministry of Finance, Planning and Economic Development
(MoFEPD) with capacities for policy analysis and poverty monitoring
PAPM is a truly partnership project tapping the synergies of joint action between
government agencies and CSOs but it can also be slowed down by the need to
synchronize the diverse agendas of the different actors. It is also a complex project
involving the mobilization of many actors from all levels: national to the district and
finally to the community level. It has promoted the understanding of poverty issues and
the crafting of a more pro-poor national development strategy and action plan (PEAP).
61
PAPM has built the capacity of CSOs to be effective partners with the government in the
promotion of good governance.
Strengthening AMICAALL to meet the challenge of HIV/AIDS in urban areas
Urban leadership transformed the essentially government institutions (municipalities) into
NGOs to creatively mobilize private sector and civil society organizations’ resources to
achieve very important outcomes such as the mitigation of the impact of HIV/AIDS on
poor urban and peri-urban communities. However, throughout this evaluation exercise,
lack of statistical information, both on the baseline and during programme
implementation, limited the extent to which performance could be quantitatively
assessed.
9
9.1
Findings
Strengthening the capacities of the Uganda Parliament
9.1.1
9.1.2
9.1.3
9.1.4
9.1.5
9.1.6
9.1.7
9.2
The capacity of Parliament to reproduce parliamentary proceedings has been
enhanced and should be consolidated.
There is a need to build the capacity of the Parliament to absorb grants and
donations more effectively and in timely manner.
The capacity to integrate gender, human rights and HIV/AIDS as crosscutting
issues in legislation has been built.
An HIV/AIDS information toolkit for MPs, which they can use to promote
awareness and prevention of HIV/AIDS, has been produced and made
available to them.
This capacity building programme, in combination with other donors, has
enabled Parliament to broadcast live debates on UTV and WBS television
stations as well as on radio Uganda.
An HIV/AIDS library and documentation facility has been set up in
convenient access for MPs in Parliament buildings.
Daily Hansard is being produced and posted on the parliamentary intranet
although there is need to improve the speed of official records production by
modernizing production tools and equipment
Strengthening the capacity of the Human Rights Commission
9.2.1
The target of introducing human rights education in the curricula of schools
was not achieved because the syllabus was already approved and it rakes 5
years for the next review.
9.2.2 A draft strategy for mainstreaming a rights-based approach to development
was designed but has not yet been adopted as policy.
9.2.3
9.2.4
UHRC is making very important contribution to placing Uganda on a movement
towards a society that is well informed, respects, and upholds human rights and rule of
law.
UHRC is improving and operationalizing Human Rights ICT systems, net works, and
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9.2.5
9.2.6
9.3
databases.
UHRC has increased awareness of the need to integrate human rights, especially, the
right to development in planning processes.
UHRC has put in place a service to protect and care for rights of people living with
AIDS and rights of the disadvantaged.
Strengthening the capacity of Ministry of Gender, Labour and Social Development
9.3.1
9.3.2
9.3.3
9.3.4
9.3.5
9.3.6
9.3.7
Strategies, action plans and measures for promoting equity concerns have been
formulated.
The capacity of MoGLSD, CSOs and other actors to promote equity as a good
governance issue has been built.
Women’s rights have been promoted through contributing to the validation of
the third report of CEDAW and survey of work places in 8 districts and private
companies.
The Social Development Sector Strategic Investment plan has been finalized
The establishment of the Equal Opportunities Commission has been supported
with technical inputs.
Sector working groups to mainstream gender in the revision of PEAP were
supported.
Formulation of a policy for People with Disabilities was facilitated and gender
was mainstreamed.
9.4 Strengthening the capacity of the Office of Inspector General of Government (IGG)
9.4.1
9.4.2
9.4.3
9.4.4
9.4.5
9.4.6
UNDP provided the services of five United Nations Volunteers to build
capacity of the Inspectorate through hands-on training and mentoring have
IGG staff. The volunteers were stationed at the IGG headquarters in Kampala,
with occasional visits to regional offices. In addition, UNDP provided
financial support to assist in investigations.
The mission statement of the IGG: “promoting good governance through
enhancing accountability and transparency; and enforcement of the rule of law
and administrative justice in public offices” coincides with UNDP’s anticorruption strategy.
Many cases were investigated, thanks to the direct support provided by UNDP.
UNDP, in partnership with USAID, further assisted to conduct the 2002-2003
National Integrity Survey.
During the Second National Integrity Survey conducted by the Office of the
IGG in 2003, it was established that the public awareness of the work of the
IGG had risen to 70% of the respondents, compared to 32% in 1998.
Although most of the cases handled by the IGG continue to be received in
Kampala, there is a marked increase in those received at the Regional Offices.
Between January and June 2005, Kabale IGG Regional Office received 184
cases for investigation.
The office of the IGG has set up a Leadership Code Directorate to implement
the Leadership Code provisions. More than 8,000 submissions of statements
of income, assets and liabilities were received by the IGG as of the due date of
13 November 2002. A majority of the total of over 17,000 eligible to declare
63
9.4.7
9.4.8
9.5
Strengthening the capacity of the Directorate of Ethics and Integrity
9.5.1
9.5.2
9.5.3
9.5.4
9.5.5
9.5.6
9.6
their assets, liabilities and incomes did declare.
Reported incidence of bribery decreased as follows from 1998 to 2003: Police
from 63% to 46%; URA from 40% to 31%; and Magistrates Courts from 50%
to 29 %.
The Second National Integrity Survey conducted by the Office of the IGG in
2003, established that the public awareness of the work of the IGG had risen to
70% of the respondents, compared to 32% in 1998.
The capacity of the DEI to conduct needs assessments and to transform them
into strategies and action plans has been strengthened. One of the action plans
(May 2001-October 2004) coincided with the period of UNDP support.
It is also during this period that the next strategy and action plan 2004-2007
has been completed and launched.
The capacity to apply gender, human rights and HIV/AIDS as crosscutting
concerns in Ethics and Integrity has been enhanced, especially in cases where
DEI worked with MoGLSD, organizations that involve People Living with
AIDS, and organizations involved in human rights work.
It is not the amount of funding but the focusing on a key important and
seminal issue area and especially meeting and filling a policy gap that is really
very important. UNDP funding compared to other donors is usually small.
The DEI is expressing a need for UNDP continued support to mainstream the
ethics and integrity strategy that includes consideration of crosscutting
concerns of gender, human rights, HIV/AIDS and environment.
There is a need to assess the resources provided to the Directorate of Ethics
and Integrity in relation to the demands for guidance being made on it by other
government departments, and agencies.
Strengthening the capacity of the Public Procurement and Disposal of Public Assets
Authority (PPDA)
9.6.1
9.6.2
9.6.3
9.6.4
The project’s target to strengthen the internal capacity of PPDA itself, training
institutions, and PDEs at all levels simultaneously, was a correct strategy to
contribute to the outcome of increasing national procurement efficiency and
reducing irregularities. The project may have been overambitious in setting its
deliverables but they reflected the real capacity needs all the same.
Less than anticipated resources were actually realized, principally because
government raised less and the anticipated partnerships did not materialize.
UNDP topped up its programmed contribution to US$520,000 but the
government was able to raise only US$264,000 (26% of the budgeted
contribution) and nothing from other donors, bringing it to only 32.8% of the
budgeted resources.
The project operated on less than planned financial and technical resources.
The Chief Technical Adviser left early in 2004 and was not replaced. The
senior consultant was not recruited. Only one of the two national experts was
recruited and did not assume duty until June 2004.
PPDA gives several reasons for this underachievement. First, there was
64
9.6.5
9.6.6
9.6.7
9.6.8
9.6.9
9.7
cancellation of training by PDEs due to other commitments. Second, there
was limited time to plan and prepare for the scheduled training. Third, there
was limited human resource in the PPDA to carry out all the training. Fourth,
some PDEs showed little interest in participation because no allowances were
given for the participation.
The partnership in the project was designed to generate 37% of project
resources directly from donors, 21% from government, and 42% from the
government of Uganda.
Donor contributions were not realized and the
government provided half its original pledge. However, other partners like the
ADB and the World Bank provided invaluable support towards reshaping and
increasing the effectiveness of PPDA.
The project underperformed in training all planned participants and all
expected deliverables were not realized due to factors outside the component
management. Further support to PPDA is still needed in this regard. There is
urgent need to strengthen the training and capacity building in the PPDA to
ensure that training can be completed and sustained.
The project design was appropriate and relevant to the needs of PPDA and
PDEs.
Inadequate resources compromised project achievements
Contribution to the intended and SRF/ROAR outcomes were moderate.
Strengthening Participatory Development Management (PDM)
9.7.1
9.7.2
9.7.3
9.7.4
The project design for PDM was excellently done and illustrates the
importance of stakeholder involvement in capacity building initiatives that aim
at enabling planning that builds on the needs of communities. However, the
implementation of the plans at the level of small-scale projects was not
designed in line with the capacity of the district personnel to take charge of
sustaining and supervising the projects.
The piloting and testing of the PDM methodology at village, parish and subcounty levels has enormous impact on community empowerment and the
ownership and realization of needs of females and males at various levels.
Replicating and sustaining such planning methodology requires continued and
increased support from the district budgets as well as various development
practitioners, not only UNDP.
The PDM methodology has illustrated the merits of community participation
in development planning. The planning instruments (guidelines, manuals)
provide a basis for replication of this methodology in other parts of the country
or even in other countries. The political commitment shown by the local
governments has also laid ground that has enabled PDM get as a norm for
development management in Local Governments. However, this would be
deterred if the capacity of lower local governments were not strengthened to
enable them internalize and practice the modality on a sustainable basis. This
requires undertaking widening and deepening approaches. Further technical
and financial support is, therefore, required.
Although PDM has performed very well at the planning level, the design,
implementation and monitoring of actual projects poses challenges which
sometimes end up straining more than empowering the individual community
members carrying out the project activities. The evaluation team realized that
although the PDM required commitment from Local Governments, there was
65
9.7.5
9.7.6
9.8
very limited involvement of the district sector specific officials (such as
agriculture, veterinary, planners, health) plus Technical Planning committees
in actual project design, implementation and monitoring of the PDM activities.
Most of the work was left to be done by the backstopping technical teams of
A2N who were given very limited time (3-6 months) but no follow-up done by
the district sector officers (after the exit of A2N). This lack of commitment has
ruined the implementation part of most of the PDM village level projects. It
was also not clear what the role of the PDM coordination office was, since
such challenges of implementation should have been addressed during the
monitoring exercises of these projects.
In terms of sustainability of the outcomes of PDM, effort has been made by all
the districts to integrate gender, human rights, environment and HIV/AIDS in
the data collection, planning and implementation of the PDM projects. There
is need to formulate further guidelines to enable institutionalization of these
cross cutting issues in the day-to-day running of the processes of planning as
well as actual administration and reporting mechanisms that require specified
indicators within the monitoring tools.
Effort has been made by some districts to formulate strategies for ensuring
continuous coordination and monitoring of PDM through budget allocation,
building of collaborations with existing funding organizations, NGOs and
other mobilized groups. The outcomes of the PDM show that if such capacity
is built, this methodology can provide a set of minimum conditions and
performance measures that can be used in the annual assessment of the
performance of local governments, especially and indication of the extent of
community participation in development management.
Strengthening Policy Analysis and Poverty Monitoring (PAPM)
9.8.1
PAPM has carried out assessments of the poverty-focus of District
Development Plans (DPP) and built capacity for enhancing the poverty-focus
of DDPs in Mpigi, Kabale, Iganga and Mubende districts.
9.8.2 PAPM has undertaken studies on the state of the economy to inform policy
reviews e.g. on Intergovernmental Fiscal Transfers.
9.8.3 PAPM collects data, and analyses it for production of Background to the
Budget each year.
9.8.4 PAPM analyses Budget Framework Papers (BFPs) to advise on the povertyfocus of proposed budget allocations.
9.8.5 The PAPM Project supported capacity building of the PEAP Revision
Secretariat in the MoFEPD, which was being coordinated by EDP & RD.
9.8.6 The PAPM Project has contributed to building the capacity of EDP & RD to
undertake its policy making, policy implementation and policy-related
technical backstopping mandates.
9.8.7 PAPM has supported studies of MDGs and promotion of awareness and
supported mainstreaming them in planning and especially in the PEAP.
9.8.8 PAPM is meeting a critical need of conducting policy studies in the field of
poverty eradication.
9.8.9 Building the capacity of district planning units to use evidence-based data and
information in crafting district development strategies is a worthwhile
endeavour but has a long period for its realization.
9.8.10 The frequency of HDRs is low and not likely to have wide impact.
66
9.8.11 The frequency of debates conducted through the Poverty Forum is so limited
as to have any noticeable impact.
9.8.12 The piloting and testing of methodology for community based poverty analysis
and monitoring has such great impact on community empowerment that it
deserves intensified support.
9.9
Strengthening AMICAALL to respond to the challenges of HIV/AIDS in Uganda
9.9.1
9.9.2
9.9.3
9.9.4
9.9.5
9.9.6
9.9.7
9.9.8
UNDP’s support to AMICAALL of US$510,490 supported the National
Coordinating Office to provide overall coordination, enhance leadership, and
institutional capacity development for HIV/AIDS management in all urban
centres.
Although HIV/AIDS prevalence in Uganda declined from 20% in the 1990s to
the currently estimated 7.2% it remains nearly thrice as high in urban areas at
10.7% compared to (6.4%) in rural areas AMICAALL National Coordination
Office).
The UNDP intervention strategy of focusing assistance to central coordination,
policy, and resource mobilization helped to spur individual urban authorities to
tap their efforts and those of their partnerships to respond to the epidemic and
its devastating impact more effectively.
The National Coordination Office was established in Kampala with the
support of UNDP, UNAIDS, and the UN AMICAALL Partnership
Programme. Although all the 80 designated urban centres countrywide have
been mobilized and sensitized, AMICAALL is currently providing direct
support to only 12 urban centres of Kampala, Kamuli, Jinja, Soroti, Iganga,
Hoima, Fort Portal, Kisoro, Lira, Bombo, Busia and Kitgum.
The project contributed to the following outcomes: increased capacity of urban
authorities to respond to HIV/AIDS; increased household income for
households that benefited from income generating projects; and, increased
awareness and prevention in the urban population.
The success of UNDP partnership strategy has been demonstrated under
AMICAALL project. UNDP only supports the National Coordination Office
in Kampala, which in turn coordinates its members and the members
themselves mobilize the private sector, other NGOs, donors and other
participants to raise resources for its programmes in all urban centres the
Alliance operates in.
The project transformed urban leadership into a viable participatory proactive
force against HIV/AIDS.
The project reaches too few beneficiaries to make an impact on the urban scale
67
10.
Recommendations
Recommendations specific to project components
10.1 Strengthening the capacities of the Uganda Parliament
10.1.1 Need assessment should be carried out for the capacity building of Parliament to
cope with the demands of the upcoming new multi party dispensation.
10.1.2 The capacity of Parliament staff to manage donor-funded projects and
programmes should be built.
10.1.3 The UNDP capacity building support to Parliament should be continued but more
focused directly on Executive oversight, policy analysis and legislative good
practice to enhance accountability and transparency.
10.1.4 The UNDP capacity building support should be targeted at all the parliamentary
committees with oversight and policy analysis responsibilities.
10.1.5 The Department of Official Records should be supported to produce and
disseminate the daily Hansard expeditiously acquiring modern tools and
equipment such the automatic folding machine.
10.1.6 Institutional capacity building of Parliament to enhance online library services and
research; public hearings and communication links with CSOs and the general
public should be done.
10.1.7 Synergy with other programmes and stakeholders to mainstream crosscutting
issues including HIV/AIDS, equity, human rights, ethics and integrity,
environment, science and technology should be supported.
10.2 Strengthening the capacity of the Human Rights Commission
10.2.1 The review of the primary school syllabus is due in 2006. The UHRC may now
proceed to persuade school curriculum designers to include human rights
education in the primary school syllabus.
10.2.2 The UHRC developed a strategy to mainstream a rights-based approach and
especially the right to development. This is commendable. UHRC should be
supported to mainstream the strategy.
10.2.3 The UHRC should be supported to conduct analysis of violations of the rights of
vulnerable groups such as the widows, orphans, and the disabled and to design a
strategy for their protection.
10.2.4 The UHRC staffs need capacity building in specialized areas of human rights
promotion and protection.
10.3 Strengthen the capacity of Ministry of Gender, Labour and Social Development
10.3.1 The MoGLSD together with the MoFEPD should ensure that the Social
Development Sector Strategic Investment Plan (SDIP) is provided as guidance to
different investors for use to ensure that various projects integrate social
development and promotion of equity in their activities and outcomes. This can be
done by: Providing space for Civil Society and private sector organizations to
lobby for use of this plan and integrate it in their capacity building programmes to
enable dissemination and skills enhancement on the use of the components of this
plan. UNDP and other development partners should support the implementation of
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10.3.2
10.3.3
10.3.4
10.3.5
10.3.6
10.3.7
SDIP since it addresses the issues of disadvantaged groups.
In order to integrate gender, human rights and HIV/AIDS (as key elements of
equity promotion) in different activities, effort should be made (by project
component managers, UNDP and Aid Liaison Division) to enable the different
projects funded by UNDP to learn from each other’s methodologies and processes
that can contribute to effective outcomes for good governance.
UNDP should make arrangements to enable coherence of projects with other UN
activities through encouraging joint planning of activities that have similar goals
or needs (such as equity project and the work done by UNCDF). This would
enable learning from each other and sharing experiences in order to harmonize
activities undertaken in Uganda as a way of contributing to the desired outcomes.
Partnerships among stakeholders in promoting equity should be encouraged
further by all actors in order to enable mainstreaming of equity concerns in all
sectors and activities. The stakeholders should clearly show the contribution of
different development partners (such as UNDP) towards achieving the outcomes.
A system of communication, documentation and utilization of information or data
should be made part of the accountability measures as well as an opportunity to
share experiences of best practices realized from different projects such as the
equity promotion project. The following strategies can be undertaken to address
this concern:
UNDP should strengthen its reporting systems by having a designated monitoring
and evaluation staff to deal with communication and documentation needs of the
organization as well as the project components. The MoGLSD should strengthen
its reporting and communications section by seeking for enhancement of skills
that can support documentation of equity and other crosscutting issues in ways
that can enable other actors to learn from.
The MoGLSD’s UNDP-supported project should have an in-built system of
reporting, documenting and communicating processes, results and outcomes over
a specified period of time. It should also formulate strategies on how to use these
materials for advocacy in collaboration with civil society organizations and
private sector.
10.4 Strengthening the capacity of the Office of Inspector General of Government
10.4.1 UNDP should consider support to the IGG in other areas, such as financing future
national integrity surveys, on request and to use the results of these surveys to
design corrective policies.
10.4.2 The IGG should undertake an organisational self-assessment to determine its
technical weaknesses in offering preventive civic education, public awareness,
and support to regional offices to improve their service delivery.
10.4.3 The Government of Uganda should address the problem of understaffing of the
IGG in regions and at the headquarters.
10.5 Strengthening the capacity of the Directorate of Ethics and Integrity
10.5.1 UNDP support to the DEI should continue so as to enhance the production of
ethics and integrity policies and guidelines for mainstreaming to the rest of
government and society.
10.5.2 There is a need to assess the resources provided to the DEI in relation to the
69
10.5.3
10.5.4
10.5.5
10.5.6
10.5.7
demands for guidance being made on it by other government departments and
agencies.
Staffing levels and workloads of the DEI need to be reviewed and increased.
Promoting professionalism in Local Governments: To promote professional
discipline in the Public Service as a way of deterring unethical behavior.
Client’s Charters for every public officer: Sensitize and mobilize the public to
demand accountability among the local authorities
Ethical Code of Conduct for all groups at all levels in local
governments: Promote Ethical Decision making among public officers.
Monitoring and Evaluation of the project
10.6 Strengthening the capacity of the Public Procurement and Disposal of Public Assets
Authority (PPDA)
10.6.1 The training and capacity building department of the PPDA and trainers in the
country should be adequately strengthened to ensure that the backlog of training in
procurement and disposal is completed.
10.6.2 The ongoing process of revising the Local Government law to enable local district
governments to implement the new procurement procedures is should be
expedited.
10.6.3 There is need to harmonize the training done by PPDA and the MoLG in building
up procurement and disposal capabilities at the local government level.
10.6.4 The procurement professionals in the country should be facilitated to be organized
under their own legal and independent national body to enforce professional,
ethical practices and disciplinary mechanisms.
10.6.5 The monitoring and evaluation system of procurement and disposal training in the
country by PPDA and other regulatory agencies should be strengthened to ensure
that the quality of the training meets international standards
10.6.6 Promoting professionalism in Local Governments: There is need to promote
professional discipline in the Public Service as a way of deterring unethical
behavior
10.6.7 Promote Client's Charters for every public officer and their clients or customers
10.6.8 Sensitize and mobilize the public to demand accountability among the local
authorities
10.6.9 There should be an ethical code of conduct for all groups at all levels in local
governments. This would promote ethical decision making among public officers.
10.6.10 The human resources department of PPDA should be adequately staffed to ensure
that the backlog of training in procurement and disposal is completed.
10.7 Strengthening Policy Analysis and Poverty Monitoring (PAPM)
10.7.1 The Human Development Reports should be produced annually so that many
issues are covered for it to have greater impact.
10.7.2 The time scale for policy studies should be short. Commissioning policy studies of
short duration (3 months to 6 months) will increase the range of studies produced
in a given year and will also provide material for more frequent poverty forum
debates?
70
10.7.3 Whenever partnerships implement project components the beneficiaries should be
made aware of the presence of UNDP in the project.
10.7.4 The National poverty Forum should hold more frequent debates in order to build a
culture of knowledge management and utilization.
10.7.5 PAPM has set in motion several initiatives which need continued UNDP support
for them to be consolidated: the Poverty Forum, the NGO Forum, the
NEPAD/APRM institutions and processes, community poverty self-monitoring,
the MDGs, support to UBOs setting up of District Poverty Monitoring Statistical
system.
10.8 Strengthening Participatory Development Management (PDM)
10.8.1 The PDM should be up-scaled and mainstreamed as the working modality in
Local Governments so that the coordination functions can be institutionalized
within the district and lower level governments. The Policy and Planning Unit, the
Local Government Inspection Department and Local and Urban Development
Departments, as well as the MoLG should be further committed to support the
process.
10.8.2 The PDM project enabled participation of communities in planning,
implementation, monitoring and evaluating of development initiatives, which led
to recognition of such a methodology in designing projects that address poverty
eradication. The MoLG should formulate strategies that enable the use of the
PDM methodology to feed into the national level data gathering exercises done by
the Bureau of statistics and other institutions that work on data/information, which
is required to address all the pillars of PEAP as well as the MDGs.
10.8.3 The district administration should: integrate projects into the district budgets.
They should allocate duties to district level sector specialists (especially the
district planner, veterinary, agricultural, education and environment officers) and
the District Technical Committee to supervise and provide technical guidance to
the PDM projects. District officials should be committed to work hand-in-hand
with the technical assistance specialists who come in for short specified
assignments such as the work that was done by Africa 2000 Network. District
officials in the specified fields should then continue with the work when such
specialists finalize their assignments. They should also develop monitoring and
evaluation tools that can be undertaken by the communities themselves in ways
that address gender, human rights, environment and HIV/AIDS concerns across
the activities of specified projects.
10.8.4 UNDP should: Establish links with District Promotion Centers and projects under
the income generation programmes (such as Enterprise Uganda), to find ways of
utilizing business management skills that can guide the design and implementation
of PDM projects.
10.8.5 Fundraising for the projects initiated through the PDM methodology should be a
responsibility of the local governments. UNDP should only provide guidance in
fundraising strategies and providing information on possible funding bodies as
well as facilitating meetings between local governments and possible funders.
Local governments should develop partnerships with already existing funding
mechanisms as well as technical expertise at district level and on-going
programmes of the different development practitioners such as NAADS, NUSAF
in Arua, World Vision, the Global Fund for HIV/AIDS and others.
10.8.6 Local governments should take up the responsibility of continuous coordination
71
and monitoring of PDM through: Ensuring that district level capacity needs
assessments is carried out. Plus making strategies to ensure that capacity of the
Technical Planning Committee is built to coordinate and monitor the PDM
processes in the lower local governments on a continuous basis. They should
ensure that restructuring mechanisms and strengthening of the Departments of
Local Government Inspection as well as the Policy and planning units of the
Ministry of Local Government support such a shift in coordination. The minimum
conditions and performance measures used in the annual assessment of the
performance of local governments should be widened to include assessment of
the extent of community participation in development management. The
Inspection Department of the MoLG should provide guidance to Local
governments in this aspect.
10.8.7 The reporting mechanism should be strengthened to include communication and
documentation of lessons learnt from PDM in ways that enable other sub-counties
and districts (or even other countries) to obtain information that can be used to
replicate this methodology.
10.8.8 The next UNDP Country Cooperation Framework should include support to the
formulation and implementation of strategies to sustain the outcomes of PDM.
This can be done through facilitating and guiding replication efforts, building
capacity of lower local governments to internalize and practice the modality on a
sustainable basis, and using approaches that enable wider and deeper applications
of the methodologies of PDM.
10.9 Strengthening AMICAALL to respond to the challenges of HIV/AIDS in Uganda
10.9.1 AMICAALL should be at the center of any strategy to combat HIV/AIDS aimed
at the reduction of morbidity from HIV/AIDS, as the urban prevalence rate is very
high, 10.7% compared to 6.4% in the rural areas.
10.9.2 There is a need for disbursement mechanisms that enable widows and orphans to
get funds directly. Large national institutions have internal barriers that prevent
the trickle down of such funding. The global fund was providing income
generation start up grants of Ugshs400, 000 to 10 households and these were very
successful. But this is a drop in the desert considering there more than 17,000
individuals living with AIDS in Jinja alone.
10.9.3 The National Coordination Office should be expanded and continue to be
supported during the next CCF as the urban authorities strengthen themselves to
meet the office’s budget in a sustainable manner.
10.9.4 Community support in income generation should be expanded to cover more
families
10.9.5 AMICAALL should reach more urban centres beyond the current twelve.
10.9.6 AMICAALL should be supported to strengthen the M & E system to ensure that
statistical information is available for effective monitoring purposes.
72
General Recommendations22
I. Reporting, communication and documentation: Although the programme had
good lessons to learn from, efficient reporting on outcomes was still limited in all
projects and requires urgent remedy. Communication, documentation and
utilization of information or data should be made part of the accountability
measures. Opportunity should be given to share experiences of best practices
realized from different projects undertaken in the Good Governance programme.
The following strategies should be undertaken to address this concern: UNDP
should strengthen its reporting systems by having a designated monitoring and
evaluation staff to deal with communication and documentation needs of the
organization as well as the project components. Each project that UNDP funds
should have an in-built system of reporting, documenting and communicating
towards processes, results and outcomes over a specified period of time.
Monitoring indicators should be clearly stated during the planning phase of the
project and used when reporting.
II. Crosscutting issues: Methodologies and indicators of mainstreaming crosscutting
issues were well done in some projects while they were minimal in others. In
order to integrate gender, human rights, HIV/AIDS and environment in different
projects, effort should be made by UNDP to formulate strategies and provide
guidelines to enable the different components of the Good Governance
programme to learn from each other’s methodologies and processes. This would
contribute to effective application of these crosscutting issues. This would ensure
harmonization of guidelines and formulation of indicators to effectively monitor
outcomes derived from mainstreaming these crosscutting issues into projects.
III. Funding and implementation of projects: There are challenges of inadequate
funding and staffing which adversely affects the projects. Government and the
relevant partners to come up with realistic and feasible commitments should
jointly review this. In terms of the design of the projects, UNDP should ensure
that in the next SRF, implementation and resources are planned for together.
IV. Building capacity and learning across the projects: UNDP should design
strategies to enable different projects learn from each other’s methodologies and
processes in order to contribute to effective outcomes.
V. Partnerships and collaborations: (i) Effort should be made by UNDP to enable
coherence of projects with other UN or other development partners’ activities
through encouraging joint planning of activities that have similar goals or needs –
such as equity project and work done by UNCDF. (ii) UNDP should identify and
concentrate on areas of good governance where it has highest expertise, which is
mainly in supporting policy and strategic planning at national and district level. It
should make further effort to engage into effective partnerships by providing
support to areas where other development partners have specific skills and
funding. Partnerships should be invested in through: Allocation of staff time to
engage in sharing of experiences, learning from others such as the members of the
Uganda Joint Assistance Strategy (UJAS). Also by encouraging and supporting
project component managers to document results and outcomes and be able to
share experiences through partnership building and strengthening of
22
These recommendations were made at the workshop of stakeholders held on 23 rd September 2005 at
Speke Resort Munyonyo, Kampala.
73
VI.
VII.
VIII.
IX.
X.
XI.
collaborations.
Staffing: The Good Governance Programme has only two staff members. Given
the amount of work and the reporting requirements to enable efficient
achievement of outcomes, there is need to add two more staff who may not
necessarily be fully employed but can be consultants who support the programme
on specific activities.
Since participatory development management (PDM) was designed and initiated
new planning institutions have emerged such as the National Planning Authority.
There is a need for mechanisms to link the planning building blocks from the
village bottom up through the sub-counties, the district to the National Planning
Authority. It is recommended that participatory bottom up planning adopted as a
national policy and integrated with related planning systems such as harmonized
planning guidelines, annual assessments, community development mobilization
strategy.
Cascading PDM to the national level is adequately provided for in PDM
methodology, which emphasizes the Building Block Approach whereby village
plans inform the parish development plans, which in turn inform the sub-county
development plans and these inform the District Development Plans. According
to the principle of subsidiarity, each level implements what is within its
jurisdiction and resource base and pushes what is beyond to the next level. Given
the creation of the National Planning Authority (NPA) the District Development
Plans (DDPs) developed using the PDM approach should be the building blocks
for the National Development Plans (NDPs). The recommendation, therefore,
should focus on sealing up within the pilot districts to cover the entire district
instead of one sub-county only and scale out to more new districts to feed into the
NPAs’ design of a National Development Plan (NDP).
It is recommended that the capacity of PPDA and PDEs be strengthened to
acquire the highly professional and technical principles, processes and procedures
of tendering, procurement and disposal of public assets.
The challenge of outcome evaluation is the need to specify the baseline in terms
of measurable indicators and to generate the appropriate performance data. The
next CCF should allocate resources to set up clearly stated outcomes, outcome
baseline indicators, and the outcome targets and appropriate milestones. The
component managers should be trained in the use of this system to manage,
monitor and evaluate the project.
In view of the large number of districts in which to upscale parties such as PDM,
AMICAALL, PAPM, a gradual and phased approach to replication is most
logical, feasible and practical.
74
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76
Annex 1, Specific Terms of Reference and Products Expected from the
Evaluation
Specific TORs
The evaluation is expected generate lessons learnt, findings, conclusions and recommendations in
the following areas:
 An assessment of the adequacy of the programme design, including adequacy of the baseline
analysis and indicators for achievement of outputs and outcome;
 An assessment and analysis of the outcome: whether it has been achieved in part or full as
was intended, the reason for any shortfall in its achievement and whether any unexpected
results or outcomes have occurred. The evaluation should appraise their relevance to the
intended outcome;
 An analysis of factors within and beyond UNDP’s control that influenced performance and
success of the projects (including the strengths, weaknesses, opportunities and threats) in
contributing to the realization of the Outcome;
 An analysis of whether UNDP's interventions can be credibly linked to achievement of the
outcome, including the key outputs, programmes, projects and assistance, both soft and hard;
 Whether UNDP’s partnership strategy has been appropriate and effective including the range
and quality of partnerships and collaboration developed with government, civil society,
donors, the private sector and whether these have contributed to improved programme
delivery. The degree of stakeholder and partner involvement in the various processes related
to the outcome. How can synergies be built with other programme components within the
UNDP Country Programme and those of other development partners (donors);
 Whether HIV/AIDS, environment, human rights and gender, which were identified as cross
cutting issues in the CCF, are being adequately addressed in the interventions and have
contributed to the achievement of the outcome; and if not, establish the reasons for not
addressing the crosscutting issues and suggest the appropriate remedial measures to be taken
into account under the next Country Porgramme for 2006-2010.
 Whether the existing institutional framework has been an effective mechanism for promoting
ethics and integrity, accountability and transparency in Uganda and the likelihood that it will
continue to do so beyond the current CCF period; and recommend possible improvements to
be considered for the next Country Programme for 2006-2010.
Products Expected from the Evaluation
The findings are expected to feed into strategic planning processes and provide valuable insights
into the formulation of the next Country Programme Action Plan/Annual Work Plan for the Good
Governance Programme. The expected product from this outcome evaluation is an evaluation
report that provides findings, recommendations, and lessons learned from the following:
 An assessment of relevance of the outcome;
77
 Progress made towards the intended outcome;
 An assessment of relevant programme outputs;
 Assessment of strengths, weaknesses, opportunities and threats with regard to programme
implementation
 An assessment of possible partnerships and collaboration for resource mobilization;
The evaluation should include but not be limited to the following;
 Lessons learned concerning best and/or less than ideal practices in producing outputs and
achieving the outcome;
 Strategies and recommendations for exit or continued UNDP assistance towards the
achievement of the outcome; and
 A realistic implementation/monitoring action plan for follow–up.
78
Annex 2, Methodology
Range of methods
Many methods of evaluation have be invented tested and used and they are outline in
Fig.10. The key factors which determine the choice of specific methods is duration or
time in which the evaluation being carried out. The methods to the left are for evaluations
with limited time duration as the one we are carrying out in a period of two months.
The methods to the right can be used in evaluation with a much long time span.
Fig. 10, Data Collection Methods
Questionnaires
Panel
surveys
Conversation
with
concerned
individuals
Community
interviews
Reviews of
official records
(management
information
system and
administrative
system
Field
visits
One-time
survey
Key
informant
interviews
Direct
Focus
group
Participant
interviews
observatio
ns
Informal and less-structured methods
methods
Field
experiments
observatio
n
Census
Formal and more-structured
Source: Adapted from Marchant 2000.
79
Review of official reports and studies.
We have received very many reports and studies held by UNDP and we have also
collected reports from the offices of project component managers (see Bibliography).
Discussions with key informants
Discussions have been held with project component managers as key informants. We
have been able to obtain information on how they defined the project objectives and how
they went about implementing the activities. We sought to determine the alignment
between the governance PSD document and the actual flow of project events on the
ground. We have shared the challenges of outcome evaluation and the logical
requirement for it. We have also shared the need for creativity in applying outcome
evaluation methodology of project events that did not conspicuously follow outcome
logical framework.
Meetings with UNDP
The team held meetings with UNDP and ALD to discuss evaluation methodology
including the survey instruments, their appropriateness, and the beneficiaries to fill them.
Field visits and community interviews
Field visits to were made to districts, sub-counties and parishes and offices as listed in
Appendix 3 were visited. Altogether, the team met more than 250 persons countrywide.
Survey Evaluation Questionnaire
A survey evaluation questionnaire was designed using rating scales approach. Its
appropriateness, validity and reliability was discussed with project component managers
who assisted in selecting the appropriate beneficiaries and in applying it.
80
Annex 3, Itinerary of Evaluation of the GoU/UNDP Good
Governance for Poverty Eradication Programme 2001-2005
DATE
Monday 8th
August
2005
TIME
8.00 am
ACTIVITY
Consultants in office
VENUE
UNDP
9.00 am
Meeting with the Governance unit
Mr Ibandas Office
2. 30 pm –3. 3 0 pm Meeting with Mr Auke Lootsma
Deputy Resident Representative
UNDP
UNDP
Review of the reference
Documents and preparations for
Consultations
Tuesday 9th
August 2005
8.30 am
Review of the Reference
Documents and preparations for
consultations
10.00 am- 12.00 am Team meets ALD
Ministry of Finance
2.30 pm - 4.30 pm
Ministry of Gender
Simbamanyo House
8.30 am- 5. pm.
Review of Reference documents
.
8.30 am- 1.00 pm
Review of reference Documents
2.30 pm- 4.30 pm
Team meets with officials from
IGGs Office.
Former IPS Building
9.00 am- 11.00 am
Team meets with the officials from
the Department of Ethics and
Integrity
Presidents Office
Nakasero
Wednesday 10th
August 2005
Thursday 11th
August 2005
Friday 12th
August 2005
11.30 am- 13.00 am Team meets with Officials from
81
PDM Secretariat
Team meets with officials from
UHRC
Workers House
Buganda Road
3.15 pm- 4.30 pm
Team meets with officials from
ALD and PAPM
Ministry of Finance
9. 00am- 11.00am
Team meets Officials from PPDA.
Workers House
11. 30am- 1.00 pm
Team meets Officials of Parliament Parliament
2.30 pm- 4. 30 pm
AMICALL
2.00 pm- 3.00 pm
Saturday 13th
August 2005
Sunday 14th
August 2005
Monday 15th
August 2005
Tuesday 16th
August 2005
Wednesday 17th
August 2005
KCC
Preparation of Inception Note
9. am- 1.00 pm
Presentation of the Inception Note.
Thursday 18th
August 2005
Consultants prepare to go to the
field
Friday 19th
August 2005
Saturday 20th
August 2005
Sunday 21st
August 2005
Consultants prepare to go to the
field
8.00 am
Travel to Mukono
9.30 am
Visit PDM
5.00 pm
Travel to Jinja where the team will
spend the night
M. C. H Conference
Room
nd
Monday 22
August 2005
82
Seeta Namuganga
Tuesday 23rd
August 2005
Wednesday 24th
August 2005
8. 00 am
Travel to Bugiri
10. 00 am
Visit PAPM
12. 00 am
Travel to Jinja
2. .00 pm
Visit PDM
Jinja
Visit AMICALL
Jinja
Thursday 25th
August 2005
Return to Kampala
Friday 26th
August 2005
Travel to Arua by air
10.00 am
Saturday 27th
August 2005
Visit PDM
Travel to Kampala
Sunday 28th
August 2005
4.00pm
Travel to Masaka
Monday 29th
August 2005
7.30 am
Travel to Kalangala
9.30 am
Visit PDM
Visit DEI
5.00pm
Tuesday 30th
2005
Wednesday 31st
August 2005
Thursday 1st
September 2005
Travel back to Kampala
Consultants have their own
discussions
7.30 am
Travel to Kabale
2.30 pm
Visit PDM
8. 30 am – 10.30
am
Visit IGGs Office
10. 30 am
Leave for Rukungiri
3.00pm- 4. 30 pm
Visit the District Authorities
83
Bugiri
Rukungiri ( Dei )
Friday 2nd
September 2005
Travel to Fortportal
11.00 am
Visit AMICALL
3.00 pm
Travel to Kampala
8.00am
Travel to Hoima
11.00 am
Visit AMICALL
4.00 pm
Travel to Masindi
8.30 am
Visit PDM Masindi
3.00pm
Travel to Kampala
\
Meetings
Saturday 3rd
September 2005
Sunday 4th
September 2005
Monday 5th
September 2005
Tuesday 6th
September 2005
Wednesday 7th
September 2005
Thursday 8th
September 2005
Meetings
Friday 9th
September 2005
Meetings
Saturday 10th
September 2005
Sunday 11th
September 2005
Monday 12th
September 2005
Report writing
Tuesday 13th
September 2005
Report Writing
84
Wednesday 14th
September 2005
Report Writing
Thursday 15th
September 2005
Report Writing
Friday 16th
September 2005
Report Writing
Saturday 17th
August 2005
Sunday 18th
September 2005
Monday 19th
September 2005
Tuesday 20th
September 2005
10.00 am- 12.00 am Presentation of draft to GG team
3..00 pm
Presentation of draft to Programme
meeting
M.C.H Conference
Room
Wednesday 21st
September 2005
9. am- 1.00 pm
Stake Holders Workshop
Sheraton
Thursday 22nd
September 2005
Consultants finalise the report
Friday 23rd
September 2005
Presentation of final repot to
UNDP
85
Annex 4, List of Persons met by the Evaluation Team 8 August -15
September 2005
Kampala
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
17.
18.
19.
20.
21.
22.
23.
24.
25.
26.
27.
28.
29.
30.
31.
32.
33.
34.
35.
36.
Mr Auke Lootsma, Deputy Resident Representative, UNDP
Mr Sam Ibanda, Assistant Resident Representative, UNDP
Ms Jenifer Bokokhe, UNCDF, UNDP
Ms Catherine Khizzah, UNDP
Ms Enid Nambuya, UNDP
Ms Frances Wandera, Consultant, UNDP/MoFPED
Ms Kyasiimire, Commissioner, MoGLSD
Mr J.P Maruhe, Principal Policy Analyst, MoGLSD
Mr Mujuni Bernard, Principal Social Development Officer, Human Rights,
MoGLSD
Mr Kabann Kabananukye, Consultant/Researcher, MoGLSD
Ms Emiliana Babwebeiha, United Nations Volunteer, MoGLSD
Mr Mabuya Mubarak, Principal Gender Officer, MoGLSD
Mr Ashaba-Aheebwa, Director, DEI, Office of the President
Ms Bonnle Kiconco, M., Ethics Officer, DEI, Office of the President
Ms Kantu Faith, Secretary, DEI, Office of the President
Mr V.B. Ssekkono, Permanent Secretary, MoLG
Mr J. A. Kayuza, Commissioner, PDM, MoLG
Mr Thomas Nkayarwa, Commissioner, Local Government Inspectorate, MoLG
Mr Milton Tumutegyereize, Director, Training and Capacity Builing, PPDA
Mr Nigel Shipman, Technical Adviser, PPDA
Mr Geoffrey Kakira, Manager, TCB, PPDA
Mr Kintu Paul, Manager, TCB, PPDA
Mr Agaba Charity, Training Coordinator, UNDP
Ms Atuhairwe Brenda, Oficer, TCB, PPDA
Mr Raphael Arihaitwe, Focal Point, IGG’s Office, Inspector General of Government
Dr Mugisa John, National Coordinator, AMICAALL
Mr Abel Wagido, EFT Member M&E (O), ALD/MoFPED
Mr Gerald Sseguya, PA AMICAALL, AMICAALL
Mr Paulo Makumbi, Financial Adviser, AMICAALL
Ms Angela Katagyira, Project Manager, PAPM Project, MoFPED
Mr Hudson, Anika, Ag. Secretary, Uganda Human Rights, Commission
Mr Nathan Byamukama, Director, Monitoring and Treaties, UHRC
Mr Turigye Christopher, Projects Accountant, Uganda Human Rights, Commission
Dr Katebalirwe Amoti, CCF Coordinator, Aid Liaison Department, MoFPED
Oode Obella, Assistant Commissioner, ALD, MoFPED
Mr Kalanguka-Kayondo, Commissioner, ALD, MoFPED
86
37.
38.
39.
40.
41.
42.
43.
44.
45.
46.
47.
48.
49.
50.
51.
52.
53.
54.
55.
56.
Mr Dison B. Okumu, Director/PDCO, Parliament
Mr Muwonge George, Principal Planning Officer, Parliament
Mr J Ssebaana Kizito, Mayor, Kampala, Kampala City Council
Mr Mathias Nsubuga, P/A to Mayor, Kampala City Council
Ms Kate Irumba, Administrative Secretary, MoFPED
Ms Justine Kyewalabye, FO, ALD, MoFPED
Mr Patrick Okello, Senior M&E Officer, Parliament
Mr Deo Nyanzi, Programme Officer, NGO Forum
Ms Norah Madaya, Team Leader, Mico Level Poverty Monitoring Component
Mr Ben Mungyereza, Head, Coordinaion Unit
Ms Grace Gulere, Team Member
Mr Byron Twesigye, Team Member
Mr Kasozi Kizito, Team Leader, DNAS and DSAP
Mr George William Mukasa, Ag Team Leader
Mr Drake Ssenyange, Africa 2000 Network
Mr Fredrick Musisi Kabuye, Ag. Director, Africa 2000 Network
Dr Mukaup Ojelade, Resident Representative, ADB
Mr Benedict Kanu, COO, ADB
Mr Ashie Mukungu, Micro Economist, ADB
Pernilla Tragardh,SIDA
Mukono District
57.
58.
59.
60.
61.
62.
63.
64.
65.
66.
67.
68.
69.
70.
71.
72.
73.
74.
75.
76.
77.
Mr Galabuzi Edward, CAO, Mukono District Local Government
Mr Mayanja Christopher, District Planner, Mukono District Local Government
Mr Mwanje Eddy Drick, Deputy CAO, Mukono District Local Government
Mr Y. Mudde, Chairperson, LCIII, Namuganga
Mr Malingha, Abbas Yahaya, Secretary for Finance, Namuganga
Mr Serwanga K. Wilberforce, Programme Coordinator, Mukono
District/Namuganga,
Mr Kikomeko Abubaker, V/C III/Technical Services, Namuganga Subcounty,
Ssebulime A., Subcounty Chief, Seeta Namuganga Subcounty
Mr Kasirye Msafiri E, TCF, PDM, Seeta Namuganga Subcounty
Mr Kafeero George Williams, TCF PDM, Seeta Namuganga Subcounty
Mr Nsamba Sabiti K, S/C Accountant, Seeta Namuganga Subcounty Seeta
Namuganga Subcounty
Mr Kasozi Christopher, TCP PDM, Seeta Namuganga Subcounty
Ms Nansubuga Ronah, FPO, Seeta Namuganga Subcounty
Mr Kalagi, E Bukenya, TCF, Seeta Namuganga Subcounty
Mr Kibudde Henry, Parish Chief, Seeta Namuganga Subcounty
Mr Kibalama Kabi, Parish Chief, Namuganga
Mr Mwajaazi Christopher, Parish Chief, Namuganga
Mr Vatiri John Bosco, Office Messenger, Namuganga
Mr Makafu Simon, O/C Namuganga, Namuganga Subcounty
Mr Katongole James, Farmer, Namuganga Subcounty
Mr Kizza Musa, Chairman LC1, Namuganga Subcounty
87
78.
79.
80.
81.
82.
83.
84.
85.
86.
87.
88.
89.
90.
91.
92.
93.
94.
95.
96.
97.
98.
99.
100.
101.
102.
103.
104.
105.
106.
107.
108.
109.
110.
111.
112.
113.
114.
Ms Ntambaye Safina, VCF, Ntonto
Ms Namugambe Robina, VCF, Kakakala
Mr Abdala Sebufu, VCF, Ntonto
Ms Nampa Mawulisa, Butumbiiri
Ms Mukuraba Joyce, VCF, Kyambogo
Ms Bugembe Rose, VCF, Nabige
Ms Nabutono Fulolence, VCF, Kazinga
Mr Ssaku Alfred, VCF, Butumbiiri
Ms Mwandha Joice, VCF, Butumbiiri
Mr Ssemwogerere Saban, VCF, Nsagi
Ms Nakabugo Margaret, VCF, Nsagi
Mr Kayanja L, VCF, Kakakala
Mr Weena John, VCF, Kibbuye
Mr Okello Paul, VCF, Kabumba/Namuganga
Mr Kambugu Isa, VCF, Kyambogo
Ms Nalubiri, Rehema, Butumbiiri Village
Ms Apese Speciyoza, Butumbiiri Village
Ms Mumwata Mary, Butumbiiri Village
Mr Bugembe Anthony, Nabiga, Butumbiiri
Mr Shangiliya Livingstone, Butumbiri
Mr Wavubuvuka Samson, Namuganga East
Mr Lule D., Butumbiiri
Mr Katongole James, Butumbiri
Ms Mamuna Baseke, Butumbiiri
Mr Omijjo Jackson E, Butumbiiri V.
Mr Mwera Tadeo, Butumbiiri
Mr Settaba J, Butumbiri
Mr Abdallah T, Butumbiri
Mr Sabaniyi, Butumbiiri
Mr Onego L, Butumbiiri
Ms Nabwire Alice, Butumbiiri
Ms Miina, Butumbiiri
Mr Sikyomu Joseph, Butumbiiri
Mr Ssebina, Butumbiiri
Mr Ssempa Ssaku, Butumbiiri
Mr Kiryowa Y, Farmer, Butumbiiri
Mr Byoogo Matiya, Farmer, Butumbiiri
Jinja District
115.
116.
117.
118.
119.
120.
Mr Gakwandi Eustace, CAO, Jinja District
Mr Daniel Mugulusi, Assistant CAO, Jinja District
Mr Mubiru Nathan, District Planner, Jinja District
Mr Kawekwa Gideon, Stastician, Jinja District
Mr Kirabire M.G, Subcounty Chief, Jinja District
My Kayuza N. Lydia, Trainer, Mafubira Subcounty
88
121.
122.
123.
124.
125.
126.
127.
128.
129.
130.
131.
132.
133.
134.
135.
136.
137.
138.
139.
140.
141.
142.
143.
144.
145.
146.
147.
148.
149.
150.
151.
152.
153.
154.
155.
156.
157.
158.
159.
160.
161.
162.
163.
164.
165.
166.
Mr Aggrey N.A, Igaga, Bugembe Wanyama PDM
Ms Nabiryo Christine, PDC
Mr Musagala Chrysostom, C/P PDC
Ms Waisanka Irene, VCF, Kayunga Mafubira PDM
Ms Jalia Kitto, Vice Chairperson, Mafubira Subcounty
Mr Madoi Hassan, VCF, Budumbuli W., Bugembe
Mr Mugongo Moses, VCF Katende, East,
Mr Balikweya John, VCF, Wanyange Girls School
Ms Nsongola Rose, VCF, Buwenda Kyetidde
Ms Byakika Monic, N, VCF, Budumbuli West
Ms Kabulega Margaret, PDC, Buwenda Mataala
Mr Kiryagama Patric, VCF, Masima Village
Ms Manangwa Jane, VCF, Mafubira B
Mr Matege James, PDC, Mafubira B
Ms Kibenzirel Nelly, VCF, Wanyama Road West
Ms Fiida Nambavu, VCF, Mauta Village
Mr Ssemugabi Semei, Clinical Officer,Wakitaka HCIII
Mr Wairama Francis, Village Community Facilitator, Kalungami Village
Mr Kisule Siraji, PDC Chairman, Katende West
Mr Samanya D. Moses, VCF, Wanyama East
Ms Bakaira Rose, VCF/PDC, Musima Village
Ms Naiga Prossy, VCF/PDC, Kalungami Village
Ms Nabirye Christine, VCF/PDC, Kagogwa Village
Mr Nsimbi John, VCF, Kagogwa Village
Mr Odoi Passy, VCF, Butiku Mataala Village
Mr Lwabaga Hamuza, VCF/PDC, Buwenda Parish
Mr Ndifuna David, PDC, Kalungami Village
Ms Ezeresi Kimeda, VCF/PDC, Buwenda C
Mr Gavamukulya M, PDC, Buwekula Parish
Mr Kayingo Sulaimani, VCF, Bugembe Katwe Zone
Mr Migenga G.W. Isabirye, PC, Buwenda Parish
Mr Wangubo Visensio, Parish Chief, Namulesa
Mr Ikomo Geoffrey, VCF, Wakitaka Buwekula
Mr Tazuba, ACDO, Focal Point, Mafubira Subcounty
Mr John B. Beyanga, Assitant Clerk, Mafubira Subcounty
Mr Katuulo Sipla, Parish Chief, Mafubira Subcounty
Mr Mulinda Muhamadi, Parish Chief, Mafubira Subcounty ,Buwekula
Mr Kyalo Godfrey, Chairman, Nakabango
Ms Nalugwa Grace, PDM, Butiki Matala
Ms Getulida Mbogo, PDC, Wakitaka
Ms Sarah Lwabaga, PDC, Buwenda Central
Mr Tebigwayo C. Constant, Parish Chief, Mafubira Subcounty
Mr Wansagi Charles, Parish Chief, Wanyange Parish
Ms Kaidu Mukembo Harriet, VCF, Nakanyonyi, Bugembe
Ms Esther Maitekyalo, VCF, Wanyange Lake Zone
Mr Sebukeera Augustine, VCF, Wanyange Hill
89
167.
168.
169.
170.
171.
172.
173.
174.
175.
176.
177.
178.
179.
180.
181.
182.
183.
184.
185.
186.
187.
188.
189.
190.
191.
192.
193.
194.
Mr Kyeyune Justine, VCF, Kaitabawala
Ms Mitango Monic, Buwekula Village
Ms Namulondo Cissy, VCF, Isukwe
Mr Wanzala Kenneth, VCF, Wakitaka
Mr Finga Moses, TCF, Mafubira S/C
Mr Kibedi Musa, Veterinary Officer, Mafubira S/C
Ms Monic Musongole, PDM, Wanyange
Ms Mudyadya Jenifer, Secretary, Mafubura
Mr Kadoko Herbert, PDM, Budumbuli East
Mr Wambuzi P., VCF Mr. Babi Fred, Bugembe, Mufubira Subcounty
Ms. Elizabeth Muitta, Wanyai V.C.F., Mufubira Subcounty
Mr. Balabyeki Yusuf, V.C.F, Mufubira Subcounty
Mr. Mukama Francis, V.C.F., Mufubira Subcounty
Ms. Muderwa Recheal, P.D.M. Wanyai, Mufubira Subcounty
Mr. Muwandi Musabaari, V.C.F. Wabulenga, Mufubira Subcounty
Ms. Isooba Ruth, P.D.M./V/C, Kaimogoga, Mufubira Subcounty
Mr. Mukama Asumani, V.C.F., Katende East, Mufubira Subcounty
Mr. Mulopa Seif, Casheir, Mufubira Subcounty
Ms. Njuba Robinah, P.D.C., Kayunga
Mr Tawale Charles, Nakanyoni
Ms Sembela J, PDC, Wanyange Lake Zone
Mr Edirisa Gava, C/P LCII, Buwekula Parish
Mr Mitango F, PDC, Buwekula
Mr Mbago James, DCC, Buwekula
Ms Zauma Mutebe, PDC, Nakabango
Ms Nangobi Jowerina, PDM, Buwenda Matala
Ms Madaya Norah, Micro Level Poverty Monitoring, UBOS
Ms Grace Bulenzi-Gulere, Micro Level Poverty Monitoring, UBOS
Jinja Municipality
195.
196.
197.
198.
199.
200.
201.
202.
203.
204.
205.
206.
207.
208.
209.
Mr David Wakudumira, Mayor, Jinja Municipal Council
Ms Rosemary Nyarubona, Councillor, Jinja Municipal Council
Ms Margaret L Odyek, Councillor, Jinja Municipal Council
Mr Bagoole Kwimwitta, Deputy Mayor, Jinja Municipal Council
Mr Waidhumba Jofram, Deputy Town Clerk, Jinja Municipal Council
Fr P.G. Picavet, Member AMICAALL, Red Cross, Jinja Municipal Council
Mr Sewalu Alex, Member AMICAALL, Red Cross, Jinja Municipal Council
Mr Maganda Francis, Chairperson, Jinja Network of People Living with HIV/AIDS
Dr Banowya, S, AMICAALL Coordinator, Jinja Municipal Council
Mr Kizito John, Assistant AMICAALL Cordinator, Jinja Municipal Council
Mr Boniface Ntalo, DFP/DHE Jinja, Jinja District
Mr Mbugane, Stephen, Manager, AIC, Jinja
Ms Bwire Imelida, Member AMICAALL, JCM
Mr Muzusa Geoffrey, Member AMICAALL, Jinja Municipal Council
Ms Tibinywera Tappy, AMICAAL beneficiary/JINNET, Jinja Municipality
90
210.
Ms Nangobi, Tailor/AMICAAL beneficiary, Jinja Municipality
Arua District
211.
212.
213.
214.
215.
216.
217.
218.
219.
220.
221.
222.
223.
224.
225.
226.
227.
228.
229.
230.
231.
232.
Niku Goefrey, C.D.O., Community Service/ROD
Mr. Enaku David, CCF, Community Service/ROD
Ms. Atikuru Nasira, CCF,
Andima Martin, CCF,
Ms. Asinduru Dorcus, CCF
Mr. Asiku Matata, CCF/PD
Mr. Achikule Alex, CCF, Community Service
Ms. Drateru Agnes, CCF, Teacher/Community service
Mr. Draku Francis, CCF, Teacher/Community Service
Ms. Anderu Rose, CCF, Teacher/Community Service
Ms. Drabezu Hellen, CCF, Teacher/Community Service
Mr. Mawa Bezza, CCF, Teacher/Community Service
Ms. Nafsa Kemisa, CCF, Teacher/Community Service
Mr. Salo Ogua, CCF, Teacher/Community Service
Ms. Subra Yusuf, CCF, Teacher/Community Service
Mr. Aliku Abubakar, CCF, Teacher/Community Service
Mr. Andama Moses, CCF/PDC, Teacher/Community Service
Mr. Ashiraf Gadhaff W., CCF, Teacher/Community Service
Ms. Hawa Night Hassan, CCF/PDC, Teacher/Community Service
Mr. Abdulatifu Juma, CCF, Teacher/Community Service
Mr. Azabo Ratib, CCF/PDC, Teacher/Community Service
Ms. Abia Ronald Auma, TCF, ROD
Kalangala District
233.
234.
235.
236.
237.
238.
239.
Mr Mayito Pontiano, District Planner, Kalangala Disctict
Mr Vicent S Kyambadde, PDM Facilitator, Kalangala District
Mr Jingo G. Kasule, CFO, Kalangala District
Mr J. Lukyamuzi, Subcounty Chief, Kalangala District
Mr Nkonte Moses, TCF, Mugoye Subcounty, Kalangala District
Mr Kamya Danson, CDO/TCR, Mugoye Subcounty, Kalangala District
Mr Joseph F. Balya, TCF, Mugoye Subcounty, Kalangala District
Kabale District
240.
241.
242.
243.
244.
245.
Mr James Mwesigye, RDC, Kabale
Mr Katehengwa Sam, CAO, Kabale District Local Government
Mr Twebaze Ales, Statistician, Kabale District
Mr Peter Matiko, DCAO, Kabale District
Mr Tumwesigye Johnes, K, S/C/C Bubale, Bubale Subcounty
Ms Joseline Muwombire, S/C/Chairperson, Bubare Subcounty
91
246.
247.
248.
249.
250.
251.
252.
253.
254.
255.
256.
257.
258.
259.
260.
261.
262.
263.
264.
265.
266.
267.
268.
269.
270.
271.
272.
273.
274.
275.
276.
277.
278.
279.
280.
281.
282.
283.
Mr Tayebwa Milton, VCF Kabindi, Bubare Subcounty
Rev Canon E Mahega, VCF Muchahi, Bubare Subcounty
Mr Byaruhanga Levis, TCF Bubare Subcounty
Mr Byamugisha March, P/Chief Butobere, Bubare Subcounty
Ms Binegoro Dinah, M, TCP/CDA, Bubare Subcounty
Mr Akampurira Ivan, Records Assistant, Bubare Subcounty
Dr Kasyaba A.B, Veterinary Officer, Bubare Subcounty
Mr Bahemurwabusha, Health In Charge, Bubare Subcounty
Mr Katamujuna Geresem, VCF, Hamumaraceh-Nyamiyaga
Mr Kugumisiriza L.D, Muyanje-Bubare Subcounty
Ms Tumusiime Margaret, PDC, Bubare Trading Centre
Mr Asiimwe Peter, PDC, Bubare Parish, Bubare Subcounty
Mr Nturwa Ignatius, TVCF, Bubare Subcounty
Mr Musimenta Emmanuel, P/Chief, Agricultural Officer, Bubare Subcounty
Mr Monday, Police (KDA), Bubare Subcounty
Mr Turyagenda David, PDC, Bubare Parish
Mr Bankobeza Alfred, VCF, Kashaki LC1
Ms Makara Alice, VCF, Kimusya (A)
Ms Mahoro Christine, VCF, Kimusya (B) LC1
Ms Beijuka Provia, VCF, Kitumbezi LC1
Ms Twikirize Rossell, VCF, Kashaki LC1
Ms Ahimbisibwe Stella, VCF, Kakooma LC1
Mr Masanyu Justus, CDW, Africa 2000 Network
Mr Sam Kajura, GISO, Bubare Subcounty
Ms Atuheire Emily, VCF, Bubare Subcounty
Mr Kabarungi Harriet, Rwamutasya/Nyamiyaga
Mr Masiko Ivan, VCF, Muynje
Mr Besisira Sylver, VCF, Ntungamo Cell
Ms Allen Twebaze, VCF, Kabindi Village
Mr Mugabirwe Edin, VCF, Bubare Subcounty
Mr Kitaburaza, VCF, Bwona B
Mr Rwebasira Gershom, TCF, Bubare Subcounty
Ms Tibemanya Evelyn, VCF, Kyantobi Village
Mr Karabayi D., VCF Chairman, Kyantobi Village
Mr Tibasiima E, VCF C/for Women, Kyantobi Village
Mr Bikwesozehe, Vice C/P, Kyantobi Village
Mr Hitira Michael, M/C, Kyantobi Village
Mr Ntale Francis, Regional Inspectorate Office, IGG Regional Office, Kabale
Rukingiri District
284.
285.
286.
287.
Mr Ntaho Frank, CAO, Rukungiri District Local Government
Mr Tibugyenda Wilson, Deputy CAO, Rukungiri District Local Government
Mr Kigango Fred, Rukungiri District Local Government
Mr Turyagenda, SOW, Rukungiri District Local Government
92
288.
289.
290.
291.
292.
293.
294.
295.
Ms Twinamatsiko Jolly, Sec for Works and Tech. Services, Rukungiri District Local
Government
Mr Makeiha Zablon, District Education Officer, Rukungiri District Local
Government
Mr Mugisha Richard, Senior Personnel Officer, Rukungiri District Local
Government
Mr Tiwangye Fredie, District Commercial Officer, Rukungiri District Local
Government
Mr Chris Magoba, District Information Officer, Rukungiri District Local
Government
Mr Rwobusheru A, CFO, Rukungiri District Local Government
Mr Tiwaitu C, CSC, Rukungiri District
Mr Kamanyire Deus, Secretary for Social Services, Rukungiri District
Kabarole
296.
297.
298.
299.
300.
301.
302.
303.
304.
305.
306.
307.
308.
309.
Mr Nsaba-Ruyonga, Major, Fort Portal Municipal Council
Ms Kihika Margaret, Deputy Mayor, Fort Portal Municipal Council
Mr Bacwa Peter, Sec Health/Education, Kabalore District Adminisration
Mr Eric Kirungi, Chairman LCIII East Division, Fort Portal Municipal Council
Mr Tinkasimire R, C/Man LCIII, Fort Portal Municipal Council
Ms Kabasahura Stella, East Division, Fort Portal Municipal Council
Ms Tracy C. Kajumba, A/Town Clerk, East Division, Fort Portal Municipal Council
Mr Tibasiima A R Patrick, ATC West Division, Fort Portal Municipal Council
Mr Rwabwogo Chris, Coordinator AMICAALL, Fort Portal Municipal Council
Mr Kamugasa Ronnie, Programme Officer, Kabalore Research Centre
Mr Denis Mugarra, Town Clerk, Fort Portal Municipal Council
Mr Mustafa Rashid, C/Person, LC1, Rwengoma B1 Division
Ms Towsi Muhamed, Kabalore AMICAALL beneficiary
Mr Kisembo Joseph, Orphan Beneficiarya, AMICAALL Kabalore
Hoima
310.
311.
312.
313.
314.
315.
316.
317.
318.
Mr Kaboyo Maxwell David, Mayor, Hoima Town Council
Mr Kiiza K. Alfred, Town Clerk, Hoima Hoima Town Council
Mr Bigabwa Ibrahim, Education Officer, Hoima Town Council
Mr Katongole Robert, Senior Accounts Assistant, Hoima Town Council
Mr Eric Arony, Local Coordinator, Hoima
Mr Barongo Godfrey, Health Assistant, Hoima Town Council
Mr Asiimwe Zaid Juma, Vice Chairman, Hoima
Ms Ruberantware Mary, Rep NGOS, HTC, Hoima Town Council
Ms Tusiime E Catherine, Orphan beneficiary, Hoima Town Council
Masindi
319.
Mr Nic Begyira Rukiika, Town Clerk, Masindi Town Council
93
320.
321.
322.
323.
324.
325.
326.
327.
328.
329.
330.
331.
332.
333.
334.
Mr Chwa Dauda, Assistant Town Clerk, Masindi Town Council
Ms Ndaru Gertrude, Town Planner, Masindi Town Council
Mr Mutabazi-MEA, Ag. Town Health Inspector,/Health Educator, Masindi Town
Council
Mr Kananura Richard, Town Engineer, Masindi Town Council
Mr Musa Mutebi, Tenderer Member Management Committee, Masindi Town
Council
Ms Balinda J, Market Vendor, Masindi Central Market
Ms Kabaganda Betty, Market Vendor, Masindi Central Market
Ms Kabasindi Monica, Market Vendor, Masindi Central Market
Mr Bumba Simon Kejje, Secretary Market, Market Vendor, Masindi Central Market
Mr Besigwa Zabairi, Kihanda I, Link KFA
Mr Kasangaki Mohamed, Kihanda I, VChairman, KFA
Ms Nanji Harriet, Kihanda I, Treasurer
Ms Nabirye Lydia, Western, CCF
Mr Jerom I Muchope, Bulyasojo, CCF
Ms Mpaata Chrstine, Bulyasojo CCF
Attendance List of Presentation of Inception Report and Meeting of Component
Managers, 18 August 2005
335.
336.
337.
338.
339.
340.
341.
342.
343.
344.
345.
346.
347.
348.
349.
350.
351.
352.
353.
354.
355.
356.
357.
358.
Mr Cornelis Klein, UNDP Resident Representative a.i
Mr Jose Manzano, UNV Programme Officer, UNDP/UNV
Ms Rose Ssebatindira, Assistant Resident Representative, UNDP
Mr Dison B Okumu, Director, PDCO, Parliament of Uganda
Mr Okello Patrick, SMEO-PDCO, Parliament of Uganda
Mr Alexander Aboagye, Economist, UNDP
Dr Katebalirwe Amoti, CCF Coordinator, MoFPED
Mr Mathias Perd, JPO, Income Generation and Sustainable Livelihood, UNDP
Mr Hudson R. Anika, Focal Point, Ag. IEC, UHRC
Ms Justine Kyewalabye, FO, ALD/MoFPED
Mr Cory Brandit, NY-KM, UNDP
Mr Muwonge George, Principal Planning Officer, Parliament
Ms Bonnie Kiconco, Ethics Officer, DEI
Mr Ashaba-Aheebwa, Director, DEI
Mr Abel Wagido, M&E/O, ALD/MoFPED
Dr Arinaitwe R, Focal Point/IGG’s Office, Inspectorate of Government
Ms Angela Katagyira, Project Manager, PAPM, MoFPED
Mr Tapiwa Kamurusho, Programme Manager, Human Rights Project
Mr Sam Ibanda, ARR/P, UNDP
Mr Kayuza Joseph, C/PDM, MoLG
Dr Mugisa John, National Coordinator, AMICAALL
Mr Auke Lootsma, DRR (P), UNDP
Ms Enid Nambuya, Program Analyst, UNDP
Mr Kaggwa, P., Finance Officer, ALD, MoFPED
94
359.
360.
Ms Wandira Frances, Consultant/Coordinating Evaluation
Mr Milton Tumutegyereize, Director, TCB, PPDA
Attendance List of ETF Briefing, Kampala, (7 September 2005)
361.
362.
363.
364.
365.
366.
367.
368.
369.
370.
371.
372.
373.
374.
Ms Jenifer Bukokhe, PO, UNCDF
Ms Enid Nambuya, Program Analyst, UNDP
Mr Sam Ibanda, ARR/P, UNDP
Mr Srikiran Devara, JPO, UNDP
Ms Catherine Kizzah, Program Assistant, UNDP
Ms Justine Kyewalabye, Finance Officer, UNDP
Ms Harriet Kansigarira, Programme Assistant, UNDP
Dr Katebalirwe Amoti, CCF Coordinator, ALD/MFPED
Mr Abel Wagido, M&E/O, ALD/MFPED
Ms Frances Wandira, Consultant, ALD/MFPED
Mr Auke Lootsma, DRR, UNDP
Mr Kalanguka-Kayondho, C/ALD, MOFPED
Ms Norah K. Wandera, TC/GGPEP
Mr Kaggwa P, Finance Officer, ALD/MFPED
95
ATTENDANCE LIST FOR THE STAKEHOLDERS
WORKSHOP FOR THE EVALUATION OF THE INCREASED
PUBLIC SECTOR EFFICIENCY, TRANSPARENCY AND
ACCOUNTABILITY OUTCOME
23RD SEPTEMBER 2005
NO.
1.
NAME
Mr. Cornelis Klein
2. 2Ms Bonnie Kiconco
3. 3Dr Jim Arinaitwe
4. 4Mr Okuraja Esimu
5. 6Ms Doreen Namara
Barigye
6. 7Mrs Elizabeth Kyasimire
.
7. 5Mr Gerald Seguya
.
8. 6Mr. Sam Ibanda Igaga
.
9. 7Mr. Wilson Kwamya
.
10. 6Ms Rakumi Faridah
.
11. 7Dr. Katabalirwa Amooti
.
12. 8Mr. Kayondo Kalanguka
.
13. 9Mr. Oode Obella
.
14. 1Professor James Katorobo
0
.
15. 1Dr. Kalibwani
1
.
16. 1Mrs.May Sengendo
2
.
17. 1Ms.Frances Wandira
3
.
18. 1Ms.Catherine Khizzah
4
.
19. 1Mrs.Jenifer Bukokhe
5
.
DESIGNATION
Ag. Resident
Representative
Ethics Officer
Advisor
Principal Assistant
Secretary
Focal Point Officer
INSTITUTION
UNDP
DISTRICT
Kampala
DEI
Uganda Aids Commision
President’s Office
Kampala
Kampala
Kampala
National Poverty Forum
Kampala
Commisioner
MoGLSD
Kampala
Programme Assistant
AMICAALL
Kampala
Assistant Resident
Representative
Assistant Resident
Representative
Intern
UNDP
Kampala
UNDP
Kampala
UNDP
Kampala
CCF Coordinator
ALD / MoFPED
Kampala
Commissioner
ALD / MoFPED
Kampala
Assistant Commissioner
ALD / MoFPED
Kampala
Consultant
Makerere Institute of
Social Research
Kampala
Consultant
Consultant
Kampala
Makerere University
Consultant
Kampala
Kampala
Programme Assistant
UNDP
Kampala
Programme Officer
UNDP/UNCDF
Kampala
96
20. 1Ms. Enid Nambuya
6
.
21. 1Ms. Harriet Karusigarira
7
.
22. 1Mr Athman Kakivu
8
.
23. Mr. Srikiran Devara
Programme Analyst
UNDP
Kampala
Programme Assistant
UNDP
Kampala
Deputy Resident
Representative
UNDP
Kampala
JPO
UNDP
Kampala
24. 1Mr. Dison B. Okumu
9
.
25. 2Mr. Hudson Anika
1
.
26. 2Mr. Ashaba Aheebwa
2
.
27. 2Mr Abel Wagido
3
.
Director PDCO
Parliament
Kampala
Ag. Secretary
UHRC
Kampala
Director
DEI
Kampala
M & E Officer
MoFPED
Kampala
28. 2Mr Raphael Baku
4
.
29. 2Ms. Angela Katagyira
5
.
30. 2Mr. Joseph Kayuza
6
.
31. 2Mr. Pafula Kagwa
7
.
32. 2Mr. Kakira Geoffrey
8
.
33. Mr. Nigel Shipman
34. 2Mr. Jackson Maruhe
9
.
35. 3Mr. Fred Musisi Kabuye
0
.
36. Mr. Ashe Mukungu
Deputy IGG
IGG
Kampala
Project Manager
PAPM
Kampala
PDM Coordinator
PDM
Kampala
Finance Officer
ALD / MFPED
Kampala
Ag Director Training and
Capacity Building
PPDA
Kampala
CTA on Capacity Building
Focal Point Officer
PPDA
MoGLSD
Kampala
Kampala
National Coordinator
Africa 2000 Network
Kampala
Programme Officer –
Governance
Director
ADB
Kampala
MISR
Kampala
Coordinator DNAS
UBOS
Kampala
37. Dr. Nakanyike Musisi
38. 3Mr. Kizito Kasozi
6
97
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40.
41.
42.
43.
44.
45.
46.
47.
48.
49.
50.
51.
52.
53.
54.
55.
56.
.
3Mr. Saul Kaye
7
.
Ms. Silivia Angey
Ufoyuru
3Mrs. Norah Katumba
8Wandera
.
4Ms Rosemary Nyarubona
1
.
4Dr. Banonya
2
.
4Mr. Kawekwa Gideon
3
.
4Mr. Kirabira Nkuutu
4
.
4Mr. Mayanja Christopher
5
.
4Mr. A. Ssebulime
6
.
4Mr. Serwanga
7Wilberforce
.
4Mr. Mayitto Pontiano
8
.
4Mr. Vincent Kyambadde
9
.
5Mr. D. Lukyamuzi
0
.
5Mr. John Sebaana Kizito
1
.
5Mr. Twebaze Alex
2
.
5Mr. Tumwesigye Johnes
3Kanyeihamba
.
5Mr Dan Kamya
4
.
5Mr. David Kaboyo
Executive Director
National Planning
Authority
Kampala
Programme Manager
NEPAD/APRM, at NPA
Kampala
Governance Technical
Coordinator
MoFPED
Kampala
Councillor
Jinja Municipality
Jinja
Coordinator
AMICAAL
Jinja
District Statistician
District Administration
Jinja
Sub county Chief
District Administration
Jinja
(Mafubira)
District Planner
District Administration
Mukono
Sub county Chief
District Administration
PDM Programme
Coordinator
District Administration
Mukono
(Seeta
Namugonga)
Mukono
District Planner
District Administration
Kalangala
Facilitator
PDM
Kalangala
Subcounty Chief
District Administration
Kalangala
Mayor
Kampala City Council
Kampala
Planner / Statistician
District Administration
Kabale
Sub county Chief
District Administration
Focal Planning Person
PDM
Kabale
(Bubare subCounty)
Kalangala
Mayor
Municipality
Hoima
98
57.
58.
59.
60.
61.
62.
63.
64.
5
.
5Mr.Bigabwa Ibrahim
6
.
5Ms. Gertrude Ndaru
7
.
5Mr. Kananura Richard
8
.
6Mr Elope Ogwal James
0
.
6Mr. Asaba Ruyonga
3
.
6Mr. Christopher
4Rwabwogo
.
6Dr. John Mugisha
5
.
MMr Kenneth Mugambe
Local Coordinator
AMICAALL
Hoima
District Planner
District Administration
Masindi
Town Engineer
District Administration
Masindi
Sub county Chief
District Administration
Lira
Mayor
Municipality
Fort Portal
Coordinator
AMICAALL
Fort Portal
Component Manager
AMICAALL
Kampala
Director Budget
MoFPED
Kampala
99