Survey
* Your assessment is very important for improving the workof artificial intelligence, which forms the content of this project
* Your assessment is very important for improving the workof artificial intelligence, which forms the content of this project
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. v 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. vi 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. vii 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 62 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 68 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 Bibliography 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. 20. Adupa, R. L. and Asingwire , Alliance of Mayors and Municipal Leaders on HIV/AIDS in Uganda, Kampala: UNDP, September 4, 2005. AMICAALL, Alliance of Mayors and Municipal Leaders on HIV/AIDS in Africa: Strategic Plan 2005 – 2008. Kampala: AMICAALL Anne Cockcroft and Jose Legoretta. National Integrity Survey, August 1998, April 2004 Chinery Hesse, Mary. Kasirye-Alemu, Eve. Kazoora, Cornelius. Midterm Review of Second GOU/UNDP Country Cooperation Framework Final Report, March 2004 CIET, Uganda National Integrity Survey, Kampala: The Inspectorate of Government August, 1998. Directorate for Ethics and Integrity. National Strategy 2004-2007, July 2004 Directorate of Ethics and Integrity, National Strategy to Fight Corruption and Rebuild Ethics and Integrity in Public Office 2004-2007, July 2004 GoU/UNDP, Policy Analysis and Poverty Monitoring, Kampala: GoU/UNDP, July 2001. GoU/UNDP, Second Country Cooperation Framework 2001 – 2995 on Good Governance for Poverty Eradication Kampala: GoU/UNDP, July 2001. Hesse, M.C., Kasirye - Alemu E., and Kazoora, C., Mid – Term Review of Second GoU/UNDP Country Cooperation Framework: Final Report, Kampala: UNDP, October, 2003. Hesse, M.C., Kasirye – Alemu, E., and Kazoora, C., Mid – Term Review of Second GoU/UNDP Country Cooperation Framework: Final Report, Kampala: UNDP, March 2004. IGG. Corporate and Development Plan (CADP) 2004-2009 Kusek, J.Z and Rist, Ray C., Ten Steps to a Results–Based Monitoring and Evaluation. Washington D.C.: The World Bank, 2004. Mary Chinery Hesse, Eve Kasirye-Alemu, Cornelius Kazoora. Midterm Review of Second GOU/UNDP Country Cooperation Framework Final Report, March 2003 Ministry of Finance, Planning and Economic Development. Poverty Eradication Action Plan (2004/5-2008/8), 2004 Ministry of Finance, Planning and Economic Development. Report on Good Governance for Poverty Eradication (GGPE) Programme, 21 July 2005 MoFPED, Report on the Review Workshop on CCF Progress and Results. Kampala: MoFPED, 19-20 September, 2002. MoFPED, Report on Workshop that discussed the Mid-Term Review CCF 2001-2005. Kampala: MoFPED, 26 February, 2004. Shipman, Nigel. “Performance Appraisal of the UNDP Capacity Building Project”, June 2005 The Republic of Uganda, Anti – Corruption Progress Report. Kampala: Directorate of Ethics and Integrity May 2001 – October 2004. 75 21. 22. 23. 24. 25. 26. 27. 28. 29. 30. 31. 32. 33. 34. The Republic of Uganda, Inspectorate of Government Corporate and Development Plan 2004-2009. Kampala: Inspectorate of Government, April 2004 The Republic of Uganda, Inspectorate of Government Report to Parliament, Kampala: Inspectorate of Government, January-June, 2002 The Republic of Uganda, Inspectorate of Government Report to Parliament, Kampala: Inspectorate of Government, July-December, 2002 The Republic of Uganda, Inspectorate of Government Report to Parliament, Kampala: Inspectorate of Government, January-June, 2003 The Republic of Uganda, Inspectorate of Government Report to Parliament, Kampala: Inspectorate of Government, July-December , 2003 The Republic of Uganda, Inspectorate of Government Report to Parliament, Kampala: Inspectorate of Government, January-June, 2004 The Republic of Uganda, Inspectorate of Government Report to Parliament, Kampala: Inspectorate of Government, July-December , 2004 The Republic of Uganda, Parliamentary Strategic Investment and Development Plan (PSIDP), Kampala: Parliamentary Commission of Uganda, 2002. The Republic of Uganda, Skills in Ethical Decision Making, Kampala: Directorate of Ethics and Integrity , February 2003 The Republic of Uganda, The Local Government Act, Kampala: The Uganda Gazette No. 19, XC, 24th March, 1997. Thygesen, Astrid. Inception Report, 04 April 2003 Uganda Government, World Bank. Uganda Country Procurement Assessment Report, Volume I, Main Findings and Recommendations (Draft), May 2004 UNDP. SRF/ROAR Outcomes for Uganda, 2 December 2003 UNDP/UNAIDS. AMICAALL – Uganda Chapter, November 2004 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 39. 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