COUNTRY EVALUATION:

ASSESSMENT OF DEVELOPMENT RESULTS

MOZAMBIQUE

United Nations Development Programme

Evaluation Office
Repor ts Published under ADR Series
Country Evaluation: Bulgaria
Country Evaluation: China
Country Evaluation: Egypt
Country Evaluation: Jamaica
Country Evaluation: Nigeria
Country Evaluation: Ukraine
Country Evaluation: Turkey
Country Evaluation: Vietnam

Fo r t h c o m i n g A D R R e p o r t s
Country Evaluation: Bangladesh
Country Evaluation: Ethiopia
Country Evaluation: Honduras
Country Evaluation: Syria
Country Evaluation: Yeman

E VA LUAT I O N T E A M

Team Leader: Dr. James Freedman

Team Members: Dr. Cesar Chelala
Fadzai Gwaradzimba (Task Manager)
National Consultants: Gregorio Firmino (Governance Study)
Amilcar Tivane (Governance Study)
Ida Munhequete (Translator)
Research Assistants: Michael Demian and Abrar Janneh

Copyright © 2004
United Nations Development Programme
Evaluation Office
One United Nations Plaza
New York, NY 10017, USA
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Contents
Foreword 5
Executive Summary 7

Chapter 1: Introduction 19
Rationale for the Evaluation 19
Approach and Methodology 20

Chapter 2: Mozambique’s Development Challenges 23

National Context 23
Meeting the Millennium Development Goals 25
(MDGs): Mozambique’s key Development Challenges
Mozambique’s Development Strategy 30

Chapter 3: UNDP Strategic Position in Mozambique 33

Introduction 33
Overview of UNDP’s Programmes 33 3
First Country Cooperation Framework, 1998-2001 34
Relevance to National Priorities 38
Strategic Partnerships and Development Results 39
Conclusion 42

Chapter 4: UNDP’s Performance and Contribution 45

to Development Results Governance
Poverty Reduction 52
Support to Vulnerability Reduction: Demining and Disaster Management 56
Conclusion 58

Chapter 5: Future Directions: Lessons and Recommendations 61

Recommendations 63
Conclusion 67

Annex 1: List of Key Persons Met 69

Annex 2: References and Documents Consulted 73
Annex 3: Mozambique Human Development Indicators for 2003 77
Compared with SADC Members Countries
Annex 4: Millennium Development Goals and UNDP’s 79
Contribution in Mozambique
Annex 5: Strategic Results Framework with Intended 81
Outcomes for CCF2
Annex 6: Distribution of UNDP Resources by SRF Goals 83
Annex 7: Selection of PARPA Indicators and Targets 85
Annex 8: Acronyms 87
Annex 9: Terms of Reference 89
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Foreword

This report presents the findings of the Assessment of Development Results

(ADR), the Mozambique country evaluation conducted by the Evaluation
Office (EO) of the United Nations Development Programme (UNDP) in
2004. ADRs are independent forward-looking evaluations that assess the
strategic positioning of UNDP’s support and its contributions to a country’s
development in a given period of time. The emphasis is on generating lessons
to promote organizational learning to enhance UNDP’s performance and
increase its contribution to development effectiveness.
Since the 1992 peace accords that ended the civil war, Mozambique has
achieved remarkable success on a number of fronts. It has successfully navigated
the transition from peace to war and sustained political stability while trans-
forming its political system to a multi-party democracy. Mozambique has also
been able to maintain steady economic growth rates averaging 6 percent to 7
percent a year over the past several years. These are encouraging results. But
Mozambique is still a least developing country (LDC) that faces considerable 5
economic and human development challenges, and the role and contributions
of external partners remain important.
The findings of this ADR show that UNDP’s record of meeting the needs
of the country in the post-conflict phase was excellent and it made positive con-
tributions to sustainable peace. Major areas of its contribution include capacity
building and the establishment of key government institutions at a time when
very few development partners were operating in Mozambique. A critical con-
tribution has been the promotion of local governance through participatory district
planning, a flagship capacity building programme undertaken in collaboration
with the United Nations Capital Development Fund (UNCDF). This
initiative, piloted in Nampula province in 1999, has been replicated, scaled up
and adopted by the government at policy level.
However, the ADR team concludes that UNDP’s poverty reduction
programmes are too disparate, hence lacking strategic focus, and have not as yet
demonstrated the promising results such as those evident in the area of local
governance and decentralization.
Overall, the ADR underlines the need for UNDP to adjust its strategies to
meet new priorities and the challenges of a changing nation. Significantly, the
pattern of development cooperation in Mozambique has changed considerably
since the 1990s. The emergence of generalized budget support as a way to
provide aid to Mozambique and the growing trend towards harmonization
of approaches and aid instruments among key donors is positive for overall
development effectiveness. However, these trends have implications both for
the country and for the nature of UNDP’s support.
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

A number of people contributed to this evaluation,

particularly the evaluation team: James Freedman, the team
leader, Cesar Chelala, principal international consultant,
Fadzai Gwaradzimba, Evaluation Adviser and task manager,
Gregorio Firmino and Amilcar Tivane, the national con-
sultants who undertook the in-depth study on governance
and Aida Munhequete, who served as a translator.
Margarita Bernardo and Anish Pradhan provided adminis-
trative support and Michael Demain and Abrar Jannoh
served as research assistants on the team. Above all, we owe
a great deal of gratitude to the numerous government
officials, donors and members of civil society organizations
whose insights were invaluable to the team.
Last but not least, I would like to thank the Country
Office and Regional Bureau for Africa (RBA) for their
cooperation. The Resident Representative, Marylene
Spezzati, and her entire team afforded us invaluable support
throughout, particularly Rosaria Laranjeira and Inacia
Salvador who provided excellent in-country backstopping
for the exercise. Abdoulie Janneh, the Director of RBA,
Elizabeth Lwanga, Deputy Director, RBA, and Michel
Falavigna, Programme Manager for Mozambique supported
6 and welcomed the ADR.
UNDP has been a key and valuable partner of
Mozambique since its independence in 1975 and has
remained so throughout the decades of conflict and
recovery. In a partnership marked by multiple transitions,
there are many development lessons to be drawn and
significant changes to take into account. I hope this report
will provide useful suggestions that will help UNDP build
upon its successes in order to attain greater coherence and
strategically reposition its support to meet the country’s
emerging challenges.

Saraswathi Menon

DIRECTOR
UNDP EVALUATION OFFICE
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Executive Summary

INTRODUCTION
Mozambique is a country in transition and, by most accounts, a relative success
story of peace building and post-conflict recovery. Within the space of a decade,
it has successfully managed multiple transitions: from war to peace, from a
one-party state to a multi-party constitutional democracy, from a socialist
centrally-planned economy to a market-based system. Today, it is one of the
fastest growing economies in Africa.
However, Mozambique remains a poor country heavily dependent on aid.
As its Human Development Index (HDI) ranking of 170 out of 175 countries
shows, poverty remains high. A major challenge for Mozambique is how to
ensure that the benefits of a growing economy are used equitably to alleviate
widespread human poverty, especially in the rural sector, and at the same time
broaden the base of its economic growth beyond a few mega-projects and the
substantial influx of development assistance.
7
This report presents the findings of the Mozambique Assessment of
Development Results which was undertaken between October 2003 and May
2004. The purpose of the ADR was to assess UNDP’s overall performance and
contributions to development results as well as to draw lessons for future strate-
gies. It assessed programmes undertaken by UNDP under the 1998-2001 and
2002-2006 Country Cooperation Frameworks (CCFs). It also evaluated
UNDP’s strategic position vis-a-vis the government’s development and pover-
ty reduction thrust.

NATIONAL CONTEXT
Mozambique became independent in 1975 following a protracted struggle
against Portuguese colonial rule. Far from leading to peace and stability, inde-
pendence spawned a series of proxy wars started by Mozambique’s neighbours,
South Africa and what was then Rhodesia, and a destructive civil war which
ended in 1992. It has been 12 years since the war ended and a decade since the
two movements, FRELIMO and RENAMO, who fought each other for years,
contested the general elections of 1994. General elections in December 2004
marked the third nationwide elections in a country moving steadily toward a
representative democracy. This makes Mozambique’s achievements stand out
in a world and, particularly so, a region where civil wars start easily and are
difficult to end.
Economic and social prosperity is, however, a different matter. At the end
of the war, Mozambique was one of the poorest countries in the world with
high levels of both income and human poverty and remains so today. Until
recently, household surveys reported that around two-thirds of the population
fell under the consumption-based poverty line. A more recent survey whose
reliability has been questioned by some has shown a reduction in the incidence
of poverty in certain areas of the country.
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

However, aggregate income growth averaging some- support rural development by investing in the agricultural
thing more than 7 percent over the past eight years has not sector and providing the necessary basic public services such
made a significant dent in poverty. At independence, as roads and other physical and social infrastructure in order
Mozambique was governed by a socialist regime which to narrow the income and human poverty gap. Until it does
managed much of the economy centrally. Toward the end of so, Mozambique will be plagued by what the noted
the war, the government, which had joined the World Bank development economist Joseph Stiglitz has called a lack of
and the International Monetary Fund (IMF) in 1984, “fairness”1, where the benefits of income growth are not
embarked on a radical reform of state economic and fiscal redistributed to the poor who need them the most.
planning. Centrally managed socialism was replaced by a Mozambique has successfully made the transition from
liberal, market-driven economy. The country opened up to war to peace and democratic pluralism and there has been
foreign investment and following the dismantling of tremendous progress since 1992. The political and develop-
apartheid in 1994, its arch-enemy of the 1980s, South ment terrain has changed considerably, but there are still
Africa, became its main investor in the1990s. The reforms some major deficits on the human development front and
imposed strict financial discipline on government spending, tremendous challenges ahead. Mozambique’s pressing
opened up the economy to depend more on market forces human development challenge is to broaden the base of its
and made efforts to diminish the role of the public sector. economy to include the poor areas of the country as factors
The social and human development returns of these in its economic and human development strategy, essential-
policies are arguable. ly to make the agricultural sector more productive and to
The most critical development challenges are endemic include and extend the benefits to a much broader portion
rural poverty, inequalities, unequal development and of the population. It will need to address not just the coun-
regional disparities, high rates of illiteracy especially among try’s skewed production structure, but also to narrow the
women and the rural population, high vulnerability to rural-urban divide, the regional imbalances and gender dis-
8 natural disasters and the growing threat of HIV/AIDS. parities as a way of reducing the endemic income and
Insufficient public infrastructure and weak capacity within human poverty faced by the majority of the population.
the public sector is also a matter of great concern. This requires, first, the political will to recognize the imper-
As with any least developing country (LDC), foreign ative of a pro-poor economic growth strategy. Second, it
aid places an important role in Mozambique. With politi- requires the development of a public sector with the capac-
cal stability, aid has increased considerably. Half of ity to carry out pro-poor growth policies. Third such an
Mozambique’s budget expenditures are financed through ambitious plan requires human and financial means.
development assistance and, since 1992, Mozambique has As for political will, Mozambique has adopted its own
received increasing support from a number of foreign Action Plan for the Reduction of Absolute Poverty
donors. During the Consultative Group (CG) conference (PARPA), recognized by the World Bank as the country’s
in October 2003, donors pledged US$790 million for 2004, Poverty Reduction Strategy, which channels a considerable
exceeding the US$680 million that the government had portion of government resources toward poverty alleviation
requested. As of 2000, Mozambique’s partners have been programmes. The government has also committed itself to
moving steadily towards direct budget support (DBS) a clear set of national Millennium Development Goals
modality. Presently, 15 of the donors (G-15) now channel (MDGs). One of the MDG targets is to reduce acute
part of their aid allocations through this modality. For some poverty by half by 2015.
observers, this is a measure of the confidence that As for capacity in the public sector, a lot remains to be
Mozambique’s development partners have in its capacity to done. The government, with strong support from partners
maintain sustainable peace and stability. including UNDP, has invested heavily in public sector,
However, aid dependency of this magnitude can be as reform and capacity building with the objective of improv-
much a measure of national vulnerability as it is a measure ing efficiency, enhancing transparency and devolving
of donor confidence. Domestic revenue has increased only responsibility from the heavily centralized state ministries
modestly, at an average of 0.3% per annum because of more to the provinces and districts. There are some successes.
efficient tax collection. Viewed from above, Mozambique is Nevertheless, the results of these efforts have been modest.
a classic dual economy with much of the growth occurring There continues to be widespread concern that, with the
in isolated mega-projects while the rural sector languishes. exception of a few key ministries, federal planning bodies
If the government is to spark genuine growth it will need to lack the financial and human resources and overall capacity

1
Joseph E. Stiglitz, Globalization and its Discontents, New York: W. W. Norton, p. 78
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

to effectively manage national development programmes. However, in the third phase, 2002 to the present,
Economic reform measures of the last decade have UNDP’s overall effectiveness seems to have declined. It
made important contributions to Mozambique’s transition does not seem to have as yet made an effective and
and, from the perspective of aggregate growth, complete transition to post-conflict strategies and is not
Mozambique has performed well; foreign direct investment strategically positioned to effectively support the govern-
in turnkey projects have contributed to increases in nation- ment’s emerging needs and priorities and the alternative aid
al income. However, from the perspective of human devel- modalities such as direct budget support.
opment concerns and the distribution of the benefits of In essence, UNDP has tried to make the difficult tran-
income growth to the poor, Mozambique has performed far sition from quickly meeting a wide range of crisis-driven
less well for, indeed, as this report demonstrates, high levels needs to providing specialized development support and
of income and human poverty persist alongside the positive services designed to meet the long-term needs of economic
growth rates. growth, poverty reduction and increasing the capacity of the
This raises some questions that are central to this public sector. Many of the challenges that UNDP now faces
report. How can UNDP re-shape its programmes to ensure seem to stem from the organization’s approaches and strate-
that it promotes a pro-poor growth strategy? How can gies that worked in a complex emergency situation but that
UNDP partner with the government to reduce regional dis- must now be geared towards longer-term development needs.
parities and reduce the large numbers of people in remote
areas who are vulnerable to disease and disaster? Can MAIN FINDINGS
UNDP marshal the resources and the expertise to promote UNDP’s performance in Mozambique is mixed. It has an
and complement the government’s poverty reduction strate- excellent record in establishing key institutions such as the
gies and encourage a growth strategy that promotes a bal- Disaster Preparedness Institute and the National Aids
anced and people-centred approach to poverty reduction? Council and driving key initiatives in demining – always
important in a country formerly wracked by civil war – dis- 9
TRENDS IN UNDP SUPPORT: FROM CRISIS aster management and HIV/AIDS awareness and preven-
RESPONSE TO LONG-TERM DEVELOPMENT tion. More recently, UNDP has been widely commended
During the period under review, UNDP’s programmes have for its role in coordinating donor response to the 2000
straddled many themes. The 1993-1997 phase was primarily floods and the mobilization of more than US$450 million
a response to the state of emergency when UNDP concen- in aid. It has promoted participatory local governance
trated its efforts on supporting rehabilitation programmes throughout the country and the district planning model it
and forging strong partnership with government. UNDP piloted jointly with the UNCDF has been replicated, scaled
provided emergency relief, it supported a diversity of public up and is now enshrined in government policy. It has also
initiatives including construction of water points and roads, been in the forefront of supporting the development and
it was the first international organization to assist in strengthening of the justice sector and a credible electoral
rebuilding institutions such as de-mining and disaster man- and court system.
agement institutes, the National AIDS Council, the elec- However, there are some deficits and challenges that
toral commission, the police academy, courts and prisons. It UNDP will need to address. Despite the Agenda 2025
has maintained support to these institutions ever since. exercise and the publication of an award-winning Human
In the second phase, covering the 1998-2001 CCF Development Report in 2001, UNDP is mostly absent
period, UNDP mobilized resources, supported the creation from the policy discussions between the government and its
of new institutions and provided economic management development partners. The organization’s current program-
services to the government for building capacity within the ming lacks the necessary coherence to permit its identifica-
public sector. And when a combination of natural disasters tion with a clear strategic position, and changes may be
occurred in 2000 and 2001 – floods followed by a prolonged necessary to allow UNDP to regain the visible and strategic
drought – UNDP spearheaded the mobilization of over role it held in the aftermath of the war. The ADR team’s
US$450 million in order to provide emergency relief. findings suggest that UNDP does well in conflict situations
UNDP’s visibility and stature in Mozambique during this but finds it difficult to carve out a distinctive niche once the
period was built upon its ability to meet the demands of agenda shifts to long-term development perspectives.
a country in crisis.and its support and role was strategic UNDP’s inflexible programming procedures and the lack of
and relevant. resources that are not tied to five-year programming cycles
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

may well explain this lack of a flexible, agile and forward- port to key democratic institutions such as parliament, pris-
looking-response capacity which is very much needed in ons and police are understandable, given the sensitive
the present day Mozambique. nature of these institutions and the entrenched interests
that reform must overcome to make these institutions bet-
It is important to note that this ADR report gives greater ter serve the public interest. Because of this and in spite of
priority to highlighting areas of concern than to dwelling the modest record of results, the ADR team considers such
on those areas where the country office has had notable efforts positive rather than negative.
successes. It stresses those areas where UNDP has encoun- The same can be said for UNDP’s support in limiting
tered difficulties or where the outcomes are not what might the spread of HIV/AIDS. The capacity of institutions cre-
have been anticipated. For example, UNDP success in ated to stem the infection and its devastating consequences
setting up the National AIDS Council is tempered by the needs to improve in order to more effectively increase
fact that this important institution functions poorly. The awareness, disseminate information about prevention, pro-
ADR team regards the successes of the decentralization and vide treatment and assist those living with HIV/AIDS. The
local government programmes as very much important results must nevertheless be judged positive, given the mag-
as the challenges faced in implementing the justice, prison nitude of the task and institutional capacities required to
and parliamentary reform, but it has chosen to offer views accomplish the task.
on why public reform in sensitive areas has met with only Results in the poverty reduction programme area and
modest success instead of detailing UNDP’s successes attempts at gender mainstreaming are less positive. Despite
elsewhere. It has chosen to focus on what might be done commitments in the CCFs, programme results across the
about the holdover poverty programmes that have very board indicate that UNDP has not succeeded in main-
localized and very little policy impact, or how the UNDP streaming gender equality in its programmes. The poverty
might more properly respond to the emergence of a reduction projects are, with few exceptions, localized and
10 donor consensus on aid harmonization. It has chosen to geographically isolated with only a modest promise of being
contribute to building a more effective programme by scaled up or indeed replication. One exception is UNDP’s
confronting frankly and constructively those programme support to the government’s Poverty Observatory, which
features that have encountered the most significant has the potential to improve an understanding of the level
constraints. and persistence of poverty and to nudge the PARPA’s
success criteria closer to human poverty concerns and
PROGRAMME PERFORMANCE AND UNDP’S national MDG targets.
CONTRIBUTION TO DEVELOPMENT RESULTS It is important to underline that in Mozambique,
Four key areas emerged as UNDP’s most significant contri- limited institutional and administrative capacity in most
butions to development results in Mozambique during the institutions inhibits the outcomes of UNDP’s support and
period under review: (1) emergency response and post-con- indeed that of other development partners. For example, in
flict recovery, (2) local governance and decentralization, (3) spite of considerable UNDP support, the National AIDS
support to institutional and capacity building in demining, Council has difficulty managing the considerable resources
disaster preparedness, the National Aids Council and the received from development partners. Institutional weakness
justice sector and (4) providing catalytic intervention in and lack of transparency have affected the performance in
these areas and for the electoral process. disaster mitigation and demining, and in the case of
UNCDF/UNDP Mozambique scores high with the Environment Ministry programmes, have led to the
performance of what has become its flagship programme in withdrawal of some key UNDP programme partners.
decentralization and the strengthening of local government.
Its model for training district level officials is being repli- STRATEGIC POSITIONING OF UNDP
cated rapidly throughout the country. Here is an instance of SUPPORT TO MOZAMBIQUE
UNDP leveraging its core resources effectively for country- As noted above, in the first phase of the period under
wide success. review, UNDP’s support was strategically positioned, and
Other programmes in other areas have been less suc- its programmes effectively laid the groundwork for long-
cessful. None of the other programme areas have had the term development commitments by other development
same impact on policy, nor have they built capacity to the partners. Notably, UNDP provided catalytic support to create
same degree or elicited the same degree of government and strengthen key government institutions in justice
ownership. The somewhat less impressive results from sup- reform, demining, disaster preparedness and in the
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

campaign against HIV/AIDS. It supported the building of under the second CCF. UNDP seems to be doing many
institutional capacities in government and within civil different things and doing only a few things with the kind
society organizations and promoted local governance and of strategic focus that could enhance its strategic position-
decentralization and engendered democratic transitions ing in Mozambique.
especially through its support to the electoral process. Declining resources have aggravated the fragmentation
Until recently, the Mozambique Country Office has of UNDP’s focus because, as the crisis has abated and the
scored highly on resource mobilization. Under the first funds available for emergency response fallen, the resources
CCF, it mobilized more than twice the amount raised by available for regular programming are spread thinly around
the second-ranked country in Africa. However, alternative a number of remotely connected initiatives. While resource
funding modalities for donors mean less cost-sharing mobilization was at record levels during the initial stages of
arrangements with UNDP. Changing modalities for devel- the first CCF, resources from non-core resource have fallen
opment funding in Mozambique has meant that bilateral 55 percent in the second CCF period, and are likely to fall
donors have more mechanisms for channeling their devel- further. Supporting a broad diversity of programmes and
opment assistance. Donors still channel some of their funds projects might have been a viable strategy during a period
through UNDP to support UNDP’s programme areas, and of ample resources when donors depended on UNDP to
the decision by the European Union to provide US$10 manage their funds in a wide variety of areas, but this is no
million to UNDP to support a new phase of its justice longer the case. Making the best use of declining resources
programme is a case in point. However, that the quantity of requires the UNDP to cut its programme to fit its cloth, to
resources channeled through UNDP is diminishing and is concentrate more on what it does best and in the areas
likely to diminish further. which most clearly draw upon its comparative advantage
Mozambique’s central human development dilemma is and fit its mandate and respond to the MDGs. Maximizing
to address the high levels of income and human poverty the effectiveness of diminishing resources implies trimming
which are most acute in the rural areas. One of the MDG the scope of its initiatives, giving them more coherence and 11
targets is to reduce acute poverty by 50% by the year 2015. ensuring that projects and programmes are sufficiently
As the country makes its transition to a stable democracy, cross-linked to explicitly draw upon each other.
the challenge is to ensure that the rural poor are both con-
tributors to, and beneficiaries of its present income growth. COMPARATIVE ADVANTAGE AND
The government needs concentrated assistance in select RESPONSIVENESS TO NATIONAL PRIORITIES
areas that meet these national priorities particularly tackling UNDP proved its ability to respond to crises in the course
the levels of human poverty and increasing the pace of of a prolonged civil war and, more recently, during the
poverty reduction by expanding opportunities in health and droughts and floods in 2000 and 2001. Government con-
education to the majority of the population and ensuring tinues to regard UNDP as an ideal partner in
that basic social services reach the poorest segments of the programmes for managing natural disasters or for removing
population. UNDP has begun to emphasize its outreach to the threat of landmines or for assisting in responding to the
the rural poor through its local governance and decentral- threat of HIV/AIDS. However, when expertise is needed
ization programme, as well as through its programmes to on issues dealing with fiscal or monetary policy, on
bring court reform to rural districts and support to communi- administrative reform, on tax policy or agricultural
ty radio stations. But a lot remains to be done. Its local gover- programmes, government officials have partnered with
nance and decentralization programme, for example, could other organizations with a comparative advantage and
incorporate components that support income generation and expertise in these areas.
addresses both human and income poverty. Court reform in UNDP has not responded rapidly as government needs
rural districts might begin to address the legal and bureaucrat- have changed from emergency response to long-term devel-
ic obstacles to accessing justice by the poor and to expanding opment. The ADR findings point to a widely shared
and sustaining enterprises among rural households. perception within the government and among most donor
partners that the UNDP may not be as competitive and as
PROGRAMME COHERENCE well placed as in the past to provide leadership and substan-
As a whole, the ADR team is of the opinion that UNDP’s tive capacities in today’s key policy areas particularly with
programmes do not add up to a coherent strategic response respect to providing policy alternatives and enhancing
to the development challenges facing Mozambique at government capacity within the context of PARPA and
present. For the most part, they are managed as separate budget support modality. In order to play a significant role
initiatives with little synergy with each other as called for in a rapidly changing and complex environment, a first step
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

for UNDP is to enhance its capacity in select areas and to repositioning of its role and support in the years ahead. The
engage or contract substantive expertise in these chosen success of the UNDP and indeed of the UN depends on
competencies. them anticipating the country’s needs, redefining their roles
as priorities shift and staking out strong positions on
PROMOTING GOVERNMENT CAPACITY human rights and development. A strategy is necessary to
AND OWNERSHIP OF THE DEVELOPMENT support government to ensure that DBS generates benefits
AGENDA to the country through effective and sustained support for
Since 2002, the aid environment in Mozambique has been the PARPA and MDG goals. Given its past record, its
changing and a rapidly growing number of donors are now comparative advantage in UN system coordination through
collectively channeling development assistance into the the resident coordinator system, and its experience in capac-
central treasury as direct budget support. This group has ity building of key government institutions, it is the view of
grown from six two years ago, to 11 last year, to 15 this year, the ADR team that UNDP, in partnership with the UN
with more expected to join soon. The group calls itself system, is strategically placed to spearhead these efforts.
G-15 and includes the World Bank and the European
Union. Direct budget support presently accounts for 45 LESSONS
percent of all annual aid flows. Based on its findings, the ADR team has identified a num-
The group of budget support donors have formerly ber of lessons which could assist UNDP in strategically
constituted themselves as the Programme Aid Partners repositioning its support to strengthen its contribution to
(PAP) group, which has signed a Memorandum of Mozambique’s emerging needs and future development
Understanding with the government setting out the terms priorities, in collaboration with the UN agencies and other
of their partnership. These donors conduct annual Joint development partners.
Reviews in order to assess the government’s implementa- Better understand the transition from crisis response
12 tion of the government’s plans as reflected in the PARPA, to long-term development. The requirements of respond-
the PES and the Performance Assistance Framework ing to emergencies are very different from those of
(PAF), coordinating the work of five thematic groups and collaborating with the government on meeting long-term
twenty working groups. The Programme Aid Partners development objectives. UNDP seems to have done well in
(PAP) has in many ways effectively replaced the responding to the conflict situation in Mozambique but the
Development Partners Group (DPG), co-chaired by evidence suggests that this success has not easily translated
UNDP and World Bank, as the principal coordinator of into a strong and strategic partnership role for long-term
donor activity, as the main interlocutor with government, development needs. It may well be that the transition is
and as the venue where substantive issues of development not well understood and there may be too few instances of
are discussed. successful transitions to provide lessons.
In Mozambique, UNDP has only recently begun to The achievement of successful development out-
participate as an observer on the occasions when the budg- comes requires long-term commitment, close monitoring
et support donors convene, and this year it participated in and broad-based participation and partnerships. The
the annual Joint Review conducted by the group. The find- UNCDF/UNDP success with the local governance and
ings of the ADR suggest that UNDP’s presence and the decentralization pilot programme in the Nampula province
impact of its contributions in the policy arena are modest. had a long gestation period beginning 1999. It involved a
The emerging consensus among the direct budget support variety of partners and the participation of target commu-
donors (G-15) has positioned this group as the principal nities and the commitment of considerable resources.
interlocutor with government, particularly on PARPA and UNCDF/UNDP has replicated the model of district
annual joint review exercises. The trend towards support for planning and strengthening local government, which was
harmonization among key donors therefore has implica- piloted in Nampula, and the World Bank has replicated it
tions for Mozambique’s future development strategies. It in four other provinces. The Ministry of Planning and
also has implications not just for how UNDP supports and Finance has adopted it as a nation-wide model and it is now
collaborates with government but also for the UN system as the basis for national legislation on local government.
a whole. Development effectiveness demands a coherent
The nature of strategic partnerships which UNDP human development strategy. UNDP’s present
forges with the government and national development con- programmes are an amalgam of diverse projects that may
stituencies in Mozambique will be critical to the strategic not necessarily be strategic enough to promote a coherent
focused response to prevailing conditions. Some of the
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

projects are legacies from previous years, some could be ENHANCING THE STRATEGIC POSITIONING
projects that the government counterparts may be reluctant OF UNDP SUPPORT
to discontinue, and some are those that UNDP retains Define a coherent and compelling vision and an effective
because of their potential for drawing more resources from communication strategy. Designing a compelling, coher-
donors. Many of them seem to be ‘supply driven,’ kept on ent and distinctive vision of how UNDP will support
because resources or support is available for them and not Mozambique’s development needs in the years ahead is an
because they are part of an effective strategy for reducing urgent challenge. In a crowded and competitive environ-
poverty or enhancing human well being. Demining, for ment such as Mozambique, where the development needs
example, uses significant resources almost as much as the and government’s strategies for addressing them have
fight against HIV/AIDS, even though its contribution to changed, it is a necessary first step in increasing UNDP’s
the human development agenda may be far less. UNDP is profile and relevance.
b e t t e r
Develop an effective transition strategy from crisis
served at the country level by a programme that
response to long-term development. As its excellent
resonates with its human development and human rights
record of performance in the aftermath of Mozambique’s
advocacy role and generates support because it offers a
civil war shows, UNDP has a clear comparative advantage
coherent strategy to improve human wellbeing.
in managing and providing support during conflict and the
A compelling vision and an effective communication immediate post-conflict periods, but seems to lack an effec-
strategy are critical for the visibility and success of the tive strategy for making the transition to a post-conflict
organization. UNDP’s credibility relies on having a phase. The challenge for UNDP is to devise an effective
distinctive and compelling vision of its mission. formula that allows it to harness the successes of peace
UNDPmust not underestimate the importance of effective- building and recovery for long-term development gains.
ly projecting an image of its corporate principles and
Develop a strategic response on how to support
accomplishments. Documenting, disseminating and dis- 13
governments that have adopted direct budget support at
tinctively branding the organization with its successes have
corporate and country level. UNDP cannot expect to
a number of advantages: the exposure this affords builds
make a substantive contribution to development policy in
partnerships, generates resources and enhances credibility.
Mozambique as long as it remains outside of the donor har-
Although UNDP has scored a number of successes with
monization and coordination of aid initiatives and fails to
building institutions and with the Nampula local gover-
develop a strategic approach to supporting government in
nance and district planning model, not many will associate
the new environment. There are avowedly a number of risks
these successes with UNDP’s image and contributions
in supporting direct budget support, but there are greater
in a few years time, unless they are turned into strategic
risks in not taking any decision at all and continuing with
knowledge assets for the organization and the country.
systems that may wrongly or correctly be perceived as rais-
Informed advocacy on key issues is more important ing transaction costs and undermining national ownership.
than simply preserving a reputation for neutrality and The adoption of direct budget support by government
generating resources. UNDP’s focus on its reputation for entails changes in UNDP’s traditional convening and coor-
neutrality may at times hinder its advocacy on critical dination role and in its policy advisory role. A way needs to
human rights and human development issues. By the same be found for UNDP to participate as a full member in the
token, concern with raising resources from donors may lead Joint Donor Review which the government conducts with
to accepting the management of programmes that detract donors annually. This is essential if UNDP is to play a cred-
from UNDP’s core business and its effectiveness. UNDP ible role in placing human development and poverty reduc-
should take stronger stands in supporting programmes that tion at the centre of policy discussions. UNDP’s hesitancy
are of strategic value and are in line with UNDP’s priorities, to join the group of direct budget support donors is under-
rather than focusing on programmes only because donors standable given the potential risks of compromising its neu-
are more inclined to fund them. trality or impartiality, but UNDP should not be perceived
as undermining the Rome Declaration and Monterrey
RECOMMENDATIONS Consensus. Direct budget support with its attendant impli-
The findings and conclusions of the ADR lead to the set of cations challenges UNDP, both at the corporate and at the
recommendations outlined below. By no means exhaustive, country level, to make a decision, one way or the other,
they cover issues that the ADR team think strategic and about how to respond to government capacity needs and
necessary to support UNDP as it builds on its comparative how to re-orient its role in this harmonization initiative.
advantage and past record of achievements to reposition
itself to meet Mozambique’s development challenges.
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

There are a number of options UNDP could pursue. ministries to reduce fiduciary risks, accelerate programme
First UNDP could participate fully in aid harmonization, implementation, and thereby enhance government’s
both globally and in individual countries, such as leadership role.
Mozambique, where donors are increasingly committed to Champion and strengthen UN system collaboration
direct budget support. Second, UNDP could focus on through joint programming and broaden non-traditional
advocacy work and building government capacity. In the partnerships. UNDP is unlikely to marshal resources on its
case of Mozambique, a way needs to be found for UNDP own to give priority to its human development agenda. This
to participate as a full member in the Joint Donor Review will require greater collaboration among UN agencies. The
which the government conducts with donors annually. This scope of the resident coordinator office has grown
is essential if UNDP is to play a credible role in placing impressively in the last two years, and this may provide a
human development and poverty reduction at the centre of foundation for further collaboration. The United Nations
policy discussions. has agreed on system-wide objectives and guidelines for
The ADR team has concluded that UNDP would be programming, but these objectives mean little without the
well-advised to encourage the UN system as a whole to collective weight that comes with joint programming. This
commit itself to the donor support group and to bring, not is the moment to experiment with joint programming on a
just UNDP’s resources and expertise to the table, but the significant scale. Pooling resources in joint programming is
collective weight of the UN system as a whole. perhaps the United Nations’ only viable strategy for
Support capacity building for development manage- overcoming its reputation of having too little funds, limited
ment and aid coordination to promote government lead- expertise and often too many agendas, especially in the
ership and national ownership of the process. UNDP context of greater donor harmonization and adoption of the
should focus on enhancing capacity for strategic planning direct budget support mechanism.
and financial management at crucial levels of the govern- The trend towards support for harmonization among
14 ment. All parties in support of direct budget support – the key donors has extensive implications for the UN system as
government, the bilateral and multilateral donors – under- a whole. A strategy to meet this challenge is necessary and
stand the magnitude of the effort required to lead, depends on the UN Agencies developing a strong position
coordinate and manage development assistance and the of joint advocacy on human development, MDGs and
development processes and to direct external resources and strengthening a pro-poor bias in PARPA. Efforts to articu-
efforts towards national development priorities. late common goals and strategies through the United
Government leadership and national ownership can mean Nations Development Assistance Framework (UNDAF)
the difference between achieving aid effectiveness through have not yet led to the ultimate objective of maximizing
direct budget support and attaining development effective- goal-oriented development cooperation through joint
ness. Increased capacity within the central government to programming. The UNDAF strategic objectives represent
improve financial management systems and to foster the collective commitments of the UN system, including its
systemic efficiency to manage the resources channeled programmes and funds (UNDP, UNFPA, UNICEF,
directly into the state treasury and conduct national level WFP), the specialized agencies (FAO, UNESCO, WHO)
planning is a pre-requisite. and the commitments sanctioned by the Mozambique
Even though fifteen out of 47 donors have made com- government in a number of international instruments.
mitments that range from 1 percent to 60 percent of their The UNDAF for Mozambique (2002-2006) has
aid budget, the success of this experiment is not guaranteed. embraced two common thrusts for development assistance
For more donors to join and for those who have joined to across the UN system. The first is the HIV/AIDS
maintain a predictable level of funding and perhaps increase pandemic and the second is gender equity with a special
their level of commitment, assurances will be required that emphasis on girls’ access to educational opportunities.
finance managers and planners are prepared to execute their Recent research, especially in the Common Country
responsibilities accountably and effectively, and for this, a Assessment, reveals that “common and mutually reinforcing
great deal more training and restructuring is required. support for HIV/AIDS and gender equity are undoubtedly
Because of UNDP’s impartiality and its relationship of trust key to ensuring longer-term empowerment, reaching
with the government, it is uniquely placed to promote and poverty reduction goals and ensuring rights attainment for
support the building of capacity in departments and all populations.”2

2
United Nations, Mozambique, United Nations Development Assistance Framework (UNDAF) 2002-2006, Maputo: April 2001, p. 5
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Redouble efforts to enable civil society to have a clear comparative advantage is not evident and the poten-
genuinely independent input to PARPA through the tial for development results is demonstrably less. The
Poverty Observatory. UNDP has had a tradition of sup- following are areas where commitments could be reduced:
porting the emergence of a strong civil society sector in enterprise promotion, microfinance, community-based
Mozambique. In part because of its efforts, the number of income and employment generation schemes and
NGOs in the country has increased more than eight-fold demining. Support in these areas may be maintained only
since the mid-1990s. The Poverty Observatory, housed to the extent that they demonstrate innovation and
within the Ministry of Planning and Finance, to track reinforce outcomes to be achieved in core areas.
PARPA is a promising instrument for providing an inde- Promote a rural development focus and accord
pendent assessment of the efforts by government and donors increased priority in UNDP programming to reducing
to reduce poverty, inequalities and regional disparities. human poverty and improving rural livelihoods. The
UNDP should intensify its efforts to ensure that the overwhelming imperative in Mozambique is to devise and
Poverty Observatory opens up the way for civil society implement a viable pro-poor growth strategy that places the
organizations to participate in national policy dialogue on rural poor at the centre of the equation. Income and human
poverty reduction. Civil society organizations should poverty in Mozambique is primarily rural. The majority of
include the full gamut of non-government organizations, Mozambique’s poor, with little or virtually no access to edu-
encompassing faith based, private sector and citizens’ cation, health, safe drinking water and basic physical and
groups, all of which are essential actors in bringing fuller social infrastructure, are rural-based. Reduction of human
democracy to Mozambique. More important, civil societies poverty should be a cross-cutting objective to which all
can also be a resource that UNDP can tap into to test and UNDP programme areas aspire. Closing the rural—urban
enrich its ideas and knowledge base on critical development divide and the huge income and human poverty gap
issues facing the country. will depend on expanding the opportunities and human
capabilities of the rural poor. 15
ENHANCING PROGRAMME PERFORMANCE MDG targets for reducing absolute poverty have been
AND CONTRIBUTION TO DEVELOPMENT set and annual commitments made within the context of
RESULTS PARPA. Augmenting on-farm and off-farm rural incomes
Sharpen strategic focus, achieve greater coherence and is essential to closing the gap between high growth and
enhance programme effectiveness by reducing the num- persistent human poverty, and the PARPA will need to put
ber of core areas. Achieving greater coherence will entail rural development at the centre. Given its human develop-
building on existing strengths as well as developing new areas. ment mandate, UNDP is in a strong position to take a
These strengths are in local governance and decentraliza- stronger stand on devising a rural focused programme and
tion through district planning, support to democratic advocate for a greater human development and rural bias
institutions and the response to the HIV/AIDS pandemic. within PARPA. More explicit linkages should be made
UNDP should concentrate its support on four core between existing UNDP programmes with a rural
areas: (a) local governance and decentralization through presence– decentralization and justice sector programmes –
district planning; (b) support to key democratic institutions; and poverty reduction by building support for augmenting
(c) combating the spread of HIV/AIDS; and (d) policy rural incomes more deliberately into these programmes.
advocacy in the area of poverty reduction and MDGS that Build on past successes and increase initiatives to
draws on the organization’s human development paradigm strengthen local government. Decentralization of
while limiting micro-level support to innovative high- government functions and strengthening of district level
impact replicable ideas. governments have worked well in Mozambique.
Within the context of PARPA, UNDP could focus on Experiments in devolution of responsibilities and even in
the alignment of PARPA reporting and tracking of progress fiscal decentralization have shown the government that
to human development and MDG targets by piloting sharing political responsibility with district governments
provincial and district level human development reports. has the potential to move the centers of decision-making
Nampula would be an obvious place to start if synergies closer to the people, to provide services efficiently, generate
within and among UNDP interventions are to be realized. income and reduce poverty in the rural areas. UNDP’s suc-
cess in strengthening representative district-level planning
This entails reducing commitments to other areas where a
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

has spawned a number of other initiatives which now need provider requires high quality technical competency,
coordination and close observation in order to ensure that flexibility and reliability and UNDP at both corporate and
the collective lessons of these diverse experiments are not country level will need to squarely address this area.
lost and make a real contribution to the government’s Reprofiling has left UNDP’s capacity thin on the ground
decentralization plans. and highly specialized skills will be needed. UNDP will
Improve and diversify resource mobilization and need to draw upon corporate units and its global networks
partnership strategies. UNDP will need to re-invigorate for these resources and skills.
and diversify its resource mobilization strategy, broaden The ADR team applauds the UNDPs current preoccu-
partnerships and develop flexible programming procedures. pation with the design of the next CCA/UNDAF and its
This will assist the organization in reversing the downward promotion of joint programming among key UN agencies.
trend in resource mobilization levels and in improving the Amalgamating HIV/AIDS, disaster management and food
coherence and quality of its programme. Notwithstanding security under a single category labeled “the triple threat”
the harmonization of aid, there is still a large universe of has taken a strategic step toward linking major programmes
potential cost-sharing avenues outside direct budget sup- in a way that opens the way for joint programming. The
port. The quality of UNDP’s programming is the currency ADR strongly supports this joint programming initiative
of its future success in resource mobilization. Instead of and recommends that these laudable joint programming
responding to donors and government by undertaking pro- initiatives be strengthened by explicitly linking these efforts
grammes proposed by them, or formulating programmes to meeting specific MDGs and by incorporating gender
which UNDP presumes will interest its partners, UNDP’s equality as one of its components.
interests are best served by making its programmes of high
enough quality to place them in demand among its govern- ENHANCING KNOWLEDGE AND
ment and donor partners. The programmes need to be STREAMLINING BUSINESS PRACTICES
demand-driven rather than supply-driven. Increase in-house expertise by expanding the knowledge
16 A first step in upgrading its resource mobilization base. In a rapidly changing context, in-house expertise and
strategy will be to improve the way it trademarks or brands substantive capacity are indispensable for effective
and markets its programmes. To this end, the UNDP programming and maintaining credibility and a competi-
should devise a comprehensive communication strategy tive edge with government and other development partners.
which highlights successful experiences and enhances Mozambique presently requires a set of skills and capacities
UNDP’s visibility in order to effectively market its pro- which the UNDP country office does not have in
gramme to potential funders. Non-traditional sources of abundance. Based on perceptions gathered during the
funds and partners should figure significantly in this strategy. ADR, a number of partners, including government, per-
Another important and crucial step is to improve the ceive UNDP as well-intentioned but at times lacking the
quality of service that UNDP provides in collaborating with requisite competencies to make a substantial contribution
funding partners, and this refers especially to the quality to their programmes.
and timeliness of reporting and speedy resolution of any It is the view of the ADR team that while reducing the
implementation problems if UNDP is to be seen as a high scope of its interventions, the UNDP should seek to build
quality provider of unique development services by either high level in-house expertise in its core areas to meet pres-
government or donors ent and future demands. This would contribute to substan-
The UNDP should also seek opportunities to provide tially raising its profile and the quality of its contributions
services to government on a contract basis in areas where it to the policy debates on poverty reduction strategies.
has unique technical expertise. Capacity building and tech- UNDP must be seen as a leader and substantive authority
nical advice in the context of direct budget support is one on those core areas which it supports and champions. It can
such area while election monitoring is another. Building engage expertise locally through research institutes or
capacity in poverty programming, monitoring and account- abroad through its regional centres and the global network
ing is yet another, especially as increases in direct budget or it can build expertise by establishing research and
support place demands on the government’s capacity to resource centres where successful experiences and lessons
manage poverty alleviation programming, monitoring and are documented. As an example, UNDP might support the
reporting. However, being a credible development service central and provincial government in establishing a
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Resource Centre based in Nampula to document

UNDP/UNCDF’s and government’s experiences in
strengthening local government and to disseminate lessons
and innovative ideas, nationally and internationally on the
process of decentralization. This would allow UNDP to
turn this invaluable experience and the lessons learnt into
knowledge assets for the country and re-engineer itself as a
knowledge organization within Mozambique.
Improve business processes. Because it is perceived as
a success story, Mozambique is an attractive destination for
visiting missions. It is the view of the ADR team that the
country office seems to be overwhelmed by frequent
requests to receive delegations and participate in pilots for
the UNDP and the UN system as a whole. These obliga-
tions have strained its capacity and often diverted attention
away from the core business of the office. What UNDP
really needs from corporate headquarters is strategic guid-
ance in meeting its present challenges. How to respond to
direct budget support and UNDP’s somewhat declining
fortunes as it searches for a new niche are critical areas
where such support is acutely needed. In a way there have
been missed opportunities at both corporate and country
level. Mozambique is not the only direct budget support 17
country, and headquarters should assist its country offices
by sharing best practices, developing tool kits and system-
wide corporate guidelines to address the changing
context(s) of aid and development.

CONCLUSION
Mozambique has made tremendous progress in overcoming
a legacy of conflict and has succeeded in forging a compre-
hensive strategy for poverty reduction and secured the
commitment of its key development partners in this
process. It has achieved and sustained a relatively high
record of economic growth over the past seven years and
has become a reasonably attractive country for foreign
direct investment.
However, as this evaluation has shown, Mozambique is
still very much a country in the process of transition from a
post-conflict country to a stable democracy and has a huge
backlog of human poverty and income disparities. The
principal challenge for UNDP is how to work with the gov-
ernment in pushing pro -poor and pro-human development
for the majority of Mozambicans.
COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

1
Introduction

BACKGROUND
This country evaluation examines UNDP’s support to Mozambique since
1998 and assesses the key development results achieved and the organization’s
strategic positioning and contributions to development effectiveness during
this period. The purpose of the Mozambique ADR is to provide UNDP and
key stakeholders with an objective measure of results that have been achieved
to date and recommend measures to enhance performance and strategically
position the organization better in the future.
The ADR assesses how UNDP’s role and its support and the range of
partnerships it has forged have contributed to poverty reduction and strategi-
cally positioned the organization to bring added value to Mozambique’s
human development agenda. The central questions for the evaluation are how
and whether UNDP has used its comparative advantage and its overall
19
support to contribute to the country’s development effectiveness, especially in
meeting key national development goals as articulated in Mozambique’s
national poverty reduction action plan and MDG targets. In doing so, the
analysis assesses the intended outcomes as articulated under the Strategic
Results Framework (SRF) and key development results achieved under the
Country Cooperation Frameworks (CCFs) of 1998-2001 and 2002-2006.
(See Annex 4-5)

RATIONALE FOR THE EVALUATION

Mozambique’s ADR comes at an important juncture for UNDP and its
national development partners for a number of reasons. First and foremost is
the fact that Mozambique is a country in transition. Within the space of a
decade, Mozambique has undergone the transition from war to peace; it has
also moved away from being a one party socialist state and a centrally planned
economy to a multi-party constitutional democracy with a market-based
economy. Second, in December 2004, Mozambique conducted its third
multiparty presidential elections since the United Nations (UN) supervised
democratic elections of 1994 that followed the protracted civil war. This
makes the country one of a few cases that has stayed the course and success-
fully managed the difficult transition from civil war to peace.
Third, at 7 percent plus annual growth rates, Mozambique is easily one of
the few fastest growing economies in Africa today, although it remains a poor
and aid dependent country. Mozambique has a Human Development Index
(HDI) ranking of 170 out of 175 countries and both human and income
poverty is acute. In response to these challenges, the government of
Mozambique has developed a comprehensive national poverty reduction
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

strategy, the Plano de Accao Para a Reducao da Pobreza Methodology

Asoluta (PARPA) or the Action Plan for the Reduction of
The ADR team employed a variety of methods which pri-
Absolute Poverty and committed itself to a clear set of
marily rely on the triangulation of different levels of results
national MDG targets.
and sources of data following an approach prescribed under
Mozambique is a high aid recipient and one of the the Evaluation Office’s ADR Methodology guidelines. The
World Bank (WB) Highly Indebted Poor Country (HIPC) team’s assessment was underpinned by results based man-
where the majority of key donors to the country have agement (RBM) approaches and focused on assessing
recently adopted direct budget support as the modality and progress towards development outcomes against the targets
framework for delivering development assistance. While set in UNDP Strategic Results Framework (SRF) under
this represents the growing trend among donors to promote the 1998-2006 CCFs (See Annex 5). The mixed methods
aid effectiveness by moving away from project-based used included: (i) data collection through comprehensive
lending to sector wide approaches (SWAPs), the fact that desk reviews, (ii) in-depth interviews and opinion polls of
PARPA serves as the framework for Mozambique’s direct key stakeholders to gather and validate perceptions and
budget support modality presents a unique opportunity viewpoints on the country’s development challenges,
to assess the country’s emerging challenges and how UNDP programmes and its contributions, and (iii) project
UNDP is positioned to contribute to the country’s site visits to assess the development results UNDP is sup-
development effectiveness. porting on the ground.
Annex 1 gives the list of key stakeholders consulted
APPROACH AND METHODOLOGY that ranged from UNDP staff, Mozambique government
Approach officials and project managers to community stakeholders
and project target communities, non-governmental organi-
The country evaluation was undertaken in three stages: (i)
zations (NGOs), civil society organizations (CSOs), the
20 a preparatory phase during which a comprehensive desk
media and donor partners.
review and a scoping mission was carried out by the
Evaluation Office; (ii) an in-depth study on governance; In addition to in-depth interviews and focus group
and (iii) the country assessment mission carried out during discussions with district officials on areas relevant to
April and May 2004 by an independent team commis- UNDP’s projects and programmes, the ADR team also
sioned by the UNDP Evaluation Office. During the first conducted its own opinion poll among a number of multi-
stage, the Evaluation Office conducted a comprehensive lit- lateral and bilateral donors. The extensive review of docu-
erature review and analysis of background data on mentation, which in Mozambique is rather large, covered
Mozambique along with a mapping and trend analysis of all key UNDP documents on projects and programmes, a
the UNDP programmes from 1993 to 2004. range of evaluative studies, country surveys, books and key
government planning documents, reports such as the
During the second stage, consultations were held with
MDG Report, the Action Plan to Reduce Absolute Poverty
the UNDP Country Office and with a selection of major
as well as the accountability instruments which serve to
stakeholders to determine the scope of the ADR and iden-
assess government performance in meeting the targets of
tify issue areas for an in-depth study. Between October
the PARPA. A list of references is given in Annex 2.
2003 and February 2004 two consultants from the Eduardo
Mondlane University were contracted to carry out an in- A third area has been the review of past evaluations
depth study on “Governance,” a key area of UNDP’s past of UNDP projects and programmes and all government
interventions. The study included a review of recently com- documentation, in-depth studies on issues that are relevant
pleted and ongoing UNDP governance programmes. to the programme areas, and all academic material which
places these data in a larger context. While the ADR exer-
In the last stage, a team of independent evaluators con-
cise in Mozambique was of a limited duration, the ADR
ducted the main ADR mission, between April and May
team did travel to two project areas in the provinces of
2004. The team drew on the preparatory research carried
Nampula and Zambezia and visited a number of project
out in the first two stages and conducted its own document
sites in and around Maputo. Observations at project sites
reviews, in-depth interviews and project site visits. The
were used to validate the perceived trends arising out of
team had as one of its objectives to ensure that the approach
perceptions and opinions gathered during the in-depth
was as participatory as possible, and made every effort to
interviews with stakeholders and documentation reviews.
involve the UNDP staff at every stage of its inquiry.
 1. INTRODUCTION

Some caveats are in order. The focus of the ADR is

assessing UNDP’s contribution to development results.
This has meant an analysis of macro-level programme out-
comes rather than a detailed analysis of individual projects.
As in any country-level evaluation of this nature, managing
attribution and aggregating programme-level results have
been a challenge. The team relied on qualitative rather than
quantitative methods to establish plausible associations or
credible links between observed development results and
UNDP’s contributions. The team also relied on representa-
tive sampling, meta-evaluations and the triangulation of
data and its sources. The triangulation among these three
types of information gathering and observation techniques
used – documentation, perception and cross referencing the
information gathered to validate it—allowed the ADR
exercise to digest large quantities of information in a short
period of time and to reach conclusions regarding UNDP
contributions and its strategic positioning vis-à-vis the key
development issues facing the country.

STRUCTURE OF THE REPORT

Chapter 1 provides the rationale and overview of the
approach and methodology used. Chapter 2 sets the devel- 21
opment context and provides an overview of Mozambique
and its key development challenges. Chapter 3 details
UNDP’s programmes and assesses how it is strategically
positioned to play an effective role in Mozambique.
Chapter 4 assesses the performance of UNDP’s pro-
grammes and development results achieved during the peri-
od under review. The report concludes with an analysis of
challenges and lessons learnt, recommendations and future
directions in chapter 5.
COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

2 Mozambique’s
Development Challenges

NATIONAL CONTEXT
With a population of 18.6 million and an area of just over 800,000 square
kilometers, Mozambique is one of the largest countries in Southern Africa. A
least developed country such as Mozambique extending over so large an area
presents a unique set of development challenges such as adequate physical and
social infrastructure and effective local administration. Mozambique became
independent in 1975 following a protracted struggle against Portugese colonial
rule. Far from leading to peace and stability, independence spawned a series of
proxy wars generated by its neighbours, South Africa and what was then
Rhodesia. From 1976 to 1979, Mozambique was under attack from Rhodesia
and from 1979 onwards it entered a decade of destructive civil wars which ended
in 1992. Once independence was achieved, FRELIMO ruled Mozambique as a
one-party state, outlawed political opposition and adopted a Marxist-inspired
socialist government. Mozambique supported and became a key frontline state 23
(FLS) in the armed struggle for the liberation of Zimbabwe and South Africa
and hosted millions of refugees and liberation armies of these countries’ nation-
alist movements.
These were the latter days of the cold war. FRELIMO’s ‘Marxist ideology’—
and perhaps more importantly its support for Southern Africa’s guerrilla
wars—posed a threat to South Africa and Rhodesia. The Rhodesian intelli-
gence services created and armed the Resistencia Nacional Mocambicana – or
National Resistance Movement of Mozambique (RENAMO) as a destabilizing
force. Funded and supported by both Rhodesia and South Africa, RENAMO
became an externally funded rebel opposition to the FRELIMO regime.
Between 1978 and 1992, conflict between these two movements – FRELIMO
and RENAMO – held Mozambique in the grip of a devastating civil war.
By the early 1980s Zimbabwe (former Rhodesia) had become independ-
ent. The dismantling of apartheid rule in South Africa in the early 1990s
leading to majority rule in 1994 coupled with Zimbabwe’s independence
ended external support for the RENAMO rebels and paved the way for peace
negotiations between the two movements. This led eventually to the signing
of peace accords in Rome in October 1992.
The costs were huge. The civil war had cost the country over a million
lives, generated a million-and-a-half refugees, caused massive internal dislo-
cations and population displacements and severe destruction of physical, social
and economic infrastructure. Between 1992-1994, a United Nations
Peacekeeping Force, (ONUMOZ) was assembled to oversee the cease-fire and
the elections, take the initial steps toward demobilization of the fighters and
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

TA B L E 2 . 1 M O Z A M B I Q U E ’ S K E Y D E V E LO P M E N T I N D I C ATO R S

INDICATOR VALUE YEAR

Population size 18.6 million 2004
Annual Population Growth Rate 2.4% 1997
Life Expectancy at Birth (Years) 43.5 years 1999
GDP per capita US $227 2003
External Debt as % of GNP 148.7% 2000
Poverty headcount ratio (% of Population 69.4% 1997
below poverty line)
Proportion of rural population under poverty 71% 1997
Proportion of urban population under poverty 62% 1997
Proportion of underweight children (under 5 years) 26% 2000
Net primary enrolment 19.8% 1998
Ratio of girls to boys in primary education 75.6% 2000
Under five mortality rate 246 1997
Maternal mortality rate 158 1998
% of population relying on traditional 95.9% 2000
fuels for energy use
Prevalence of HIV/AIDS 12.2% 2000
24
Adult literacy 43.3% 2000
Adult literacy—male 60% 2001
Adult literacy—female 29% 2001

Source: UNDP Human Development Reports (various) & Mozambique Report on the Millennium Development
Goals, 2002

to assist in meeting the needs of a drought-stricken and 128 districts in total. The ten provinces are commonly
destitute country. grouped into three regions, north, centre and south. The
By 1992, the government had adopted a market-based Northern Region comprises the provinces of Niassa, Cabo
economic model and abandoned the independent Delgado and Nampula; the Central Region comprises
movement’s socialist doctrine. Mozambique had joined the Zambezia, Tete, Manica and Sofala; and the Southern
WB in 1984 against a backdrop of an escalating civil war, Region includes Inhambane, Gaza, Maputo Province and
mounting economic and social hardships and a near Maputo City. Communication and transportation between
collapsed economy. With the dismantling of apartheid, the Northern Region and Southern Region are difficult.
Mozambique’s previous enemy, South Africa, became its One of the consequences is that the food surplus areas in
favoured trading partner. The World Bank and the IMF the Northern Region are unable to serve the food deficit
ushered in macro-economic reforms aimed at reducing areas in the Southern Region, whose provinces have to rely
government spending, privatizing national industries, on food imports from South Africa.
reducing tariffs and strongly encouraging an increased In 2003, 67 percent of the population lived in the rural
reliance on external trade. In 2000, Mozambique qualified areas. According to most of the development literature on
for the forgiveness of its substantial debt burden under the Mozambique, only a small proportion of the rural popula-
IMF’s HIPC and enhanced HIPC initiatives. Its external tion has any contact with the central government or access
debt was reduced from over US$7 billion in 2000 to less to basic social services such as health, education and safe
than a billion two years later. drinking water. Human and income poverty are most acute
Mozambique is divided administratively into ten in the remote rural areas of the country where most of the
provinces, which are further divided into districts. There are poorest people live and where well over half of the population
 2. GOVERNANCE

has consumption levels below the poverty line. Table 2.1 gives For the moment, FRELIMO has been victorious in all
basic economic and human development indicators for the elections over its rival RENAMO. In the recent round of
country. The table in Annex 3 compares Mozambique’s key elections to choose members of municipal councils in 33
indicators with those from other Southern Africa towns and cities, FRELIMO won a majority in 29 out of 33
Development Community (SADC) countries. municipal councils. FRELIMO continues to be the dominant
political force in the country with superior administrative
HISTORICAL OVERVIEW capacity, a tradition of intra-party unity and access to state
Mozambique achieved independence in June 1975 follow- resources.
ing a protracted liberation struggle against Portuguese colo-
nial rule by FRELIMO, the country’s present ruling party. MEETING THE MILLENNIUM DEVELOPMENT
The liberation struggle had begun in the early 1960s. By GOALS (MDGS): MOZAMBIQUE’S KEY
1964, the various groups opposed to Portuguese rule had DEVELOPMENT CHALLENGES
coalesced under the Liberation Front of Mozambique
(FRELIMO) led first by Eduardo Mondlane, and later by Growth side by side with poverty
the late Samora Machel. Mozambique’s reconstruction and recovery have been
At independence, literacy stood at no more than 7 per- remarkable and are widely recognized as a success story.
cent and life expectancy a mere 41 years. The mass depar- Notwithstanding this, there are some major development
ture of a skilled Portuguese labour force had left the country challenges facing the country. Mozambique is one of the
without the critical expertise required to run the economy poorest countries in the world despite the fact that its econ-
and government. Border closures with hostile neighbours omy has grown rapidly in the last eight years, averaging
and the resultant loss of transit traffic and remittance from over 7 percent each year. While it has successfully made the
labour migration to South Africa created severe hardships transition from war to peace and democratic pluralism,
for the country immediately after independence. Mozambique is a poor country with a high dependency on 25
aid, which amounts to over half the national budget.
Although much has changed since 1975, the structure
of Mozambique’s economy and its position in the global Challenges abound. The most critical ones are endemic
economy have not changed drastically. Mozambique’s econ- rural poverty, high levels of human poverty and inequalities,
omy continues to rely, as it did in the colonial and post- unequal development and regional disparities, high rates of
colonial era, on a service economy dependent on labour illiteracy especially among women and the rural population,
migration to South Africa’s mines, the export of primary low level of capacity compounded by food insecurity, a high
products such as cashews and cotton, and the provision of vulnerability to natural disasters, particularly drought,
transportation services for South Africa and its land-locked cyclones and floods and the growing threat of HIV/AIDS.
neighbours, Zimbabwe and Malawi. However, the circum- The latter three have been aptly designated by the United
stances and nature of its relations with its two neighbours Nations Country Team (UNCT) as the “triple threat.”
have changed for the better and Mozambique’s role and HIV/AIDs is endemic. It has risen from a low of 3.3 %
position today within the Southern African Development in 1992 to 14.8% in 2004. HIV/AIDS contributes to
Community (SADC), especially the transport sector, is poverty and its impact is especially devastating in the
strategic and pivotal. education and health sectors where experienced staff are
On the political front, the country is making positive succumbing to the pandemic.
strides. Mozambique held its first democratic elections The low HDI and the absence of a comprehensive rural
under UNOMOZ supervision in 1994. Presidential elec- development and economic growth strategy targeting the
tions and legislative elections were again held in 1999 and up to 80 percent of Mozambicans living in absolute pover-
are scheduled to be held for the third successive time in ty in rural areas will continue to bedevil government in
December 2004. Elections for municipal assemblies have years to come. Regional disparities and unequal develop-
been held in 1998 and 2003. These elections have not been ment are compounded by the very high income disparities
free of complaints or accusations, but the relations between between rich and poor and between urban and rural popu-
the two opposition parties—the same groups that fought lations. Development resources are typically concentrated
each other in a civil war between 1976 and 1992 – have in urban enclaves, especially Maputo where until the 2003
been relatively amicable since the signing of the peace Household Survey the incidence of poverty was some
accords in 1992. 47.8% compared to 87.9% in Sofala.
Widespread gender disparities mean that the poorest of
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

the poor are invariably women (See UNDP National Table 2.4 complements the picture of the proportion of the
Human Development Report, 2001). These challenges are population under the consumption-based poverty line by
compounded by the fact that Mozambique suffers from a reviewing the Human Development Index computed for
lack of capacity especially technical capacity at all levels of Mozambique for a sequence of years. There has been a pos-
government and in all sectors. Capacity building in the itive change in the Human Development Index over the
public sector and retaining capable and well trained staff is last decade and yet, Mozambique has dropped from 157th
the most pressing challenge especially at provincial and dis- out of 173 countries in 1990 to 170th out of 175 countries
trict levels and in the rural areas. There is also a weak pri- in 2001.
vate sector and lack of an effective regulatory framework to There has been some reduction recently in the number
promote and encourage local small and intermediate private of poor people, but the magnitude of this reduction remains
sector growth which would stimulate job creation. unclear. The reduction in the proportion of the population
The First Assessment of Poverty and Well-Being in under the poverty line reported by the Second National
Mozambique, based on a nationwide household survey in Assessment of Poverty and Well-Being has been questioned
1997, showed high levels of human and income poverty. by a parallel survey conducted by a reputable research
Nearly 70 percent of the population were living below a institute in Maputo. This parallel survey suggests that
consumption-based poverty line. Three of the provinces reductions in poverty have occurred but are not of the order
were reported to have more than 80 percent of the popula- of magnitude reported by the government’s 2003 survey.4
tion below the poverty line. A Second Assessment of The high growth rates then are driven principally by
Poverty and Well-Being in Mozambique in 2003 reported large industrial projects. Higher production from the Mozal
54 percent of the population under a similarly constructed aluminum smelter and increasing gas exports through the
and comparable consumption-based poverty line.3 This sec- new pipeline to South Africa partially explain the surge in
ond assessment reported some dramatic drops between national income. Growth in the tourist industry is also a
26 1997 and 2003, such as the drop in Sofala Province from factor, as the number of tourists visiting Mozambique has
87.9 percent to 36.1 percent, and while there have been grown from 150,000 in 1995 to 450,000 in 2003, an
attempts to explain these anomalies, one may have to wait increase of 15 percent a year.5 The service sector, which
for further analysis and monitoring of trends to have a accounts for 55 percent of GDP, continues to benefit from
clearer idea about these issues. Tables 2.2 and 2.3 review increased domestic demand as local service providers replace
data on growth and poverty headcounts respectively. international ones and contribute more to national income.

Table 2.2 Annual GDP Growth Rate

Year 1999 2000 2001 2002 2003 Average
Real GDP Growth % 7.5 1.5 13 7.7 7.0 7.3

Source: Economist Intelligence Unit, January 2004

Table 2.3 Proportion of Population under a Consumption-Based Poverty Line %

1996-1997 2002-2003 Difference

Poverty Headcount—National 69.4 54.1 -15.3

Poverty Headcount—Urban 62.0 51.5 -10.5
Poverty Headcount—Rural 71.3 55.3 -16.0

Source: Ministry of Planning and Finance, Poverty and Well-Being in Mozambique:

The Second National Assessment, Economic Research Bureau, Maputo, March 2004

3
Ministry of Planning and Finance, Poverty and Well-Being in Mozambique, the Second National Assessment, Economic Research Bureau, Maputo March 2004
4
Jose Negrao, Cruzeiro do Sol Institute for Development Research, has suggested, in an interview, that a preliminary review of the results of their 2003 survey
indicated a headcount rate closer to 60 percent.
5
The Economist Intelligence Unit, January 2004.
 2. GOVERNANCE

Table 2.4 Human Development Index 1990-2001 and Mozambique’s

Standing in Country Rankings

Year 1990 1995 1998 2001

Human Development Index .154 .325 .341 .356

Ranking out of all 157 out 166 out 168 out 170 out
ranked countries of 173 of 174 of 174 of 175

Source: UNDP Human Development Report for relevant years

Table 2.5 Cereal and sugar production 1997-2002 (billions of tons)

Year 1997 1998 1999 2000 2001 2002

Cereal production 1.35 1.7 1.8 1.4 1.68 1.75

Sugar production .3 .4 .45 .4 .7 1.8

Source: MADER—National Office of Economic Affairs, Statistics Department, 2002 and PARPA
Implementation Evaluation Report 2001, Ministry of Planning and Finance 2003

IMPLICATIONS OF A DUAL ECONOMY because many of them have left the service of the state to
It seems likely that growth in national income will contin- work with tobacco, sugar or cotton producers. 27
ue. It is also likely that mega-projects, such as Mozal and It would seem unlikely, therefore that agriculture, and
the gas pipeline will continue to be the main contributors to rural economies in general, have either contributed to
this growth. Although there are some reports of increasing Mozambique’s growth rates, or benefited from them.
agricultural productivity, agricultural production, for its PROAGRI, the principal programme assisting agriculture
part, is unlikely to be much of a factor. Most of the reports – to which UNDP contributed during CCF1 – has done
on agricultural production provide data on cash crops only, little, according to the Deputy Ministry of Agriculture, to
which are a small proportion of total production. The re- improve rural incomes since most of the expenditures in
emergence of agribusiness has, in some areas such as this programme have gone toward building capacity in
Manica province, permitted the shift of production away Maputo’s Ministry of Agriculture.8
from subsistence toward production for the market and As a number of analyses including the most recent
therefore increased incomes, but these are not high enough Economist Intelligence Unit report have noted, the econo-
to account for a major reduction in the incidence of acute my is growing at two different speeds,9 one rapidly and the
human poverty prevalent in the rural areas. other hardly at all. The World Bank’s 2003 Country
Cereals, not cash crops, constitute the bulk (70 percent) Assistance Strategy similarly refers to the “two economies
of farm production, and here there are few signs of in Mozambique.”10 One is the economy of large scale proj-
improvement. Production levels remain approximately half ects exploiting primary commodities, specifically mineral
of what neighbouring countries achieve. While sugar and energy resources which produce export revenues but
production has done well, cereal production remains which are unlikely to create more than 20,000 new jobs
relatively flat, as table 2.5 indicates. This is partly explained overall. This has had little impact on rural income and
by the fact that only 4 percent of farmers use any type of human poverty. The other economy is that of small farms
fertilizer.6 The number of state-paid extension agents has and small enterprises where production and sales have stag-
decreased by 13 percent over the past two years,7 largely nated in recent years. These small rural enterprises rely on

6
World Bank, Country Assistance Strategy for the Republic of Mozambique, October 2003, Report No. 26747-MOZ, p. 5
7
Government of Mozambique, Ministry of Planning and Finance, PARPA Implementation Evaluation Report, 2001, Maputo, 2003, p. 22
8
The Economist Intelligence Unit, Country Report: Mozambique, January 2004, p. 23
9
The Economist Intelligence Unit, Country Report: Mozambique, January 2004, p. 11
10
World Bank, Country Assistance Strategy for the Republic of Mozambique, October 2003, Report No. 26747-MOZ, p. 6
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Table 2.6 Performance of Key Sectors in Mozambique

and the Millennium Development Goals

Indicator 1990-1997 2004 2015 Millennium

Development Goals

Education

EP1 Completion 30% 43% 100% for all children

(36% for girls)
Health

Child Mortality 235/1000 200/1000 78/1000

(U5MR) live births live births live births
Water

% Access to n/a 29% rural 62% rural

Safe Water 36% urban 67% urban
HIV/AIDS
HIV/AIDS 3.3% 13.6% <15%
prevalence rate

Sources: World Bank, Country Assistance Strategy for the Republic of Mozambique, 2003

28 the local markets, and they do not have the collateral to government’s key objectives to reduce infant and maternal
borrow money, to expand or change their production struc- mortality. However as Mozambique’s HDI and GDI show,
ture. There are few linkages between these two economies access to education, health care and safe water is still
and, as a consequence, high levels of and income poverty at limited and leaves out nearly all of Mozambique’s rural
the household level continue despite a rapidly expanding population. The urban poor and women are the worst
economy. affected by this high level of human poverty.

ACCESS TO EDUCATION, HEALTH COMBATING HIV/AIDS

AND SAFE WATER The infection rate of HIV/AIDS in adults (15 to 49 years
In recent years, there has been improvement in nearly all old) has risen to alarming levels in recent years, from a rate
the three sectors relevant to the MDGs, namely, access to of 3.3 percent in 1992 to 14.8percent in 2004. There is con-
education, health and clean safe water, but progress is slow siderable variation within the country, ranging from as high
and Mozambique is unlikely to meet the targets for the as 26.6 percent in Sofala in the central part of the country
MDGs it has set for itself. Table 2.6 reviews recent data on to 17.4 percent in Maputo City in the south and 7.5 per-
a selection of sectors relevant to the MDGs accompanied cent in the northern province of Cabo Delgado. The total
by the targets. A fuller review of indicators and the number of people living with HIV/AIDS is 1.2 million of
Millennium Development Goals is given in Annex 4. which 459,000 are men, 670,000 are women and 70,000 are
In the education sector, intake and enrolment figures children below four years of age.11
show a positive trend in attendance at the primary level as The HIV/AIDS pandemic has had and will continue
new schools are built and opened and new teachers are to have a significant impact on Mozambicans’ key human
trained and placed in the system. In the water sector, in development indicators such as health status, life expectan-
recent years, the government has met its annual targets of cy, education and on its social and economic outlook. It is
water points and latrines, which brings up the percentage of estimated that infant mortality rates in Mozambique,
the population with access to safe water to higher levels. In which are already among the highest in the world, will be at
the health sector, outpatient utilization rates and child vac- least 25 percent higher in 2010 than they would have been
cination rates have increased, and there is progress on the without HIV/AIDS. From 1999 to 2003, 300,000 people
died of HIV/AIDS, and experts believe that in the next

11
INE, MISAU, MPF, CEP, CNCS, UEM. Impacto Demografico do VIH/SIDA em Mocambique. Actualizacao. Ronda Vigilancia Epidemiologica 2002. Maputo, Maio de 2004.
 2. GOVERNANCE

seven years, that number will be three times higher unless office for private gain. In a recent citizen’s survey of opin-
there are rapid and effective interventions. It is estimated ions about law enforcement, 68 percent of the respondents
that life expectancy will drop to 40 years in 2010 when, expressed the belief that it is harder now to get fair treat-
without HIV/AIDS, life expectancy would have been 50. ment from policemen compared to ten years ago (see Table
Infection rates are particularly high among government 4.2.). Only 21 percent believed that things had improved.
civil servants, school teachers especially, raising the specter The survey reflects both the lack of integrity within public
of of a depleted civil servant force, already at a premium in institutions and the increasing chagrin of citizens who need
the country. According to recent estimates, 17 percent of their services.
teachers are at risk of dying before 2010.
ADDRESSING AID DEPENDENCY
INSTITUTIONAL CAPACITY AND Since the end of the war, Mozambique has continued to
TRANSPARENCY IN THE PUBLIC SECTOR receive strong support from its expanding list of develop-
Mozambique has made considerable strides in increasing ment partners. This signals a high degree of confidence in
capacity in the public service. Training abroad and training Mozambique’s capacity to ensure continued peace and
in local public administration academies have enhanced the robust growth following the liberalization of a centralized
planning in administrative capacity at the central level, and economy in the early 1990s. During the Consultative
this increased capacity is beginning to reach the provincial Group conference with foreign donors in October 2003,
and district levels as well. donors continued their considerable support to
In all public sector institutions the capacity to effectively Mozambique with pledges of US$790 million for 2004,
manage government functions and disburse public exceeding the US$680 million that the government had
resources is low. There are two issues, one related to the 22 requested. Three-quarters of the pledges for 2004 are grants
central government ministries, and a second dealing with while the remainder are in the form of soft loans, indicat-
the reach and effectiveness of governing bodies at the local ing the trend away from loan-based foreign aid. 29
levels, typically in rural areas. At the central level, all of the Although Mozambique dependency on external
ministries have been undertaking a review of their own financing has decreased from 60 percent of government
operations in order to restructure for improving perform- spending five years ago to 48 percent at present, this has
ance. Only five of the 22 ministries have so far produced more to do with a growing national budget than with
viable reviews. A number of donors and development changes in donor contribution since, if anything, donor
partners, including UNDP, are supporting initiatives to contributions have increased. Tables 2.7 and 2.8 review
improve public sector performance. these trends.
At the local levels, because of the legacy of a highly Aid dependency of this magnitude is as much a meas-
centralized bureaucracy, there is inadequate government ure of national vulnerability as it is a measure of donor con-
presence to carry out local planning. Government essentially fidence. Domestic revenue has increased only modestly, an
stops at the district or sub-district level. With the exception average of 0.3 percent per annum, as a result of more effi-
of the few (33) municipal councils, all of the local level cient tax collection. Increasing revenues further relies on the
officials are appointed, and their links to their central bosses government’s capacity to build roads and other infrastruc-
are far stronger than their links to their constituencies. ture to provide the necessary services for the productive sec-
Presently, the affairs of the 128 rural districts, comprising tor to grow and generate more revenue. And yet the gov-
70 percent of the total population and 90 percent of the ernment does not have the resources for the level of infra-
land area, are administered by the central government structure investment which would generate more broadly
mediated by the 10 provincial governments. Clearly existing based economic productivity and ultimately reduce the level
capacity, even when it is effective, is inevitably stretched. of aid dependency. Given its present economic circum-
Evidence gathered by the ADR team indicates that stances, Mozambique’s dependency on foreign aid is likely
confidence in the transparency of government may be to continue for the foreseeable future. The challenge is to
declining. In a recent Forum on Transparency and channel this high level of external development assistance
Corruption,12 supported by the UNDP, all five discussants into support for balanced economic growth, poverty reduc-
on the causes and consequences of corruption in tion and human development that benefits the majority of
Mozambique lamented the rapid rise in the use of public the population.

12
Forum on Transparency and Corruption, Instruments and Strategies in Fighting Against Corruption, supported and published in collaboration between the UNDP and the Assembly
of the Republic
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Table 2.7 Aid Flows to Mozambique, 1998 – 2004 (US$ millions)

Sources 1998 1999 2000 2001 2002 2003 2004
Grants 313.2 434.0 563.9 469.3 400.0 481.5 490.8
Credits 218.1 111.8 161.8 133.3 248.0 224.0 232.8
Total 531.3 545.8 725.7 602.6 648.0 705.5 723.6

Note: These figures include all grants and credits in support of budget, balance of payments,
programmes, projects and commodity aid from bilaterals, multilateral and private sources.
It also includes donor assistance to public enterprises. Source: Ministry of Planning and Finance

Table 2.8 Total Foreign Aid to Mozambique as a Percentage of GDP

Year 1999 2000 2001 2002 2003
Total Aid 545.8 725.7 602.6 648.0 705.5
% of GDP 13.7% 19.7% 17.5% 18% 16.4%

Source: of Mozambique, Ministry of Planning and Finance; Economist Intelligence Unit,

Country Report: Mozambique, United Kingdom: January 2004

MOZAMBIQUE’S DEVELOPMENT STRATEGY Action Plan for the Reduction of Absolute

To address these human development challenges, the gov- Poverty (PARPA)
30 ernment of Mozambique has successively adopted various Since 2000, the PARPA has become Mozambique’s overar-
polices and strategies. During the period under review, the ching national development strategy targeting poverty
national poverty reduction strategy or PARPA, the MDGs reduction. The 2000-2004 PARPA identifies six priorities:
and Agenda 2025 provide the key elements of health, education, infrastructure, agriculture, governance
Mozambique’s development strategy, and these are briefly and macroeconomic/financial policies. There may not
discussed below. be universal agreement on these six, or on the actions and
Prior to 1999, the Government of Mozambique’s indicators noted, but there is sufficient consensus on these
approach to poverty reduction was split among a number of priorities to give at least the foundation of accord among
initiatives. The Social Dimension of Adjustment project government ministries. PARPA provides furthermore the
was one of these. The Office for Support to Vulnerable foundation for agreement among donor partners them-
Populations was another. In 1995, a Strategy for Poverty selves and, equally significantly, between donor partners
Reduction in Mozambique brought these diverse initiatives and government. This agreement has facilitated the forma-
together and was incorporated into the Five-Year tion of a donor/government accord, which has supported
Programme of the Government, 1995-1999. The results of the emergence of a direct budget support group of donors
the First Poverty and Well-Being Assessment were made who work, not separately or through separate ministries,
public in 1998, and the principal finding of this assessment, but through the central government for common objectives.
that nearly 70 percent of the population nationwide were This first PARPA covers a period of five years from
under a consumption based poverty line, provoked the 2000 to 2004. It is renewed annually each year resetting its
government and its partners to produce a cohesive poverty targets for a new five-year sequence. There are some 90
reduction strategy. This resulted in the Plano de Accao para a quantitative targets, each one associated with a number of
Reducao da Pobreza Absoluta, or the Action Plan for the actions, which makes for a comprehensive but laborious
Reduction of Absolute Poverty (PARPA). The PARPA was document and targets that are difficult to track.
first formulated in 1999 with UNDP support and subse- It should further be noted that the PARPA targets are
quently approved by the Council of Ministers in April not an easy fit with the MDGs as many of the eight MDGs
2001. In August 2001, the World Bank and the IMF are either buried under the many PARPA actions and
endorsed the PARPA as Mozambique’s first full Poverty targets, or the indicators used are not fully compatible with
Reduction Strategy Paper (PRSP).
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

those of the Millennium Development Goals. Annex 6 Harmonizing of development assistance is intended to
gives PARPA targets for a selection of indicators. Even counter what former World Bank President James
more important, some of the indicators that are regarded as Wolfensohn recently characterized as “development unilat-
critical to human development concerns are not included in eralism.”13 More recently, the Rome Declaration on
the poverty reduction plan, including gender indicators, Harmonization of February 2003 has gone beyond agree-
vulnerability to crises and the HIV/AIDS crisis. ment on the principles of harmonization and urged their
implementation. The Rome Declaration attached “high
MOZAMBIQUE’S AGENDA 2025 importance to partner countries assuming a stronger leader-
More recently, the government has sought to develop ship role in the coordination of development assistance, and
a long-term strategic vision for the country. In 2003, the to assisting in building their capacity to do so.” The
government requested support from UNDP and some Development Assistance Committee (DAC) of the OECD
bilateral donors such as Danish International Cooperation has now set up a special task force to determine good prac-
Agency (DANIDA) to embark on a consultative process to tices for ensuring that aid is delivered more effectively
set the country’s long-term development agenda. The through simplifying and harmonizing donor practices.
Agenda 2025 brought leaders and citizens together in June In Mozambique, this consensus among donors and the
2003 to participate in formulating scenarios for the coun- government around the PARPA has given a boost to the
try’s future. A division of the participants into four working trend for donors to channel increasing portions of their aid
groups gave structure to the exercise: human capital, social directly into the national budget and less into separate
capital, economy and development, and governance. projects or programmes or sector pools. Increasing the
Various scenarios were discussed, among them: (1) amounts channeled directly into the national budget can
peace and social stability, (2) democracy and participation make it easier for the government to anticipate revenue
and (3) competitiveness and technological transformation. levels and conduct integrated planning. At the same time, it
Using these three overarching objectives, the Agenda 2025 has the potential for enabling donors to act in a unified 31
exercise identified aspirations for the country in a number fashion instead of as separate advocates with separate agendas.
of sub-areas including social capital, economy and develop- Direct budget support was approximately US$118
ment, macroeconomics, rural development, human settle- million in 2002; it rose to US$160 million in 2003 and is
ments, competitiveness of companies, financing develop- expected to rise to US$230 million in 2004. The number of
ment, informal sector, infrastructure, international relations participating donors has increased from a few like-minded
and good governance. donors in 2002 to a total of 15 active participants, including
The aspirations were broadly phrased, and unlike the the World Bank. The 2004 figure of aid resources channeled
PARPA and other planning instruments based on the through direct budget support amounts to nearly 45 percent
PARPA, they did not generate specific targets. of the total aid flows to Mozambique. As the number of
Nevertheless, most of the respondents noted that it was participants in the direct budget support group increases
a useful exercise in so far as it generated national ºdebate and the amounts involved increase, so will its prominence.
and created a forum which brought the leaders of the two The implementation of the Monterrey Consensus and
opposition parties together. the Rome Declaration has encountered a number of reser-
vations among donors in Mozambique. Conventions
DEVELOPMENT MANAGEMENT of accountability inhibit many donors from mixing their
AND AID COORDINATION disbursements indiscriminately with other funds through
Since 2002, there has been a growing consensus among contributions to the national treasury. Some donors claim
donors to coordinate their official development assistance that their contribution to Sector Wide Approaches
to Mozambique, guided by the consensus forged at (SWAps) is the best middle ground between separate
Monterrey in March 2002. The Monterrey Consensus project implementation and contributing to a common pool
achieved broad agreement on the considerable benefits of to be used at the discretion of the government.
donor harmonization, including the reduction of transac- Accord on the PARPA has strengthened collaboration
tion costs, increasing the capacity of partner countries and among donors and between government and donors and
the coalescence of donor and partner accord on national promoted the principles and practice of harmonization. As
development priorities. donors increase their investment in the government’s ability

13
James Wolfensohn,“Ending the Unilateral Approach to Aid,” Financial Times, 26 September 2002, p. 13.
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

to handle aid financing, so the monitoring instruments have It should be noted that donors are far from making a
become more robust. Accordingly, donors in the budget wholesale commitment to the budget support modality. For
support group have developed an accountability framework, the most part, donors have committed only a modest por-
dealing with fiduciary and substantive issues, to which the tion of their total aid allocations to budget support. Only
government has agreed and which is now integrated in the one of them, the United Kingdom, channels more than half
government’s Economic and Social Plan (PES). The PES of its aid to Mozambique in this way. Most of the others
is the semi-annual instrument devised by the government allocate between 5 percent and 25 percent of their budget
for regular budget review. to direct budget support, while still others provide only
The Poverty Observatory is yet another instrument of token amounts. The government, for its part, also has some
accountability which ensures that the views of civil society, reservations. Mozambique is nevertheless painfully aware
i.e. church groups, academic institutions and the private of the risk it runs when nearly half of all aid to the country
sector are incorporated into government decision-making flows through one instrument – the budget support modal-
on poverty reduction. The principal support for this unique ity. A condition not met could wreak havoc with the
government institution that formally channels the views of national budget in the event that the budget support group
civil society on poverty reduction directly into government’s as a whole decides to make an issue of it. The emergence of
Ministry of Planning and Finance has come from the this form of development cooperation modalities portends
UNDP. Its value is enhanced by virtue of a Poverty changes for Mozambique and poses challenges UNDP will
Observatory task force in every province reflecting civil need to address jointly with government, particularly in the
society views on poverty reduction from a central as well as area of capacity building.
a decentralized perspective. Mozambique has made tremendous progress since
The effect has been to tighten the circle of reciprocal 1992 and the political and development terrain has changed
obligations, and foster potentially trust, among the donors, considerably for the better. There are still however some
32 NGOs and the government. The PARPA has been the cat- major deficits on the human development front and
alyst that has promoted aid harmonization in Mozambique. tremendous challenges ahead. Perhaps the most critical one
Donors’ increased reliance on government’s capacity to is how to translate the high growth rates and expansion in
manage their funds encourages them to invest more in this the industrial sector into effective strategies for reducing
capacity. Likewise government’s efforts to improve its the acute human poverty affecting the majority of the
capacity in fiscal management pay off when donors encour- country’s population which is largely rural. Mozambique,
age the government to take fuller responsibility for planning. with the support of its development partners such as the
Separate sector programmes and separate donor agendas UNDP, will need to address not just the skewed production
that fragment planning for public services at the provincial structure, but also to narrow the rural-urban divide, the
and district level have now greater integration and synergy. regional imbalances and the gender disparities.
Both the government and its donor partners are also
mindful of potential challenges and risks. The most promi-
nent among them is, as every donor has noted, that the
central government may not have the capacity to manage
these large sums well, to oversee their transfer and effective
utilization. The execution rate in many ministries is uncom-
monly low; in one instance, it was reported that the
Ministry of Education was able to spend only 16 percent of
its annual allocations. There are many reasons for this,
including the complex and time-consuming burden of
different reporting requirements for different donors, even
though progress is being made toward making the reporting
protocols uniform. There is also a fear that giving up the
kind of scrutiny that project funding or SWAps allow may
result in misuse of resources. Should this happen, some
donors may be obliged to withdraw from the group which
would jeopardize the effectiveness of the group as a whole
since the strength of the group is in its consensus.
COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

3 UNDP Strategic Position

in Mozambique
INTRODUCTION
The objective of this chapter is to provide an overview of UNDP’s programmes
between 1998 to 2006 and assess how the organization has strategically
positioned itself to support and contribute to Mozambique’s development
goals. In assessing UNDP’s strategic positioning, the ADR team considered
the factors below:
■ Comparative advantage of UNDP and added value of its contributions.
UNDP’s traditional comparative advantage lies in its neutrality which
allows it to work in sensitive areas and on policy dialogue, its global knowl-
edge network, and its focus on capacity building and advocacy for human
development. The ADR team considered the extent to which UNDP can
continue to draw upon this comparative advantage to develop a compelling
vision capable of mobilizing broad-based support from government and
other partners and bring added value to its operations in Mozambique. 33
■ Responsiveness to changes in the country’s development context.
Reviewing UNDP’s capacity to respond takes account of whether UNDP
has stayed relevant as changes in government policies and priorities have
changed and whether, as a consequence, there have been missed opportuni-
ties for UNDP’s involvement in key areas.
■ Relevance to national development priorities. Relevance requires pro-
grammes to not only to ‘do the right things,’ but also ‘to do things right’ and
to be responsive to national concerns and address the most pressing of
national development issues in an effective way and with tangible outcomes.
■ Strategic partnership around development outcomes. Strategic positioning
relies on maintaining productive linkages with government and its key
development partners and with civil society organizations to achieve devel-
opment results.

OVERVIEW OF UNDP PROGRAMMES

Transition from post-conflict to development

UNDP’s programming has changed in response to the momentous changes
that have occurred in Mozambique over the past decade and a half. The Third
Country Programme (1987-1991) was adopted during a time of economic and
social upheaval at the end of a 16-year long civil war. The subsequent pro-
gramming cycle, the Fourth UNDP Country Programme (1993-1997) came
onstream as the warring parties, FRELIMO and RENAMO, signed a gener-
al peace agreement in Rome in 1992. During this phase, UNDP supported the
peace process, elections and the re-establishment of government institutions,
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

all the while providing humanitarian and relief assistance. confidence building, capacity development and fostering a
Both the Third and the Fourth UNDP Country positive environment for implementing development
Programmes essentially responded to the state of emer- assistance in the country. Its resources for the CCF1 rose
gency in the country. Significantly, the core thematic areas from an estimated total of US$93,937,000 for the Fourth
of focus for the fourth country programme were poverty Country Programme in 1993-1997 to US$143,424,723 for
alleviation and post- war rehabilitation, economic and the first CCF 1998-2001, an increase of 53 percent.
financial management and environment and natural More recently, as Mozambique has moved from a peri-
resources. The overarching objective was creating national od of post-conflict to a period of recovery and long-term
capacity for policy development, coordination and resource development, there have been significant changes within
mobilization. the government and within the aid environment.
Government has assumed greater ownership and control of
FIRST COUNTRY COOPERATION its development agenda, even though it is still dependent on
FRAMEWORK, 1998-2001 external financing. It has made poverty reduction through
The Fourth UNDP Country Programme was followed by the PARPA the centrepiece of its political and development
the first country cooperation framework for the period agenda, and in doing so, assumed greater leadership in the
1998 to 2001, and it was guided by the national Economic area of policy dialogue and donor coordination than it pre-
and Social Rehabilitation Programme. The country still viously did. As subsequent sections will show, these changes
faced the consequences of a damaging war, but the GDP have had an impact on, and portend long- term implica-
had begun to rise tentatively and reconstruction was tions for, UNDP’s traditional role and approach to donor
underway. While the Fourth UNDP Country Programme coordination, policy dialogue and resource mobilization.
had spread itself across a large number of areas, from road The number of donors has increased from a very few
building to sanitation to agricultural extension services, during the war to a present total of forty-seven. Each of
34 mine clearance and decentralization, the CCF1 which them seeks to make a unique contribution in an ever more
succeeded it began to move UNDP’s programme from an crowded donor environment, intensifying the competition
extensive all embracing coverage (as emergency responses among them to leverage their resources into demonstrable
must be) toward a narrow focus on fewer practice areas. policy impact. It has become more difficult for donors to
However, the eclectic portfolio reflects the backdrop find a niche where a distinctive contribution can be made,
against which CCF1 was formulated—a post-conflict and and this is especially true for UNDP.
reconstruction country programme aimed at supporting the The case is the same for NGOs: in 1994 there were 40
country’s transition to peace and long-term development. NGOs in Mozambique, 30 international and 10
The core areas of support were: (i) poverty reduction which Mozambican, and now there are 450, of which 50 are
supported projects ranging from improved sustainable international. While this rapid increase among civil society
livelihoods and micro-credit to basic education, health organizations augments opportunities for broadening the
delivery and Demining; (ii) good governance, (iii) environ- coverage of issues and access to development outreach to
ment and natural resources management; (iv) economic and more areas in the country, it also encumbers the aid
financial management; and (v) cross-cutting issues under environment with more players.
which gender is included . As the number of donors has increased and the govern-
UNDP played a key role in Mozambique’s rehabilita- ment has assumed more ownership over development
tion process, especially during the latter days of assistance, UNDP has had to search for a niche that allows
Mozambique’s civil war and the years that followed. It it to play a meaningful role. This has proven increasingly
established a solid partnership with the government during difficult as donors develop their own programmes, pool
this time, and its relationship with the government today their funds with other donors in SWAps, or collaborate
continues to benefit from this long-standing partnership. with other donors to provide budget support directly to the
UNDP’s most important contribution during this period government. UNDP’s former partners now channel fewer
was to support government in creating an enabling environ- funds through UNDP’s programmes than they did previ-
ment to encourage other external partners and donors to ously, and UNDP’s budget has diminished accordingly.
make commitments to long-term development support as is Resources for the second CCF (2002-2006) declined
evident today. In the course of this 15-year period, UNDP 55 percent from the previous planning cycle to
worked closely with the government in resource mobilization, US$63,713,454. (see Table 3.1)
 3. POVERTY REDUCTION

THE SECOND COUNTRY COOPERATION proportional importance of poverty reduction and good
FRAMEWORK, 2002-2006 governance has switched places. Allocations to poverty
Under the second country cooperation framework (CCF2) reduction have fallen from 31 to 21 percent of the total in
for Mozambique (2002-2006) UNDP took an initial the first CCF, while allocations to governance have risen
step toward improving the coherence of its country from 24 percent to 31 percent of the total. The number of
programme by narrowing the focus and reducing the scope poverty reduction projects remains the same, though many
of activities. It did so first by reducing the number of are being phased out as UNDP places greater emphasis on
thematic areas and secondly by calling for complementarity its governance portfolio. (see Figure 3.1)
and synergy among the projects undertaken within these The second is a reduction in overall number of projects,
programme areas. primarily due to a 15 percent reduction in the number
The fourfold programme during CCF1 which includ- of projects in the category, “non-linked programmes” which
ed poverty eradication, good governance, environment and embraces a number of thematic areas. With fewer projects
natural resource management, and economic and financial falling under the ‘non-linked’ category, a relatively larger
management became a twofold programme. This twofold portion of all projects fall within the two main thematic
programme includes only (i) poverty reduction and (ii) areas.
good governance. A comparison of the resource allocations There are still, however, more than 100 different active
in table 3.1 offers a picture of the structural and financial projects overall with 45 percent of them falling outside
changes introduced with CCF2. the two core thematic areas of governance and poverty
The second CCF is less than half the size of the first reduction. Even within these two thematic areas there is a
CCF. Two further trends also stand out. The first is that the diversity of projects, some linked and some only remotely
linked to the core themes.

35

Table 3.1 Resource Allocations (Core and Non-Core Resources) for CCF1
and CCF2 by Thematic Area, 1998-2006
Thematic CCF 1 (1998 – 2001) CCF 2 (2002 – 2006)
Areas Allocation % of No. of Allocation % of No. of
(US$ ‘000s) Total CCF Projects (US$ ‘000s) Total CCF Projects

Governance 34,912,846 24% 22 19,735,398 31% 22

Poverty 43,996,246 31% 32 13,685,892 21% 32
Environment 1 18,125,713 13% 8 1,736,206 3% 8
Non-linked 46,389,988 32% 89 28,555,958 45% 67
programmes 2

Total – 143,424,793 100% 151 63,713,454 100% 129

All Goals

1
Environment has ceased to be a distinctive thematic area in CCF2 as allocations are very small.
2
Non-linked programmes is the category used by UNDP Country Offices for all those projects that do not fit
neatly into either of three categories of Poverty, Governance or Environment and are not reported on under
the SFR/ROAR. They include, for example, capacity building in economic management, demining, disaster
mitigation among others.
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Figure 3.1: Resource Allocations to Thematic Areas (Core and Non-Core Resources)
for CCF1 and CCF2 1998-2006

CCF 1
50
% of Core and non-core funding

CCF 2

40

30

20

10

0
Governance Poverty Environ Non-Linked

Thematic Areas

COMPARATIVE ADVANTAGE OF UNDP AND resource mobilization and the legacy of CCF1 post-conflict
ADDED VALUE OF ITS CONTRIBUTIONS portfolio, it is perhaps unavoidable that the country
Taken as a whole and in spite of the programming guidance programme has elements of a supply- driven approach and
in the second country cooperation framework, the contain some opportunistic commitments. From one per-
projects supported by UNDP remain disparate. There are spective, this scattering of support for diverse initiatives is a
two consequences. The first is that, for the most part, proj- measure of the UNDP’s success in maintaining flexibility
36 ects have been managed as separate initiatives with little and mobilizing resources, since donors have been eager to
linkage to other country programme initiatives and lack the have UNDP manage resources in a wide spectrum of areas.
synergy called for in CCF2. UNDP is still doing many But the critical question that UNDP now must address
different things and doing only a few things with the kind is how to achieve a balance between the need to mobilize
of strategic focus that would build upon its past reputation resources and avoid downsizing, while at the same time
and enhance its effectiveness. It is the view of the ADR enhancing UNDP’s role and contributions through a strate-
team that in the present competitive climate the many gic repositioning of its support towards a more coherent
different activities supported by UNDP do not add up to a and focused programme in keeping with the present realities.
compelling vision that would allow the organization to Finding this balance will pose a dilemma for the
optimally draw upon its comparative advantage and UNDP. Containing the dispersal of projects and consoli-
demonstrate the unique value of its programmes to the dating resources around UNDP’s areas of strength relies, in
government and its partners. part, on enhancing UNDP’s profile as a source of expertise
The second consequence is that UNDP’s capacity is in select areas. The government and fifteen donors were
inevitably overstretched. Its human and financial resources consulted on this matter as part of the ADR exercise, and
are spread thinly around a number of remotely connected all agreed that UNDP’s most conspicuous flaw was its lack
activities. This might have been a viable strategy during a of adequate and substantive expertise, particularly in the
period of ample resources when bilateral donors depended emerging policy areas. Evidence suggests that UNDP
on UNDP to manage their funds in a wide variety of areas, seems to rely heavily on staff in training whose expertise
but this is no longer the case. The present situation dictates and skill level may not be commensurate with the tasks they
a sharper focus and a strategic repositioning of UNDP’s are asked to perform. It is also a fact that the obligations of
resources on a few strategic issues where UNDP can the few senior country office staff – there are four senior
clearly demonstrate a comparative advantage. staff in a total complement of approximately 30 programme
staff members—are too many and too diverse to allow them
Project diversity is inevitable to some extent. The body
to make their presence felt.
of projects and the structure of their administration are
partially a legacy of previous planning cycles. There are Getting the skilled people needed may need more
projects that have continued because financial support funding than UNDP now has. UNDP’s resources are
continues from contributing donors, or because there are dwindling in dollar value and as a proportion of total aid
still continuing commitments to the government which flows. Both of these measures are captured in table 3.2.
have not been critically reviewed. Given the imperatives of UNDP no longer enjoys the same notable success it
 3. POVERTY REDUCTION

previously enjoyed in mobilizing non-core resources. RESPONSIVENESS TO CHANGES IN THE

Between 1999 and 2002, UNDP in Mozambique raised COUNTRY’S DEVELOPMENT ENVIRONMENT
three times more non-core resources than the country Among virtually all the stakeholders polled, UNDP com-
ranked second in resource mobilization in the African mands respect for having maintained a presence in
region,14 but this has now changed. Non-core resources Mozambique during the crisis of the war years when a
mobilized for CCF2 have declined by a third of what they number of other international organizations were absent.
were during CCF1. During this period, as Chapter 4 shows, the UNDP provid-
Table 3.3 focuses only on that portion of disbursements ed emergency relief, supported the maintenance of roads
for staff costs and general operating expenditures, excluding and public utilities, and was one of the first international
salaries for senior international staff. The country office has organizations to come forward with assistance to facilitate
had to rely less, in recent years, on core funding and more elections and to reconstitute the police force which, during
on non-core resources to meet personnel costs. In 2000, 73 the war, had taken on more of a military than a civilian
percent of all personnel costs were met from core funding character. UNDP also played a key role in coordinating the
sources, while in 2004, it is expected that only 44 percent of removal of landmines, a continuing consequence of the
personnel costs will come from core funding. The UNDP conflict that continues to affect the rural livelihoods and the
Country Office has been obliged to rely increasingly on commercial and social life of 10 percent of the
extra-budgetary resources to make the same staff available population.
for its programming needs. These are difficult conditions UNDP’s reputed comparative advantage and ability to
for sustaining a complement of competent long-term respond effectively to emergency situations and coordinate
personnel, and it has implications for how UNDP will partner efforts has also been very much in evidence even
reposition itself strategically in Mozambique. after Mozambique’s civil war. It was the UNDP that coor-
UNDP is acutely aware of its need for expertise in key dinated the relief effort when floods and drought created
areas and aware also of the difficulty it faces in accessing crisis conditions in the country in 2000 and 2001. UNDP 37
the sector experts who are capable of working on an equal proved it was capable of responding to natural disasters as
footing with government and other development partners. competently and swiftly as political emergencies because of
Cleary this is a resource issue and must entail a strategy for its special relationship of trust with the government. The
making more resources available to the country office. This government regards UNDP as more neutral than bilateral
maybe difficult for UNDP in the short and medium term or multilateral donors even if it also recognizes that UNDP
since those extra-budgetary resources on which it has most may not have at its disposal as many resources or as much
relied on in the past may be the most difficult to come by in adequate expertise to address emerging challenges.
today’s Mozambique. Government officials expressed to the ADR team their
appreciation for UNDP’s role in national reconstruction.
However, the government also noted that the UNDP lacks
a comparative advantage on issues dealing with fiscal or

Table 3.2 Total Resource Allocation from Core and Non-Core Sources as
a Percentage of Total Aid Flows to Mozambique (US$ ’000s)
Source of 1998 1999 2000 2001 2002 2003
Funding

Core 12,824 5,966 4,981 5,084 6,000 7,500

Non-Core 20,811 36,903 24,806 22,758 16,700 13,400
Total 33,365 42,869 29,787 27,742 22,700 20,900
% of Total 6.2% 7.8% 4.1% 4.6% 3.5% 2.9%
Aid Flows

Source: UNDP, Office of the Deputy Resident Representative, Operations;

Ministry of Planning and Finance, Budget Planning

14
UNDP, Regional Bureau for Africa, Status Report, Resource Mobilization, 2003
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Table 3.3 Declining Percentage of Staff and Operating Expenses

from Core Funding Sources (1998 – 2004)

Indicator 1998 2000 2002 2004

Percentage of staff and general 58% 73% 55% 44%

operating costs funded from core
funding sources

monetary policy, on administrative reform, on tax policy However, the ADR team has concluded that, notwith-
reform or on the agricultural sector. standing its successes in the past, UNDP has not been able
Based on the evidence gathered during this evaluation, to build upon these successes and respond as effectively to
the ADR team concludes that UNDP has demonstrated its the changing social and economic climate and to govern-
comparative advantage and high degree of responsiveness ment’s emerging priorities. With the rise of direct budget
in responding to crises, natural disasters and providing support, UNDP has found it difficult to carve out a niche
catalytic support in the area of HIV/AIDS. However, and maintain leadership in its traditional role of donor
Mozambique today presents a changed operational envi- harmonization and coordination and resource mobilization.
ronment and as it builds on this past record, UNDP will The issue is not only that it is no longer a partner of first
need to rapidly redefine its role and approach in order to choice, partly due to its low level of capacity and expertise,
meet the new challenges and remain a strategic partner. but that the donors are dealing directly with the govern-
ment, and this dictates a need for redefining both strategy
RELEVANCE TO NATIONAL PRIORITIES and approach.
Since 2000, government policy has focused on the imple- Mozambique’s central human development dilemma is to
38 mentation of the Action Plan for the Reduction of ensure the rural poor are both contributors to, and benefi-
Absolute Poverty that is renewable every five years, and has ciaries of, the growth in national income. UNDP has begun
been endorsed by the World Bank and the IMF Board as to emphasize outreach more, to expand its decentralization
the first full PRSP. programme, bring court reform to rural districts and sup-
port community radio stations. On the governance and
As noted previously, the 2000-2004 PARPA identified
poverty reduction fronts, UNDP has scored some signifi-
six priorities, including health, education, infrastructure,
cant successes. But there is more to do if these programmes
agriculture, governance and macroeconomic/financial policies.
are to remain relevant and achieve a higher level of results.
Of these six, UNDP has been active in five during the
For example, decentralization and local governance,
period under review. UNDP has contributed to building
instead of being only about governance structures might
roads provided training in macro-economic planning,
incorporate a component that supports poverty reduction
strengthened the health sector through its support for com-
among the poorest segments of the population. Court
bating HIV/AIDS, provided direct support to the Ministry of
reform in rural districts might begin to address the legal and
Agriculture and Rural Development, and funded a number of
bureaucratic obstacles to expanding and initiating enter-
initiatives for strengthening individual and institutional
prises among rural households.
capacity for government reform. During this period, UNDP
has reduced its broad coverage in five sectors to support some- The adoption of the MDGs by Mozambique and the
what fewer areas though its coverage continues to be extensive. PARPA present an opportunity for UNDP to redirect its
support towards strengthening government ownership of
Prior to the adoption of PARPA, the government’s pri-
the policy arena and advocate a stronger human develop-
orities were on post-conflict reconstruction and recovery.
ment agenda. An MDG country profile for Mozambique
UNDP is universally perceived to have had an excellent
was carried out in 2002 (See Box 3.1.) Annex 4 reviews the
record of meeting the needs of the country in the post-con-
way the MDGs have been defined for Mozambique and
flict phase and of contributing to sustainable peace. Key
describes briefly UNDP’s contribution to meeting them.
areas of its contribution have included building government
institutions and providing critical support in the first phase UNDP has been successful in ensuring that
of Mozambique’s transition to democracy. During this Millennium Development Goals have a prominent place in
period, UNDP was also able to mobilize significant Mozambique’s development agendas. However, there is a
resources from many donors to support the country’s need for the target setting in PARPA to be more aligned
critical development needs at the time. with the MDG targets, and UNDP could strategically
 3. POVERTY REDUCTION

position itself to support this process more effectively. More UNDP AS A CONVENING PARTNER
specifically UNDP could also re-orient its own outcome AMONG DONORS
indicators towards meeting the country’s MDG targets. UNDP’s long-standing presence in Mozambique and its
The local governance and decentralization programme unique relationship with the government has afforded it a
is a case in point: training district officials in a consultative privileged role in the country’s development process. As a
planning process may improve the transparency of district result, UNDP has been in a unique position to attract many
government and eventually improve the quality of public bilateral and some multilateral donors to its programmes. It
services, but the link to the MDG targets for Mozambique, has exercised this unique ‘convening’ power in co-chairing,
i.e. to reduce the proportion of the population in extreme with the World Bank, the Development Partners Group
poverty to 33.5 percent, may not be paramount in project (DPG) which brings together heads of missions and key
implementation. There has been a tendency to neglect development personnel in Mozambique.
poverty reduction for fear that incorporating it would UNDP’s role as broker and manager of donor develop-
unnecessarily encumber the project. As successful as the ment funds for bilateral and multilateral partners has also
local governance and decentralization programme has been, provided UNDP with an important source of revenue from
there is room for aligning the decentralization programmes donor cost-sharing contributions. Table 3.4 gives the prin-
more closely with the MDGs by examining whether the cipal cost-sharing partners by the programme areas to
model for strengthening local government can more effec- which they contribute.
tively serve to reduce poverty, hunger and food insecurity.
Notwithstanding past successes, as noted previously,
UNDP’s role as convener and coordinator of donors is now
STRATEGIC PARTNERSHIPS AND
changing. The growing prominence of the direct budget
DEVELOPMENT RESULTS
support modality in Mozambique now poses a challenge to
In the immediate post-conflict phase UNDP was universal- UNDP’s convening role, both within the Development
ly perceived as having an excellent record of meeting the Partners Group and more generally as well. 39
needs of the country and contributing to sustainable peace.
In the opinion of the ADR team, there have been
The key areas of its contributions have included building
missed opportunities in strategically positioning UNDP to
key government institutions, providing electoral support
respond to the new situation. UNDP’s failure to anticipate
and strengthening democratic institutions. Because of its
how it should respond to the emerging and growing impor-
political neutrality, it was able to work in sensitive political
tance of the direct budget support modality in
areas and generate substantial cost-sharing resources for the
Mozambique has undermined its leading role in donor
country’s development agenda.
coordination and policy dialogue. The fact that UNDP
Within the new environment, UNDP now faces a does not participate in the group of direct budget support
number of challenges. One of these is the challenge of donors raises questions about UNDP’s effectiveness as a key
defining its role and its specific niche while at the same development partner in the country. This may in the future
time repositioning its programmes. Another is the chal- dilute the possible impact of UNDP’s role and contribu-
lenge of attracting more resources in fewer thematic areas. tions to substantive policy dialogue on macro economic
This is not only a matter of maintaining a comparative issues of the day.
advantage in strategically placed, innovative programming,
The number of those donors who do participate in
since UNDP’s strategic positioning in Mozambique relies
direct budget support has grown from 6, two years ago to 11
also on its stature and no less important on being perceived
last year, to 15 this year. More participants are expected.
as an unparalleled leader in innovative programme areas of
The group now includes the World Bank and the European
concern to government and key development constituen-
Union, both multilateral donors. Direct budget support
cies. It must maintain this stature and leadership as an
presently accounts for 45 percent of all annual aid flows.
effective convening partner among donors, a substantive
The group of budget support donors have formerly consti-
and responsive partner with government and as a partner
tuted themselves as the Programme Aid Partners,15 and as a
with the capacity to coordinate within the UN system.
group, signed a Memorandum of Understanding with the
government setting out the terms of their partnership.

15
Fifteen members contributing budget or balance of payments support and participating as full members of this group include: Belgium, Denmark, the European Commission,
Finland, France, Germany, Ireland, Italy, Netherlands, Norway, Portugal, Sweden, Switzerland, the United Kingdom and the World Bank. Canada, Japan, Spain, the United States, the
United Nations, the International Monetary Fund and the African Development Bank participate as observers.
16
The most recent Aide Memoire concluded the Joint Review taking place from 24 March to 5 April.
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Table 3.4 Cost-Sharing Partners by Programme Area of Contribution

Programme Area No of Cost-Sharing Partners

Partners

Decentralization and Public Sector Reform

Decentralization and Local Government 5 United Kingdom, Ireland, Sweden, Portugal, Germany
Public Sector Training and Reform 4 United Kingdom, Ireland, Norway, Denmark

Support to Democratic Institutions

Elections 9 Switzerland, Finland, Denmark, Norad, Sweden, Canada,

European Commission, Belgium, Italy
Justice Sector – Police 6 Netherlands, Spain, Germany, Switzerland, Spain, UNICEF
Justice Sector – Courts 5 Portugal, Ireland, UNICEF, Norway, European Commission
Assistance to Parliament 4 Portugal, Ireland, Netherlands, Norway

Poverty Reduction

Community Income and Employment Generation 3 Portugal, Netherlands, Italy

Microfinance 5 Sweden, Australia, Africa Development Fund, UNFPA,

UNICEF
40
Limiting the Spread of HIV/AIDS

Limiting the Spread of HIV/AIDS 4 United Kingdom, WHO, UNFPA, UNAIDS

Vulnerability Reduction and Crisis Prevention

Demining 11 Japan, USA, UNMAS, Denmark, Ireland, New Zealand,

Switzerland, Finland, Korea, Australia, Italy
Disaster Management 4 Denmark, Canada, Australia, Ireland

Dialogue and Communication

Media 8 Finland, Ireland, Norad, Denmark, Sweden, Norway,

Portugal, Markle Foundation

Source: Country Office, Project Support Unit

These donors conduct annual Joint Reviews in order to As harmonization proceeds quickly, the UNDP and
review the Government’s implementation of its plans16 as its UN system partners risk being marginalized from sub-
reflected in the PARPA, the PES and the Performance stantive policy dialogue with the government and key
Assistance Framework (PAF), coordinating the work of five development partners. The situation is even more critical
thematic groups and twenty working groups. It is common- for the UNDP given the modest resources it brings to the
ly noted that the Programme Aid Partners (PAP) has effec- development table. To strategically position itself , UNDP
tively replaced the Development Partners Group (DPG) needs to assess its role, its contribution and how best to
co-chaired by UNDP and World Bank as the principal reposition itself in the changing development architecture
coordinator of donor activity and as the venue where sub- in the country.
stantive issues of development are discussed among donors.
 3. POVERTY REDUCTION

UNDP AS A KEY PARTNER These changes will also impact UNDP’s capacity and
WITH GOVERNMENT the UN system as a whole to leverage its resources for
UNDP has a history of close collaboration with the govern- significant policy changes. UNDP relies on its stature and
ment, to the extent that some government officials are on the key role it plays among donors and NGOs to bring
inclined to regard UNDP more as a partner rather than a international standards of human rights, gender equity and
donor. UNDP supported the government through civil war, poverty reduction to bear on national ones. Due to weak
post-conflict and reconstruction and in 2000/2001, it oversight and financial accountability in some programmes
mobilized over US$450 million to assist the country to (e.g. environment and Demining activities), the UNDP is
respond to floods and droughts. The government and its already widely regarded by some of its key partners as being
other key development partners widely recognize UNDP “too soft” on the government. A number of donors
for its innovative contribution to decentralization and the expressed their reservations about collaborating with the
deconcentration of state powers, the experiences of which UNDP because of its perceived failure to take action
have been incorporated in a state law on the powers of local quickly when evidence of corruption surfaces.17
governing bodies. UNDP is also recognized for its willing-
ness, early on in the post-conflict and recovery period, to UNDP AS A COORDINATING PARTNER
contribute to institutions in the justice sector, the electoral WITHIN THE UN SYSTEM
processes and in strengthening parliamentary institutions. UNDP’s support to the UN system through the Resident
This long-standing partnership with government has Coordinator Office sustains a forum for substantive collab-
been an asset for UNDP. The changing donor environment oration among the eight resident UN agencies. The UN
precipitated by the growing number of bilateral and Country Management Team has focused its collective
multilateral donors committed to direct budget support, efforts on addressing the issue of vulnerability to
however, may have significant repercussions for UNDP’s HIV/AIDS, natural disasters and food insecurity, the
partnership with the government. As the quantity and com- “triple threat.” This focus provides an opportunity for 41
plexity of aid have evolved, both donors and government UNDP to draw upon its reputed competence in emergency
have sought to facilitate aid flows and reduce complexity by response and positions the UN system to respond to such
agreeing to channel donor funds directly into the treasury crises.
of the central government. UNDP has neither joined this Within the context of UNDAF, the UN system coordinates
process in an effective way nor developed a coherent its work under six technical working groups dealing with
strategy to address the issue, and this may affect UNDP’s disaster management, HIV/AIDS, gender issues, primary
future role, contribution and visibility in the country’s education and health (see Annex for UNDAF results
development process. matrix). While UNDP collaboration with the UN system
One of the outcomes of a growing budget support has been generally positive, there is a need to develop ways
consensus has been to put the relationship between govern- of strengthening greater collaboration in order to enhance
ment and donors on a more regulated footing on issues of its effectiveness in the policy arena. The new development
transparency and mutual accountability. The growing num- cooperation climate requires that the UN team act in
ber of donors participating in aid harmonization through concert and promote synergies among their programmes.
budget support, with their sizeable collective contribution, The UNDAF and Country Programme mid-term
promises to precipitate the emergence of a clearer and more reviews provide an opportunity for the UN system to make
internally consistent set of standards which the government a commitment to reassess its strategic approach to the
is expected to meet. They are founded on the government’s emerging climate. The real challenge is for the UN system
commitment to reduce poverty in accordance with the to go beyond collaboration, or even agreement on who will
PARPA. This is likely to promote a clearer set of standards implement the different activities, and instead to commit
for using aid funds than was the case when donors were member agencies to the ultimate objective of maximizing
competing with each other for government attention and goal-oriented development cooperation through joint
when the government dealt with each donor separately. programming. There are two major common thrusts which
This in turn obligates donors to honor their pledges in a run throughout 2002-2006 where joint programming rep-
timely and predictable manner resents a natural direction for the UN system to consider.

17
UNDP’s donor partners in the support to capacity building for the Ministry of Environment are impatient with UNDP’s failure to take more decisive action to resolve a case
pending for three years.
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

These are firstly a joint response to the HIV/AIDS ing resources relies on trimming the scope of its initiatives,
pandemic and secondly, a joint commitment to gender giving them more coherence and ensuring that projects and
equity with a special emphasis on girls’ access to educational programmes are sufficiently cross-linked to explicitly draw
opportunities. upon each other.
There is a widely shared perception within the govern-
CONCLUSION ment and among most donors that the expertise within
In the first phase of the period under review, UNDP was UNDP is not sufficient to provide leadership in today’s key
strategically well-positioned, and its programmes effective- policy areas, nor is it sufficient to command their attention
ly laid the groundwork for long-term development invest- as the partner of first choice. While government considers
ments or commitments by other development partners. UNDP as more of a partner than a donor, there is concern
UNDP provided catalytic support to create and strengthen that UNDP may not have the substantive capacities or the
key government institutions in the justice, demining and competitive edge, comparable to other partners, to meet the
disaster preparedness sectors and in the campaign against challenges of providing credible support. In order to play a
HIV/AIDS. It supported the building of institutional significant role in a rapidly changing and complex environ-
capacities in government and within civil society organiza- ment, a first step for UNDP is to enhance its profile in
tions, promoted local governance and decentralization and select areas and to engage or contract substantive expertise
engendered a transition to democracy through its support in these chosen competencies in order to boost its capacity
to the electoral process. to address the present demands and challenges. There are
Until recently, the Mozambique country office has many ways to do this, for example, contracting with local
scored highly on resource mobilization. Under the first research institutes, linking with the Eduardo Mondlane
CCF, it mobilized more than twice the amount raised by University or drawing upon UNDP’s own regional centers.
the second-ranked country in Africa. However, alternative Finally, notwithstanding the Agenda 2025 exercise and
42 funding modalities for donors will mean fewer cost-sharing the publication of award winning Human Development
arrangements with UNDP. Changing modalities for devel- Reports, evidence of UNDP’s presence in the policy arena
opment funding in Mozambique have meant that bilateral is modest. It is the considered opinion of the ADR team
donors have more mechanisms for channeling development that UNDP cannot expect to make a substantive contribu-
assistance in Mozambique. Donors still channel some of tion to development policy in Mozambique as long as it
their funds through UNDP to support UNDP’s pro- remains outside of the donor consensus on harmonization
gramme areas, and the decision by the European Union to and coordination of aid or fails to develop a strategic
provide US$10 million to UNDP to support a new phase of approach to redefining its role in the new environment.
its justice programme is a case in point. It is a fact, howev- There are avowedly a number of risks in supporting direct
er, that the quantity of resources channeled through UNDP budget support, but there are greater risks in not taking
is diminishing and is likely to diminish further. any decision.
On the programme front, UNDP’s programming at The emerging consensus among the G15 budget sup-
present lacks the necessary coherence and signature expert- port donors and their capacity to set the development agen-
ise to permit its identification with an identifiable strategic da has positioned this group as the principal interlocutor
position. As a whole, UNDP’s programmes do not add up with government, particularly on PARPA and annual
to a coherent strategic response to the development chal- review exercises. The trend towards support for harmoniza-
lenges facing Mozambique at present. tion among key donors has extensive implications not just
Making the best use of declining resources requires the for UNDP but for the UN system as a whole. The nature of
UNDP to cut its programme to fit its cloth, to concentrate strategic partnerships the UNDP forges with donors, with
more on what it does best and in the areas which most the government, and with national development con-
clearly draw upon its comparative advantage and fit its stituencies in Mozambique will be critical to the strategic
mandate to respond to the Millennium Development repositioning of its role and support. A strategy to meet this
Goals. Its present scope of projects and programmes is challenge is necessary and depends on the UNDP and other
more appropriate for a time when UNDP had ample UN agencies developing a strong position of joint advocacy
resources to spread across a broad spectrum of program- on core UN system concerns, for example, human develop-
ming initiatives. Maximizing the effectiveness of diminish- ment and rights based approaches to development, both of
which are at the core of the UN’s mandate.
 3. POVERTY REDUCTION

The situation in Mozambique has changed significantly

since the mid to the late 1990s and UNDP’s strategic posi-
tioning and continuing role in addressing key development
priorities in Mozambique will depend on its capacity to
respond to the several challenges outlined in this chapter.
Designing a compelling, coherent and distinctive vision for
UNDP in Mozambique is an urgent challenge. It is a nec-
essary first step in raising UNDP’s profile and visibility
which has been somewhat eclipsed compared to the initial
post-conflict phase.

43
COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

4 UNDP’s Performance
and Contribution to
Development Results
This chapter assesses the development results achieved during the period
under review against the objectives as articulated in UNDP’s Strategic Results
Framework (SFR) for the first and second CCF (see Annex 5). The four key
areas were governance, poverty reduction, environment and energy for sustain-
able livelihoods with gender as an overarching theme. Well over 100 projects
were supported, primarily aimed at a total of 12 key outcomes identified under
the SRF. For the purposes of this evaluation, the ADR team has focused on
the most strategic areas of UNDP support: (i) local governance and decentral-
ization, (ii) support to key government institutions, (iii) promoting dialogue
and communication, (iv) poverty reduction, (v) combating the spread of
HIV/AIDS and (vi) reducing vulnerability to natural disasters.
The ADR team has analyzed development results against three determi-
nants of development effectiveness. First, did the programmes contribute to
enhancing infrastructure or capacity at the institutional or societal level? 45
Second, did they promote government or national ownership, specifically
whether the government or local target communities express an interest in
funding or continuing or replicating some or all of them? Third, did they create an
enabling policy environment and effective policies for sustainable development.

GOVERNANCE

Local Governance and Decentralization

Expected Outcomes: Effective legal and policy framework for
decentralization and local governance
The 18 districts of the Northern Province of Nampula have been the locus of
an array of decentralization initiatives in the past ten years. The first of these
dates to 1993 when the UNCDF in partnership with UNDP undertook rural
rehabilitation with a local development fund for financing small infrastructure
schemes. These schemes were administered within a project facilitation unit
inside the Nampula Provincial Directorate of Plan and Finances. At the end
of two years, less than US$100,000 had been disbursed on only 15 projects.
In 1997, the project strategy changed in order to focus on building
capacity among district level government planners who would organize
decision-making on what expenditures would be made. This change in
emphasis laid the foundation for the UNDP/UNCDF’s successful decentral-
ization initiative that now constitutes the model for strengthening local
government throughout the country.
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

In 1998, UNDP/UNCDF launched an ambitious enhance the decision-making power of lower levels of
programme to work with the government officials in the government and (c) transfer fiscal resources to local govern-
provincial Ministry of Planning and Finance, who would in ments and increase their control over public monies. The
turn work closely with district level officials to guide UNCDF/UNDP programme has achieved the first aim
district-level planning. Out of Nampula’s 18 districts, 14 and a part of the second but not the third, and attempts to
have now developed district-level plans and have put in move toward the second and third remain an on-going
place district-level Consultative Councils and a network of drama among the donors and NGOs involved in the decen-
groups to actively consult with their constituencies. The tralization process. The UNCDF/UNDP programme is in
Consultative Council at the district level (a district’s popu- the vanguard of these efforts.
lation averages 175,000) coordinates the consultative efforts The Ministry of Planning and Finance has
of sub-district Consultative Councils which, in turn, designated Nampula – with particular reference to the
consult with community groups, allowing development UNCDF/UNDP programme – as the pilot province for the
priorities to be expressed and flow through the network to introduction of decentralized district planning practices.
be considered among the priorities set for the district as a The Nampula model is being replicated by
whole (see Box 4.1.). UNCDF/UNDP in another province, Cabo Delgado and a
Ideally, decentralization programmes aim to: (a) carry version of this model is being implemented in four other
out planning functions at lower levels of government, (b) provinces by the World Bank. These guidelines are

Box 4.1 Decentralization and Poverty Reduction in Mogovolas District, Nampula Province

Five years ago, the UNCDF/UNDP decentralization programme, in collaboration with the Ministry of Planning and Finance in
46 Nampula, began to train district level officials in development planning. One of the poorer districts at the beginning was
Mogovolas. A Consultative Council was established and trained, and once this was done, consultative councils for each of the
sub-districts were created. Participatory planning was the guiding principle. Sub-district consultative councils consulted extensively
with community members and took the concerns of the community to the district level councils on which their representatives
served.The Consultative Council produced a district level development plan in 2002.The project’s activities might have ended there
once the institutions were in place and a district plan was produced, except that the consultative process had its own momentum
and once there was an accord on what projects should be implemented, the consultative councils sought financing. Funding from
the provincial and central governments was modest and the funding that was made available was typically kept by the centrally
appointed district administrator who felt little responsibility to his constituents.
The project had increased the transparency of the district administration and mobilized the population. The consultative councils
at the district and sub-district levels experimented with raising public funds themselves, even in districts where families were poor,
by levying taxes selectively on the operation of vehicles, bicycles and commercial stalls. For the first time taxes were paid because
tax payers were able to see the results of their contribution. Retained tax revenues have increased in Mogovolas by 1,300 percent
since 1999 and the effects are obvious: public benches, clean markets, improved roadways, controlled erosion. Businessmen prefer
to operate out of a place where honesty prevails and where services are reliable.

Source: ADR team Interviews with Mogovolos Consultative Council, Mogovolos, Nampula, 28 April 2004 and UNCDF/UNDP, Independent Programme Impact
Evaluation of the UNCDF Local Government Programme, Maputo, March 2004

Table 4.1 Number of Districts Covered by Applications of the Nampula Decentralization Model

Indicator 2003 2004 2005 2006

Number of districts 21 37 53 67
Percentage of total (128) 16.4% 28.9% 41.4% 52.3%

Source: Fidelx Pius Kulipossa,“Progress Towards the Implementation of Decentralization Policies in Mozambique,”
Maputo, 22 March 2004.
 4. HIV/AIDS

enshrined in a law, Act 8/2003 concerning the Local on-going public reform, each of the ministries are review-
Organs of the State, passed by parliament. ing how they function and few of these ‘functional analyses’
The practice of this law is now being studied in depth consider how reforming their ministry can make them serve
by the Ministry of State Administration (which is respon- citizens better. UNDP is contributing to the functional
sible for public service administration) for ways to incorpo- analysis of the Ministry of State Administration (public
rate its provisions on decentralization into the training and service) as well as providing continued support to the
deployment of civil servants. UNDP financially supports public sector management training institutes. UNDP is also
this review by the Ministry of State Administration and its funding an Interministerial Commission project to
application to training in public service training centres. mainstream HIV/AIDS training, e-governance training,
UNDP is also providing support to the civil service training monitoring and evaluation training and good governance
academies and contributes, as well, to programmes which throughout the public service.
seek to mainstream capacity building in HIV/AIDS
awareness, e-governance, monitoring and evaluation and PUBLIC SECTOR REFORM
governance issues.
Expected Outcome: Improved capacity to efficiently
Between 1997 and 2002, total resources committed to
and equitably provide public services
decentralization and public sector reform came to US$19.1
million. Of this amount, 31 percent has come from cost- The capacity to deliver public services has been enhanced in
sharing contributed by the United Kingdom, Ireland, a number of ministries where training has been provided.
Sweden, Portugal and Germany. Five out of the 22 ministries undertaking functional analy-
The UNCDF/UNDP district planning and financing ses (Agriculture, Health, Education, Finance and State
model has now been ‘mainstreamed’ throughout Administration and Planning ) have made progress, and
Mozambique. The government tracks progress towards one of these, State Administration, is supported by UNDP.
decentralization with a record of those districts covered by Corruption in the public service continues to be a 47
‘applications of the model.” Table 4.1 depicts this progress matter of concern. It is generally agreed that Mozambique’s
for 2003 and 2004 and shows targets set by the government success in controlling corruption has declined relative to
for two subsequent years. The UNCDF/UNDP other African countries since 1996.1 A pay reform proposal
programme has set in motion a process that began with no has recently been prepared by an interministerial commis-
coverage in 1997 and, in nine years, aspires to provide more sion on linking pay to performance in order to curtail the
than 50 percent coverage in all 128 districts. use of public resources for private gain, one leg in the
There is wide agreement on the programme’s consider- campaign against corruption. Another is strengthening the
able accomplishments. There is also agreement that justice sector’s capacity to inhibit corrupt behaviour. The
UNCDF/UNDP’s success is in spite of the government’s Ministry of Justice together with the Administrative Court,
‘gradualist’ approach to decentralization, which contributes the Supreme Court and the Attorney General’s Office has
to slow progress in institutionalizing local planning. The developed a plan to be implemented over the next three
law on Local Organs of the State stops short of allowing years to combat corruption, and the Ministry of Justice has
districts to conduct popular elections of its own officials in established an anti-corruption unit. However, none of the
the way that 33 municipalities now do. This creates the three projects under UNDP’s justice programme directly
anomalous situation of local elections taking place in some address themselves to fighting corruption.
parts of the country, mainly in urban areas, while the rural Decentralizing state power by strengthening local
areas continue to be governed by appointed officials, and government has the potential to mobilize public opinion for
there is very little in the law allowing the local bodies, such local level planning, to improve public services, generate
as the Consultative Councils set up by the Nampula income at the local level and reduce poverty in rural areas.
project, to make decisions on their own. The programme ranks high in policy effectiveness and in
Nor have the highly visible decentralization experi- creating an enabling policy framework for decentralization.
ments had much impact as yet on gearing the public UNDP/UNCDF’s interventions in promoting decentral-
sector – the 22 ministries – to serving the rural areas and ization have been catalytic in mobilizing government
district level population more effectively. As part of efforts to promote effective local governance and in
strengthening capacity at district level. UNDP has accom-

18
World Bank, Country Assistance Strategy for the Republic of Mozambique, 2003, Report No. 26747 –MOZ, p. 12
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

plished this by training district level officials and by increas- removing them from the Ministry of Justice and giving
ing their individual capacity as well as the institutional them independent status. The first legislative and presiden-
capacity of the district government. tial elections were held in 1994 and by the mid-1990s,
The results have been district level committees that are Mozambique had come to look much like a constitutional
capable of economic planning based on popular consulta- democracy with a market-based economy, and very few
tion, and these committees have spearheaded initiatives at traces remained of the centralized socialist economy from
district levels to formulate plans, present them to provincial the post-independence period.
and central levels, and in some cases to generate the revenue There is now institutional capacity to manage the elec-
for realizing some of these plans. It appears that the toral process and within parliament and a justice sector with
increased capacity and the performance of these popular functioning police, prisons and courts. The existence of the
district level planning bodies have shown the central institutions alone is an important contribution to
government the considerable value of decentralization and Mozambique and an achievement by UNDP but this does
the government, in turn, has taken ownership of the UNDP not mean that any of these institutions function well or that
model as its own. As noted above, the experiences of the they meet all the needs of the citizenry at a time when the
model have been enshrined in national legislation and the demands on these institutions are growing rapidly. The
model itself has been replicated both by the government emergence of a market economy sets individuals against one
and by other donors throughout the country. another in ways that were once, but are no longer, regulated
by the state. Individual entrepreneurs are now expected
SUPPORT TO DEMOCRATIC INSTITUTIONS to protect themselves against unjust behavior of others by
Expected Outcomes: contracting legal counsel and working through the justice
• Increased effectiveness of parliament to perform system, and such cases have multiplied in a poorly regulated
its functions commercial environment. The need for police protection,
48 • Improved confidence in the justice system litigation and prison facilities has expanded, but the services
• Reduction in court cases have not grown commensurately. Nonetheless, the key
• Proportion of the prison population in remand institutions to promote and protect the rule of law are in
Increased effectiveness of parliament to perform place and their capacity is increasing, but not fast enough to
its function keep pace with the growing demand.
In each of four interrelated government institutions—
As soon as political pluralism was guaranteed in
courts, prisons, police and parliament – UNDP has assisted
Mozambique’s 1990 constitution, a host of new parties
in the preparation of long-range strategic plans. It has also
emerged. An ambitious liberalization of the economy
provided facilities and training in each of these areas.
accompanied this step toward political democracy. The
UNDP has channeled funding for the construction of the
three branches of the government – executive, legislative
Centre for Legal and Judicial Training where aspiring court
and judicial – became legally separate. The courts and the
judges are trained (see Box 4.2). The prison component has
Attorney General’s office were made more impartial by
financed a study for prison reform for the government and

Box 4.2 UNDP/European Commission Partnership to Support Citizens’ Access to Justice

For nine years, UNDP has supported the promotion of the rule of law and strengthening of the justice sector by training police and
subsequently by rehabilitating prisons and providing facilities and resources for training judges. However, the number of new
judges entering the system barely keeps pace with the ever-increasing number of court cases requiring adjudication. One of the
consequences is that two-thirds of all inmates in prison are awaiting trial.The farther away from Maputo one travels, the greater the
number of prisoners detained without a trial and the greater the backlog of court cases awaiting trial. It is reported that district
courts hear no more than an average of four cases per month and in 128 districts, there are only three trained judges. UNDP has
recently partnered with the European Commission to take an innovative approach to expediting criminal justice. Under this initia-
tive, courts will be refurbished and judges trained to staff judicial offices at the district level in Nampula, Beira and Inhambane
provinces, where presently judicial services are minimal if they exist at all. Citizens’ forums and civil society groups will participate
by advising project management, by working in prisons, by conducting research on how best to improve the justice system’s capacity
to support human rights, women’s rights and to better meet the special needs of those living with HIV/AIDS.

Source: UNDP,“UNDP-EU Project Proposal Summary -Supporting Citizens Access to Justice,” Maputo 2004, The World Bank, Mozambique Legal and Judicial Sector
Assessment, Maputo, 2004
 4. HIV/AIDS

supported, in particular, the preparation of a new “Prison constituencies is impartial. It might have been better for the
Policy” as well as staff training on social issues. It has also project to align with the parliament’s Secretariat, the
financed sewage and water systems for selected prisons. The non-partisan administrative wing of the parliament, rather
police component has trained regular police officers, than the Commission on the Assembly of the Republic
assumed a portion of the costs for establishing an officer’s whose political interests have made it difficult for the project
police college and restored police stations. to meet its objectives. Discounting the value of this project
UNDP has also mobilized financing for technical assis- comes relatively easily, for the project has had difficulties,
tance to the electoral process, including civic education for and yet credit must be given to UNDP for maintaining
voters, training for Registration Brigades and updating support to parliamentary reform in a post-conflict situation
voter registries for municipal elections in 1998 and 2003 as where success is typically difficult to achieve.
well as for the legislative and presidential elections in 1994 Justice. A recent study of the perception of police
and 1998. Its support to parliament has strengthened the services in Mozambique has shown that the confidence in
administrative infrastructure of the Parliament’s Secretariat police has declined. Table 4.2 summarizes public views on
and given training to parliamentarians, notably in whether police services are better or worse now than they
constituent relations. were ten years ago. Respondents were asked first whether
Between 1997 and 2002, total resources committed to it was harder or easier to get fair treatment from police
the support for democratic institutions came to US$45.1 compared with ten years ago, and secondly whether it was
million. Of this amount, 67 percent has come from cost- harder or easier to get an officer to provide a service.
sharing contributed by Switzerland, Finland, Denmark, Courts. In 1999, throughout the country, there were
Sweden, Canada, European Commission, Belgium, Italy, 139,321 court cases awaiting trial and in that year, the
Netherlands, Spain, Germany, UNICEF, Portugal and courts had judged only 8.4 percent of them. The rest were
Norway. pending because there were either no judges or no facilities
or no support services to adjudicate the cases. In 2002, the 49
Parliament. A recent evaluation of UNDP’s parliamentary
support observed: “Relative to other parliaments in emerg- number of pending cases had risen to over 140,000. The
ing democracies and especially post-conflict environments, court system is not keeping up. The problem is most severe
Mozambique has accomplished more than many, moving at the provincial level where the backlog is growing, and the
rapidly to consolidating its legislative functions.”2 It is percentage of cases adjudicated each year is diminishing.
important to keep this observation in mind when assessing Table 4.3 reviews the decline in percentage of cases adjudi-
the results of the parliament project against the anticipated cated at the provincial level for the years 1999-2001.
outcome. UNDP’s support to the parliament has yielded so Prisons. The majority of individuals in prisons are
few concrete results – with the exception of the first-ever detainees awaiting trial. In 1999, there were 8,812 inmates
five-year Strategic Plan—and been beset with so many dif- in the prisons of the Ministry of Justice and Home Affairs
ficulties, that two of UNDP’s three contributing partners combined. Of these, 2,958, or 33 percent had received a
have decided to withdraw their support in the project’s next trial, while the other 66 percent were on remand. The
phase. The parliament project has been unable to ensure inability of the courts to keep up with rising crime rates
that its support for training members of parliament would suggest that the number of detainees without trial
in debating and amending bills or in consultation with has increased.3

Table 4.2 Public Perception of Police Services, Ten Years Ago and Now

Question: Is it harder or easier now to get: Harder Easier Don’t Know

Fair treatment 68.7% 21.1% 10.2%

An officer to provide a service 64.8% 23.5% 11.7%

Source: Eduarde Mondlane University, Population Studies Centre, Strategic Planning for the Police of Mozambique, Analysis of the Results of the External Survey, 2002.

19
Obede Baloi and Nancy Taylor, Consultants, Evaluation of MOZ/97/003, Assistance to the Mozambican Parliament, October 2001.
20
UNDP, The Prison System in Mozambique, Maputo, August 2000
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Table 4.3 Percentage of Pending Cases Adjudicated at the Provincial LevelYear 1999 2000 2001

Year 1999 2000 2001

% of pending cases adjudicated 16.5% 11.9% 7.6%

Source: UNDP,“The Justice System Past and Present,” Draft Paper, 2003

Overall, the results of UNDP’s governance programmes by a functioning system of police, courts and prisons, can
are not comforting. The figures demonstrate that in spite of reduce the exposure of enterprises to risk and can open up
considerable donor support, the obstacles to parliamentary opportunities for the private sector. Elections and parlia-
reform are great and the pressures on the justice system are ment put in place instruments of accountability which, when
growing faster than the capacity of police, courts and prisons effective, oblige the government to fulfill the expectations
to respond. These figures should not be taken, however, as that constituents have of these democratic institutions.
an indication of UNDP’s performance, or the performance UNDP’s support to these institutions has and is contribut-
of other donors in achieving results in the justice sector. ing positively to creating an enabling policy environment for
UNDP’s contribution has been to keep these figures from upholding the rule of law and democratic governance in the
being worse than they are. The results are symptomatic of country.
the difficulties in strengthening of politically-sensitive In each of these cases, UNDP’s contribution has
institutions where results are typically long in coming. involved training individuals and putting rules and strate-
Although UNDP is widely recognized for its initiative, gies in place to strengthen the capacity of institutions.
50 early on, to reform politically sensitive institutions such as Justice, police, prisons and parliament are all prey to
those associated with the justice sector, more recently, it has entrenched political interests and in some instances, these
lost the distinction of being a lead donor or even the most entrenched political interests have slowed down the inter-
innovative in the areas of justice reform, police training, nal reform that UNDP and other partners have tried to
prison reform and making courts more effective. The promote. Government ministries within the justice sector
DANIDA, the World Bank and the United States Agency have all endorsed the principles of reform while some of the
for International Development now all contribute more basic steps remain neglected. Amalgamating two different
extensively to the justice sector, and this makes their prison systems, enhancing police transparency and making
presence and influence in these areas more prominent than parliament more effective have all confronted obstacles.
that of UNDP. On the question of ownership, government has
UNDP’s diminishing profile in supporting justice, pris- endorsed UNDP’s activities in this programme area, but its
ons and police is due, in part, to the fact that UNDP does commitment has not actively extended these activities
not provide either the level of resources or the expertise that beyond UNDP’s own contribution nor has its financial
other donors do. The ADR team was also informed that backing increased.
this may be because UNDP has become less inclined to
engage with the government proactively, essentially to stand PROMOTING DIALOGUE
firm on the urgency of reforms and the directions these AND COMMUNICATION
should take. In the recent review of the strategic plan for
the justice sector, a number of UNDP’s partners had hoped Expected Outcome:
that the UNDP would stand up for a more coherent vision • Sustainable human development concepts reflected
and argue for a more rational distribution of services among in government policies and statements, effective
the various ministries. Instead, UNDP seemed to have mechanisms for management and coordination of
taken a back seat. As UNDP’s influence in this sector development assistance in place.
declines, its capacity to contribute to these sectors is likely Mozambique’s 1990 constitution guarantees the right to
to diminish. freedom of expression and freedom of the press. Subsequent
Support to key democratic institutions strengthens legislation, the Press Law, set forward the conditions for
government commitment to policies which can have ensuring an independent media. UNDP’s support of the
considerable economic returns. Legal protection provided UNESCO-implemented media project – Strengthening
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Democracy and Governance through the Development of of women in radio journalism.

the Media in Mozambique – realizes crucial aspects of this The ICT Project is more recent, having started formal-
law. Since 1998, UNDP’s media project has provided tech- ly in December 2002. Its objective is to promote uses of
nical backing for print and radio media, supported their information and communication technology in government
administration and financed eight community radio and civil societies, to expand the ICT infrastructure
stations in remote parts of the country which broadcast in throughout the country and incorporate ICT usage as a
local languages and which actively solicit the participation strategy for meeting PARPA goals. If it is to do this, the
of women and youth. promotion of ICT must serve rural, remote areas as well as
Like the media, digital communication facilities were urban centres. The difficulty is that 70 percent of all ICT
virtually non-existent after the war in 1992, and absent in capacity is in Maputo and therefore unlikely to serve the
most of the provinces outside of Maputo. Recently, the more than 70 percent of the population in poverty outside
Government of Mozambique has developed an explicit Maputo. The project has sought to balance this urban
Information and Communication Technology (ICT) ICT concentration by establishing provincial centres in Tete and
Policy for promoting information and communication Inhambane where computers are installed and training is
technology and started the ICT Commission and the ICT given locally in provincial centres.
Advisory Group to coordinate policy. Between 1997 and 2002, total resources committed to
During the first phase of the media project, the key the support for information and communication technology
activity was to make affordable paper available to newspapers have amounted to US$5.1 million. Core UNDP resources
to enable them to use their modest resources for purchasing committed to information and communication technology
equipment. During a second phase, UNDP’s support constitute less than four percent of this amount. Of the
focused on radio, and with the collaboration of the Institute total, 85 percent has come from cost-sharing contributed by
for Social Communication and Catholic Radio Stations, Finland, Ireland, Denmark, Sweden, Norway, Portugal and
the project assembled a National Community Radio the Markle Foundation. 51
Coordination Group which has directed the foundation of All three of the projects in this area are of modest
eight community radio stations broadcasting in local scope. The media project has supported only eight commu-
vernaculars. These eight stations have experimented with nity radio stations in a country of many hundreds of
disseminating listeners’ views on issues ranging from public communities. It has established two provincial ICT centres,
health to public administration and, in particularly, have each with 20 computers in a country where, at the most,
disseminated information on HIV/AIDS issues in local one person in 250 has ever used a computer. Taken
languages (see Box 4.6.). They have also been vehicles for individually, the outcomes of these two projects cannot be
promoting social equity by incorporating issues of concern substantial. They do have the potential for more extended
to women in their programming and also by encouraging, outcomes, and evidence of support by the government in
through research, advocacy and practice, the participation both these areas indicates nascent government ownership.

Box 4.3 Radio and Democracy

Beginning in 1998 UNESCO, UNDP and donor partners shifted the focus of their project, “Strengthening Democracy and
Governance through the Development of the Media in Mozambique,” from financial support to print media in provincial capitals
to establishing community radio stations in the rural areas. It was in these rural areas that radio realized its potential for mobilizing
public opinion.The community radios broadcast in local languages, and this gives many listeners access to information they would
otherwise not have. Nationwide, fewer than 50 percent of the population over 15 are literate or speak Portuguese, and this figure
would be substantially less in remote radio locations. The radios have become the focus for community information, for conveying
health information, for publicly addressing women’s concern and for giving air time to local culture. As independent media, the
radios air political messages, balancing sides and aspiring to unbiased programming. More importantly, the radios have become the
place where HIV/AIDS issues are discussed, some of them personal, some of them political and the consequence is to raise aware-
ness on issues that existing institutional resources do not reach in the campaign to fight HIV/AIDS.

Source: ADR team on site interviews with project staff , April-may 2004 and UNDP/UNESCO Project document “ Strengthening Democracy and Governance through
the Development of the Media in Mozambique” (MOZ/96/004)
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Should this occur, radio and other communication The government adopted a comprehensive approach to
technologies might serve as vehicles for mobilizing support poverty reduction in 2001, the Action Plan for the
for policies that promote equity and reduce poverty. Reduction of Absolute Poverty which covers the period
The National Human Development Reports are valu- 2000-2004. The PARPA has succeeded in focusing the
able sources of information for portraying the statistical efforts of both donors and government to reducing poverty
dimensions of both the education gap and the gender gap levels. It has laid the foundation for an agreement among
and for influencing government policy in these areas. One donor partners themselves and more importantly between
of their assets is the disaggregation of data by provinces, donor partners and government for setting priorities in
serving to profile the considerable variation by region and poverty alleviation. This agreement has been a catalyst in
by rural location. The calculation of the Human the emergence of a budget support group of donors who
Development Index separately for separate provinces illus- work through the central government to implement the
trates the extreme variation among them, for example the objectives and targets expressed in the PARPA. The gov-
elevated index in Maputo City (0.622) and the far lower ernment, for its part, has agreed with the donors to make a
index in other poorer provinces such as Zambezia (0.202). substantial commitment to the PARPA priority areas,
which was 68.1 percent of total public expenditure in 2000,
Media, publications and digital technology are all
64.3 percent in 2001 and 65 percent in 2002. This is only
promising vehicles for promoting an enabling policy
marginally short of the amount the government agreed with
environment through support for open debate on policy
donors to spend on PARPA priority areas.
alternatives and strategies on how to achieve pro-poor
growth. The messages of radio stations, the National During the period under review, UNDP has undertak-
Human Development Reports and a more accessible en four different sets of interventions under the rubric of
digital technology can reach policy makers and their poverty reduction: microfinance, enterprise promotion,
constituents alike and potentially contribute to creating a community-level income generation, and the creation of a
52 more open and consultative policy environment. facility within the Ministry of Planning and Finance to
mobilize the views of civil society on the government’s
Although the operation of community radios and the
poverty reduction programme. On the upstream policy
ICT centres are in their initial years of operation, they have
front and advocacy, UNDP has supported the development
both received unequivocal backing from the government
of Agenda 2025 and produced a number of National
and donors have readily partnered with UNDP in provid-
Human Development Reports (NHDRs), significantly the
ing financial support. Efforts have been made within the
NHDR on gender which received a special award in 2001.
radio stations and the ICT centres to increase capacity,
to create viable, sustainable organizations and received Microfinance. One of four microfinance initiatives
government support for doing so. Increased government provides institutional support to a selection of microfinance
ownership can be expected. institutions. Another disseminates information and train-
ing for policy makers and opinion leaders on microfinance
POVERTY REDUCTION policy directions, and another establishes a number of small
savings groups, primarily in urban areas, to mobilize savings
Expected Outcomes: and at the same time to discuss the threat of HIV/AIDS. A
• Adoption by the country of national targets for final one, now terminated, has been a community develop-
reduction of human and income poverty disaggregated ment scheme that included a microfinance component.
by gender. Poverty dimension explicitly addressed with Among the three active microfinance initiatives, none
macro-policy and planning instruments directly serves the rural areas.
• Participatory poverty assessment exercises carried out A study of microfinance in Mozambique in mid-2001
in selected communities to support development of reported the existence of 30 microfinance banks, credit
national poverty reduction targets. cooperatives and credit schemes, a 20 percent increase over
• Enactment of legislation on use rights to productive 25 microfinance institutions operating in 1998. UNDP has
assets for poor men and women contributed support to three of them. The number of
• Number of registered bank and non-bank financial microfinance clients country-wide has increased. It was
institutions with lending windows, specifically estimated at 50,000 in 2004, meeting the target of 40,000
targeting the poor set by the UNDP SRF/ROAR of 2002. Data is available for
• Increased number of clients and proportion of women the three microfinance institutions assisted through the
using microfinance services targets. UNDP MicroStart project. Clients in all three institutions
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

rose from 4,886 in 2001 to 12,472 in 2004, an increase of been formed, 55 projects have been supported of which 39
155 percent. The proportion of women has risen modestly generate income. Fifteen of these income generation
from 59 percent to 60 percent of the total clientele. schemes have so far honored their obligation to use the
UNDP’s contribution has been to increase the numbers of income from their own businesses to assist other startup
microfinance clientele. businesses in their communities.
However, they are a drop in the bucket. The estimated Poverty Observatory. On the upstream policy front,
50,000 clients that microfinance schemes have served over UNDP presently provides resources for the Ministry of
the past decade represent less than 0.3 percent of the pop- Planning and Finance to establish a Poverty Observatory in
ulation, or 1 in 400. In a country where most of the popu- order to assemble the views of civil society in all provinces
lation is rural, and most of the poor are concentrated in the on the country’s progress toward meeting PARPA targets.
rural areas, the large majority of these 50,000 clients have This is the only one of UNDP’s initiatives that directly
been in the urban or peri-urban areas. Repayment rates are reinforces the national level campaign to reduce poverty
low (about half ), and interest rates are high (30-40 per- within the context of PARPA. The other three are micro-
cent). Only one of UNDP’s three on-going projects direct- projects with micro-consequences.
ly supports the delivery of credit, and the estimated number Between 1997 and 2002, total resources committed to
of clients assisted in this project is less than 15,000. There the support for poverty reduction have amounted to
is considerable debate about best practices and efforts to US$7.3 million. Of this amount, 10 percent has come from
promote appropriate legislation, but there are few innovative cost sharing contributed by Portugal, Netherlands, Italy,
schemes for reaching remote villages with a combination of Sweden, Australia, Africa Development Fund.
small loans in tandem with income generation opportunities.
UNDP’s activities have contributed to three of the six
Enterprise Promotion. One of two enterprise promo- of the original expected outcomes: the adoption of national
tion projects has provided training for 341 individuals, most targets for reduction of human and income poverty, partic-
of whom were entrepreneurs or potential businessmen and ipatory poverty assessment exercises, and increased number 53
represented 238 different businesses or potential businesses. of clients utilizing microfinance. Setting comprehensive
There are an estimated 28,800 private businesses in targets has been a conspicuous outcome of the government-
Mozambique of which 9 percent can be considered small led PARPA. It is the government’s principal target setting
enterprises, and interventions in this area may have reached exercise to which all others refer. The Performance
a small proportion of these. The comparatively small number Assessment Framework (PAF) that guides the annual
of small to medium enterprises in Mozambique is an indica- review by the budget support donor group, Programme Aid
tion of the difficult bureaucratic hurdles small businesses Partners follows the PARPA, and the UNDP participates
have to surmount in Mozambique. In a recent World Bank only as an observer in this process.
study of 130 countries, Mozambique ranked near the bot-
When the UNDP-supported Poverty Observatory is
tom in nearly every category of bureaucratic regulation, and
fully operational, it will coordinate the collection of infor-
in an aggregate index, Mozambique was third from last.4
mation against targets set by civil society though these
The project offered virtually no follow-up assistance in Poverty Observatory indicators differ only minimally from
overcoming these hurdles, or as a critical evaluation of the those in the PARPA. The UNDP has contributed to the
project observed, it offered very little guidance to small formation of the Poverty Observatory and coordinates
businesses in accessing startup capital (see Box 4.3).5 some of the activities, but UNDP’s influence on setting
Another enterprise promotion scheme continues a previous national targets has been, and continues to be modest.
initiative to set up provincial level Local Economic UNDP’s contribution to participatory poverty assessment
Development Agencies, to be situated in Zambezia and exercises is likewise modest, although the Poverty
Nampula. However, the concrete outcomes are not well Observatory may choose to adopt participatory approaches
articulated in the available documentation. in the future.
Income Generation. A third component of this group The broader question, apart from UNDP’s perform-
of four is a conventional community development project, ance in meeting the expected outcomes, is whether a diverse
now in its second phase, which has provided either income set of individual projects—enterprise promotion, institu-
generation facilities or social infrastructure such as schools tional and policy support for microfinance, building
and clinics. Over a hundred community associations have

4
World Bank, Doing Business in 2004, Understanding Regulation, Washington: 2004
5
Arlete Patel and James MacDade,“Enterprise Mozambique, Mid-Term Evaluation,” Prepared for UNDP Maputo, Maputo: December 2003, p. 23
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

community-based organizations and facilitating the expres- countries (25 percent in Zimbabwe, 20 percent in South
sion of civil society views on poverty reduction – constitutes Africa), and this is probably due to the prolonged civil war
a viable strategy for contributing to the reduction of the in Mozambique that for years reduced foreign travel. Now
incidence of poverty in Mozambique. With the exception that travel and trade have resumed, there is greater risk of
of the Poverty Observatory, these projects seek to provide contagion. As expected, the highest number of cases is
capital or advice to a diverse range of small enterprises, found among the four main transportation corridors where
located in dispersed locations and using different modalities. population movement is most common. At the present rate
Only one of these projects reaches rural areas where the of increase, the percentage of the population infected is
incidence of poverty is most acute. These interventions may expected to reach 16.3 percent in 2010 and, by that time,
have modest practical value for the small number of target the life expectancy may fall to less than 40 years.
groups but have limited potential for creating an enabling Since the first case of HIV/AIDS in 1986, the govern-
policy environment for poverty reduction in Mozambique. ment’s response has been to contain the spread. NGOs have
Overall, with one or two exceptions, the capacity of the emerged which are likewise committed to providing servic-
institutions in which these projects have invested has not es and policy direction in combating HIV/AIDS. In 1997,
been sufficient to ensure their sustainability. UNDP supported the government to launch a programme
The government may occasionally showcase some of to deal with sexually transmitted diseases and HIV/AIDS,
the community-level activities that UNDP is supporting followed two years later by support to the elaboration of a
but for the most part, these are isolated activities which do National Strategic Plan. The National Strategic Plan
not engender scaling up and ownership at the national level. (NSP) included strategies for prevention, treating sexually
Most of these activities exemplify what has been referred to transmitted diseases and putting in place bio-safety meas-
as the “project approach” to development, isolated endeavors ures such as blood supply screening. The National Strategic
with localized or modest impact. The one exception may be Plan is now under revision to take account of changing
54 UNDP’s MicroStart project’s support to microfinance dimensions of the problem, notably the provision of anti-
institutions, though these small banks are limited to urban retroviral drugs.
and peri-urban areas and attract consumers who already Since 1997, three UNDP projects have provided
have modest resources. The challenge is to create a microfi- resources for strengthening three different institutions
nance policy that combines loans with income generation aimed at combating the threat of HIV/AIDS. The first,
skills which are made accessible to large numbers of rural and the one with the greatest profile, has supported the
clients. UNDP projects and programmes under the rubric establishment of the National AIDS Council by funding
of poverty reduction are unlikely, individually and as a some of its administrative costs as well as some of its pro-
whole, to raise income levels among much of the population grammes to educate government, to establish a nation-wide
or to reduce national poverty to any significant degree. presence and to build a network of NGOs whose efforts are
coordinated by this National AIDS Council. UNDP’s sup-
LIMITING THE SPREAD OF HIV/AIDS port for elaborating a first and now an updated National
Strategic Plan is part of this effort.
Expected Outcomes: A second project supports the National AIDS Control
• Institutional capacity built to plan and implement Programme within the Ministry of Health by strengthen-
multi-sectoral strategies to limit ing provincial plans to increase awareness of government
• the spread of HIV/AIDs and mitigate its social and and by mobilizing communities in various ways to prevent
economic impact the spread of infection. A third project funds training in
• Increased proportion of the population, disaggregated anti-retroviral therapy as well as a portion of the adminis-
by gender, with access to information and support trative costs for the AIDS Commission at the Maputo
services targeting HIV/AIDS Central Hospital, which is likewise a part of the Ministry of
• Participatory and multi-institutional coordinating Health (see Box 4.4.).
mechanisms operating effectively
Between 1997 and 2002, total resources committed to
The HIV/AIDS prevalence rate among adults (15-49 the support for limiting the spread of HIV/AIDS have
years of age) was 3.3 percent in 1992. By the year 2000 the amounted to US$3.3 million. This is one-tenth of the total
prevalence rate for HIV/AIDS had increased to 12.2 committed to demining. Of this amount, 8 percent has
percent, and in 2004 it stands at 14.8 percent. come from cost-sharing contributed by the United
Mozambique’s infection rate is less than in surrounding
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Kingdom, WHO, UNFPA and UNAIDS. by the government, it seems unlikely that the UNDP objec-
After a good initial start, the momentum of the cam- tive of ensuring that over 90 percent of the population are
paign to combat HIV/AIDS appears to have stalled well informed about HIV/AIDS will be met by 2005.
momentarily, and the reason suggested by some observers is UNDP’s support has enhanced the administrative and
the absence of a well-focused programme within the prin- technical capacity of the National AIDS Council staff and
cipal institution bearing responsibility for these activities. sought to extend its presence throughout the country. It has
This is the National AIDS Council, founded and financed trained medical and paramedical personnel in dealing with
with UNDP resources. Government spending on infection, using anti-retroviral medications and in coping
HIV/AIDS care and prevention continues to rise, reaching with opportunistic infections. It has supported actions to
US$3.6 million in 2003, but this is still only 70 percent of lower the rate of transmission of the infection from mother
the US$5 million that the government has committed to to child. Whether these measures and others will achieve
spend, and this shortfall probably explains why the govern- UNDP’s target of reaching 90 percent of the population
ment has not met its targets in many areas. with information and services depends on the capacity of
One of these targets, on which there is data, is the the National AIDS Council, specifically on whether the
number of condoms distributed by the Ministry of Health, National AIDS Council can complete the revision of the
a rough but useful indication of the commitment of the second National Strategic Plan shortly and put it into prac-
government and the awareness of the population of the tice. It also depends on whether it can maintain adequate
AIDS crisis. Table 4.4 shows the number of condoms in-house expertise. Perhaps more importantly it depends on
distributed throughout the country between 1995 and whether the National AIDS Council can provide appropriate
2001. The government has not met its PARPA target of levels of funding and support for civil society organizations
distributing 1.5 million condoms in any of the last six years. that are capable of serving on the front line.
Because of organizational inefficiencies within the
National AIDS Council and a lower financial commitment 55

Box 4.4. Traditional healers and the fight against HIV/AIDS

By 2002, many of the obstacles of providing anti-retrovirals had been surmounted. As the new drugs became available in
Mozambique, UNDP responded to the need for training in managing these drugs under a project,“Capacity Building and Advocacy
on HIV/AIDS for the Health Sector.”Training began in 2002 and initially addressed only the management of anti-retrovirals by health
professionals, but once they had begun, the training programmes introduced a new and innovative twist. In addition to health
professionals from throughout the country, the training programme began to invite traditional healers since the majority of
patients do not have regular access to medical staff and rely on local doctors. New teaching techniques were incorporated into the
training programmes adapted for traditional healers, including drama and story-telling. Traditional healers wanted to learn more.
The training programmes expanded their coverage beyond the use of anti-retrovirals to include how to manage opportunistic
infections, how to prevent the spread of infections in order to dispel some mistaken ideas about transmission. Even more impor-
tant, the training programmes stressed the human rights of those living with HIV/AIDS. Over 120 traditional healers have been
trained so far, nearly a fifth of all those attending the programmes. The project has reached its mid-point and already the impact of
engaging traditional healers as both healers and advocates has been amply demonstrated.

Source: ADR team on site interviews with project staff, April-May 2004 , Maputo and UNDP Project Document,“Capacity Building and Advocacy on HIV/AIDS for the
Health Sector’ (MOZ/01/011)

Table 4.4 Number of Condoms Distributed by the Ministry of Health 1996-2001 (‘000,000s)

Indicator 1996 1997 1998 1999 2000 2001

Condoms distributed .65 1.22 1.23 .62 .60 .82

Source: Ministry of Planning and Finance, PARPA Implementation Report 2001, Maputo 2003
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

In supporting the production of two successive strate- among these three areas of vulnerability, the Vulnerability
gic plans, UNDP has contributed to an improved policy Reduction Strategy also described a mechanism for key UN
framework for addressing the pandemic and for limiting the agencies to bring about a convergence of their individual
spread of HIV/AIDS. This has been a catalytic and crucial efforts, through joint programming, to address poverty
step in building the capacity of key organizations, especially reduction by diminishing these paramount threats to
the National AIDS Council (NAC) which is the principal household well being.
institution charged with managing donor funds, long-range The key UN Agencies have not yet reached an accord
planning, advocacy and outreach. on how best to implement this programme. UNDP, howev-
Evidence gathered through ADR stakeholder consul- er, continues to refine its Vulnerability Reduction Strategy,
tations suggests that the NAC may be overwhelmed and works closely with the government’s Vulnerability
that capacity in the organization has not increased to meet Assessment Committee to produce a detailed vulnerability
the challenge, especially of outreach.6 Some stakeholders are status report on a regular basis, and uses the Vulnerability
concerned that leadership of the NAC has been ineffective.7 Reduction Strategy to guide its own evolving response to
Still others point out that while the government supports disaster mitigation.
the organization in principle, it has not provided sufficient Demining. Large numbers of landmines jeopardize
funding and it has not taken ownership of the programme to human access to productive resources. A Mozambique
the extent that is required. Clearly, awareness of the dimen- Landmine Impact Survey (MLIS) estimated that more
sions of the threat of HIV/AIDS has grown quickly and than 10 percent of the population, covering all 10 provinces,
policies have emerged to respond appropriately, and this is are facing direct threats to their lives and livelihoods. In
a singular accomplishment, but government commitment total, more than 1.7 million people are directly affected by
will have to increase before institutions in place have the the presence of landmines. Agricultural land is out of
capacity to respond more effectively. production, roads are unusable and access to water points is
56 obstructed.
SUPPORT TO VULNERABILITY REDUCTION: UNDP support for demining is channeled through two
DEMINING AND DISASTER MANAGEMENT very different organizations, one acting as a national coordi-
nator for implementing a country-wide demining strategy
Expected Outcome: Policy and planning framework
and a second, an NGO, carrying out field-level humanitarian
of the country elaborated which incorporates
demining. In principle, these two initiatives at two different
a comprehensive approach to reduction of human
levels complement each other. The first organization, the
and income poverty taking account of the Millennium
National Demining Institute under the Ministry of Foreign
Development Goals
Affairs, aims to provide overarching coordination that
Mozambique is prone to adverse climatic conditions such will establish priorities through on-going surveys and,
as droughts, floods and cyclones. Frequent natural disasters based on these surveys, allocate responsibilities according to
and land mines combine to place Mozambique in a state of these priorities.
perpetual vulnerability. Their common thread is the chal- The National Demining Institute is expected to set
lenge they pose, individually and collectively, to personal standards as well as priorities and to coordinate the efforts
security in Mozambique, and it is because of this of a number of different demining organizations each funded
common thread that the United Nations Development by different donors. Support to the second organization, the
Assistance Framework (UNDAF) for 2002-2006, has Accelerated Demining Programme, has the more concrete
grouped these challenges along with the threat of objective of transforming this indigenous demining organ-
HIV/AIDS under its first of four Strategic Objectives: To ization into a national NGO in order to increase its role
Promote the Fulfillment of the Right to Personal Security. and competence among the more than 10 humanitarian
UNDP prepared a comprehensive document – the and commercial demining organizations operating in
Vulnerability Reduction Strategy—in the course of 2003 Mozambique.
detailing a strategy for addressing these three threats: disas- Natural Disasters. Natural disasters such as floods and
ter management (including landmines), the threat of prolonged droughts occur frequently and occasionally in
HIV/AIDS and food insecurity. In showing the linkage tandem. In 2000 and 2001, large areas of southern and cen-

6
Programme Aid Partners (PAP) and the Government of Mozambique, Aide-Memoire of the Joint Review, Maputo: April 2004.
7
Gregorio Firmino, and Amilcar Tivane, In Depth Study in Governance Report, a report commissioned by UNDP-Mozambique in support of the Assessment of Development Results
team mission, Maputo: 2004
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

tral Mozambique were affected by floods resulting in inter- The ultimate outcome measure for the two demining
nal displacement, loss of life and destruction of property. At organizations supported by UNDP is the pace of landmine
the same time, and throughout 2001-2003, below average removal and the consequences for the safety and well-being
rainfall in areas contiguous to flooded regions also affected of the population. Crucial to achieving this outcome is the
agricultural production resulting in poor crop production capacity of one of the supported organizations – the
and loss of income. It was in these areas most affected by National Demining Institute – to manage demining at a
floods and drought that rapid rises in HIV/AIDS infection country level, set priorities and to review these priorities
occurred, and the combined effect of illness, economic carefully. This capacity has recently been questioned follow-
recession and repeated natural disasters have created crisis ing a misuse of funds inside this organization. Equally cru-
conditions (see Box 4.5.). The simultaneous occurrence of cial is the capacity of the implementing organizations, such
these threats has demonstrated their interlinkages and as the Accelerated Demining Programme, to carry out the
demonstrated also the need for a common strategy to removal of landmines efficiently and effectively
address them. The government has recently prepared a The pace of removal varies from year to year. The area
National Contingency Plan, which has reviewed the threat cleared in 2003 was 22 percent less than the area cleared in
of natural disasters and has assembled data demonstrating the previous year. Typically, progress is measured by the
that, as a result, over 660,000 people are presently at risk of number of villages rendered free of landmine impact, or by
insufficient food resources. a reduction in estimated population affected, or by a reduc-
UNDP’s support to the Disaster Management tion in the affected areas. Table 4.5 shows some ‘guessti-
Institute (INGC) has attempted to strengthen the govern- mates’ at what this progress has been over a two-year period
ment’s ability to respond to floods and droughts and their covering 2002 and 2003 based on villages cleared, people
humanitarian consequences. The Disaster Management spared and areas cleared. The clearance rates show overall
Institute was created in 1999 for this purpose, and the positive results, but a closer look at the figures shows how
UNDP project has mobilized support to put the institute difficult it is to draw straightforward conclusions. The 57
on a firm footing. clearance rates shown for ‘villages’ suggest the rosy possibility
Between 1997 and 2002, total resources committed of total clearance being completed in five years. But the
to the support for demining and disaster mitigation have clearance rates shown for ‘area affected’ suggest the grim-
amounted to US$31.0 million. Resources committed mer possibility of total clearance requiring more than a
to demining constitute 98.5 percent of this amount. Of hundred years. Landmine removal is an inexact science
this total, 17 percent has come from cost-sharing since it is difficult to have precise figures on areas and peo-
contributed by the Japan, USA, UNMAS, Denmark, ple affected. When the National Demining Institute (IND)
Ireland, Canada and Australia. sets its target for making Mozambique ‘mine impact free’ by

Box 4.5 Weather and malnutrition in Mozambique

Mozambique’s vulnerability to natural disasters, cyclones, floods and droughts, has made disaster preparedness in Mozambique an
essential element in the fight against poverty. The government must be prepared to respond quickly, families need to be evacuat-
ed where possible and food stocks must be available.The threat of bad weather is so severe that the UN Secretary General has given
it special attention in a report issued by the High Level Committee on Programmes (HLCP), “Organizing the UN Response to the
Triple Threat of Food Insecurity, Weakened Capacity for Governance and AIDS, Particularly in Southern and Eastern Africa.” UNDP’s
project to support the Institute of Disaster Management (INGC) has attempted to address this threat. Bad weather translates into
food insecurity and food insecurity into hunger and poverty. A sequence of Vulnerability Assessment Committee (VACs) surveys
between November 2002 and June 2003 covering a period of floods and droughts have shown the consequences of repeated
occurrences of damaging weather on chronic malnutrition in four of the most vulnerable provinces of Mozambique – Gaza, Tete,
Inhambane and Maputo.The first of these surveys was done during a lean period while the last was done after a harvest period, and
the results are surprising because there should have been an improvement. There was not. Where violent weather is a recurrent
phenomenon, vulnerability is a constant. More than one in three children suffer from chronic malnutrition, based on a standard ratio
between height and age, and there has been virtually no change between the first and second surveys. High rates of chronic mal-
nutrition contribute to high rates of mortality, and this partially explains that in the surveyed areas, the persistently high rate of one
in four child deaths shows little likelihood of improvement over the long run.6
1
UNICEF, Summary of the Additional Analysis of the Demographic, Nutrition and Health Findings from the Multisectoral Assessment of the Impact of the Humanitarian
Situation on the Lies of Mozambican Children and Women, Maputo, November 2003
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

2012, it is difficult to know exactly what this entails. And response to the floods of 2001/2002 where it was able to
since demining is by nature inefficient and expensive (the through the UN Resident coordinator system work with
average cost for removing one landmine or unexploded national institutions and authorities and the UN system to
ordinance is US$770), the implications are considerable. mobilize a total of US $450 million for this emergency. The
UNDP’s support for natural disaster reduction is a simi- challenge is to bring the institutional capacity to the level of
lar story of support for an institution where there is potential the early warning systems that have been formulated.
but where a lack of transparency and competent leadership
have weakened the instituiton’s capacity to deliver results. CONCLUSION
The National Institute of Disaster Management has suc- Four key areas emerge as UNDP’s most significant
ceeded in making national leaders aware of the best ways to contributions to development results in Mozambique
respond to emergencies. Disaster management legislation during the period under review: emergency response and
has been drafted. Efforts of the National Institute of post-conflict recovery, local governance and decentraliza-
Disaster Management were curtailed when a major funding tion, support to institutional and capacity building in
partner withdrew and, partially as a consequence, a nation- demining, disaster preparedness, the National AIDS
al coordinator for the Institute was never appointed. The Council and the justice sector and providing catalytic inter-
disaster management legislation was never passed by parlia- ventions in these areas and for all the electoral processes
ment. A mid-term evaluation of the Disaster Management since 1994. UNCDF/UNDP Mozambique scores highly
Institute criticized the institute for its leadership and its with the performance of what has become its flagship
failure to accomplish even a minimum of its objectives. programme in decentralization and strengthening local
Given Mozambique’s legacy of war, both demining and government. Its model for training district level officials is
disaster management appear to be important components being replicated throughout the country and scaling-up has
of a viable poverty reduction policy, and UNDP’s support to occurred rapidly. Here is an instance in which UNDP has
58 both of these programme areas have kept the threat of leveraged its core resources effectively to scale up successes
mines and natural disasters at the forefront of national pol- for country-wide application.
icy debates. Their overall policy effectiveness is, however, However, programmes in other areas did not perform
open to question. Whether the financial commitments to as well. None of the programme areas have had the same
demining – over US$30 million – is commensurate with its impact on policy, nor have they built capacity to the same
importance is debatable especially as demining receives 10 degree or elicited the same degree of government owner-
times the financing that the fight against HIV/AIDS ship. The somewhat less impressive results from support to
receives. key democratic institutions such as parliament, prisons and
Government’s financial commitment to these pro- police is understandable, given the sensitive nature of these
grammes supported by UNDP, on the other hand, is mini- institutions and the entrenched interests that reform must
mal and is likely to remain so, an indication that UNDP’s overcome to make these institutions better serve the public
activities in these programme areas have not led to strong interest. Because of this and in spite of the modest record of
national ownership. UNDP’s key contributions in this area results, the ADR team regarded results in these institutions
have been to build the institutions and create the confi- as positive rather than negative.
dence among donors to support these institutions and catal- The same might be said for UNDP’s support to limit
yse a systemic approach to the reduction of and response to the spread of HIV/AIDS. The capacity of institutions created
vulnerability to natural disasters. While capacity in these to stem the proliferation of infection and its consequences
institutions remains weak, UNDP has a demonstrated needs to improve in order to more effectively increase
comparative advantage in this area as evidenced by the awareness, disseminate information about prevention,

Table 4.5 Trends in Landmine Removal for 2002 and 2003

Indicator 2002 2003 % change

Villages affected 719 583 -19%

Population affected 1.39 million 1.01 million -27%
Area affected 5.35 million m2 5.27 million m2 -1%

Source: Ministry of Foreign Affairs and Cooperation, National Demining Institute, Annual Report: Mine Action Programme 2003, Maputo 2004
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

provide treatment and assist those living with HIV/AIDS. government that UNDP may not have the substantive capac-
The results must nevertheless be judged positive, given the ities or the competitive edge, comparable to other partners, to
magnitude of the task and institutional requirements to meet the challenges of providing credible support.
accomplish the task. The purpose of this assessment is less to render
Results in the poverty reduction programme area and judgment on individual projects and past performance than
attempts at gender mainstreaming are less positive. Despite to give direction for shaping, or re-shaping the country pro-
pronouncement in the CCFs, programme results across the gramme and improving UNDP’s performance as a whole.
board indicate that UNDP has not succeeded in main- There are areas on which UNDP should capitalize and areas
streaming gender equality in its programmes. The poverty where UNDP exposure could justifiably be discontinued in
reduction projects are, with few exceptions, localized and the interests of giving the programme more coherence and
isolated with modest promise of scaling up or replication. imbuing the programme with a more compelling vision.
One exception is UNDP’s support to the government’s
Poverty Observatory, which has the potential to improve an
understanding of the level and persistence of poverty. This
remains to be demonstrated.
On the matter of demining and disaster mitigation,
questions have been raised about their institutional
effectiveness and, in the case of demining, whether the level
of resource commitment is commensurate with its overall
importance.
It is important to underline that limited institutional
and administrative capacity in most of government’s key
institutions is also a factor that inhibits and affects the 59
outcomes of UNDP’s and indeed that of other development
partner’s support. In spite of considerable UNDP support,
the National AIDS Council has difficulty managing the
considerable resources received from donors. Institutional
weakness and lack of transparency have affected the
performance in disaster mitigation and demining and led
to withdrawal of some of UNDP’s key partners in these
programmes.
However, UNDP has also been plagued by charges of
poor reporting by most of its cost-sharing partners. Its
reporting has become slower, and UNDP is increasingly
perceived as overly bureaucratic and inefficient. There is
also a widely shared perception among most donors that the
expertise within UNDP may be neither sufficient to provide
leadership in key policy areas, nor is it sufficient to command
other donors’ attention or resources. While government
values UNDP’s neutrality and considers UNDP as more of a
partner than a donor, there is also the perception within
COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

5 Future Directions:
Lessons and
Recommendations
This evaluation has assessed UNDP’s performance and its contributions to
development results in Mozambique. The ADR also analyzed whether
UNDP is strategically positioned to effectively contribute to emerging chal-
lenges and the country’s development effectiveness. This concluding chapter
summarizes the key lessons emerging from this evaluation and concludes with
recommendations.
During the period under review, UNDP’s programmes have straddled
many themes. Programme orientation during the 1993-1997 phase was pri-
marily a response to the state of emergency. UNDP concentrated its efforts on
supporting rehabilitation programmes and forging a strong partnership with
government. From 1997-2001, UNDP focused on providing development
assistance to government by mobilizing considerable resources for priority
areas, creating key institutions and engendering enabling conditions for other
partners to make long-term commitments to Mozambique. 61

In the third phase from 2001 to the present, UNDP has focused on long-
term development goals but has not yet made an effective and complete tran-
sition to post-conflict strategies. It faces a changed development situation
where Mozambique’s needs have changed and alternative aid modalities such
as direct budget support are in place. UNDP seems to lack the substantive
expertise and capacities required in a more complex and competitive donor
environment and is experiencing a decline in its core and non-core resources.
The balance sheet on UNDP’s performance and its overall strategic posi-
tioning and contribution to development results in Mozambique is mixed. On
programme performance, the UNDP has done the right things in some areas
but did not sufficiently anticipate change and seize opportunities in others.
UNDP is universally perceived to have had an excellent record of meeting the
needs of the country in the post-conflict phase and contributing to sustainable
peace. Key areas of its contribution have included building government insti-
tutions, election assistance and creation of the Demining Institute, the
Disaster Preparedness Institute and the National AIDS Council. More
recently, UNDP has been strongly commended for its role in coordinating the
donor response to the 2000 floods, leading to the Rome Conference and the
mobilization of over US$450 million in aid.
Promotion of local governance through district planning and finance pro-
grammes has been replicated, scaled up and supported extensively by government
and is now enshrined in policy. UNDP also effectively laid the groundwork for
development commitments of other development partners, notably in the areas
of strengthening local government, electoral procedures and monitoring, support
to the justice sector and catalyzing the campaign against HIV/AIDS. In spite
of the fact that there is little evidence of impact apart from retarding the
deterioration of these institutions, UNDP’s support for politically sensitive
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

institutions (courts, police, prisons, media, elections and different from those of collaborating with the government
parliament) is widely appreciated. Due to its mandate and on meeting long-term development objectives. Some
neutrality, most stakeholders polled consider UNDP’s com- analysts on the subject have claimed that emergency
parative advantage to lie in politically sensitive areas. response is simply not compatible with tackling the complex
However there are some deficits and challenges that issues of governance and building democratic institutions. 8
UNDP will need to address. First, notwithstanding the UNDP seems to have done well in responding to the
Agenda 2025 exercise and the publication of an award-win- conflict situation in Mozambique but the evidence suggests
ning Human Development Report in 2001, UNDP’s pres- that this success has not easily translated into a strong and
ence in the policy arena is modest. UNDP does not seem to strategic partnership role for long-term development needs.
draw on its global knowledge networks to provide the kind It may well be that the transition is not well understood and
of high-level expertise which would be most welcome to there may be too few instances of successful transitions to
government and invaluable in national policy discussions. provide answers.
Second, even though the operational environment has The achievement of successful development out-
changed considerably and the country office is acutely comes requires long-term commitment, close monitoring
aware of this, the ADR team’s assessment is that UNDP’s and broad-based participation and partnerships. The
portfolio has not changed much, and its strategy for deliver- UNCDF/UNDP success with the local governance and
ing development assistance to Mozambique and mobilizing decentralization pilot programme in the Nampula province
resources remains fundamentally the same. had a long gestation period beginning in 1999. It involved
a variety of partners, the participation of target communities
Third, at both country and corporate levels, UNDP
and the commitment of considerable resources.
does not seem to have either sufficiently anticipated or come
UNCDF/UNDP has replicated the model of district plan-
up with a strategic response to how it will support
ning and strengthening local government piloted in
Mozambique’s priorities in the changed context. There may
62 Nampula in another province and the World Bank has
have been missed opportunities in catalyzing an innovative
replicated it in four other provinces. The Ministry of
response to support government and position UNDP strate-
Planning and Finance has adopted it as a nation-wide
gically for substantive contributions to the PARPA processes
model, and it is now the basis for national legislation on
within the context of direct budget support and donor
local government.
harmonization principles that have emerged since 2000.
Development effectiveness demands a coherent
Fourth, UNDP’s programming as presently constituted
human development strategy. UNDP’s present pro-
lacks the necessary coherence and focus to permit its
grammes are an amalgam of diverse projects that may not
identification with an identifiable strategic position, and
necessarily be strategic enough to promote a coherent and
changes may be necessary to allow UNDP to regain the visible
focused response to prevailing conditions. Some of the
and strategic role that was evident in the aftermath of the war.
projects are legacies from previous years, some are projects
The ADR team’s findings may well apply to UNDP as a
that government counterparts may be reluctant to discon-
whole and suggests that UNDP does well in conflict
tinue, and some are those that UNDP retains because of
situations but finds it difficult to carve out a distinctive niche
their potential for mobilizing resources from donors. Many
once the agenda shifts to long-term perspectives. Its inflexi-
of them seem to be ‘supply-driven,’ kept on because
ble programming procedures and the lack of resources that
resources are available for them and not because they are
are not tied to five-year programming cycles may well
part of an effective strategy for reducing poverty or enhanc-
explain this lack of a flexible, agile and forward- looking-
ing human well being.
response capacity which is very much needed in the present
day Mozambique. Demining, for example, constitutes a significant
component of the programme resource-wise receiving
Lessons Based on its findings, the ADR team has
almost as much over all as the fight against HIV/AIDS,
identified a number of lessons learned which could assist
even though its contribution to the human development
UNDP in strategically repositioning itself to strengthen its
agenda may be far less. UNDP is better served at the
contribution to Mozambique’s development.
country level by a programme that resonates with its human
There is a need to better understand the transition development and human rights advocacy role and, as well,
from crisis response to long-term development. generates support because it offers a coherent strategy to
The requirements of responding to emergencies are very improve human well-being.

8
Mark Duffield, Complex Emergencies and the Crisis of Developmentalism, Institute of Development Studies Bulletin: Linking Relief and Development. Sussex: October 1994; see
also Mark Duffield, Global Governance and the New Wars, the Merging of Development and Security, London: Zed Books, 2001
 5. GENDER EQUALITY

A compelling vision and an effective communication and relevance and in facilitating the definition of a niche in
strategy are critical for the visibility and success of the the changed and changing environment.
organization. UNDP’s credibility relies on having a dis- Develop an effective strategy for managing the tran-
tinctive and compelling vision of its mission. UNDP cannot sition from crisis response to long-term development. As
underestimate the importance of effectively projecting an its excellent record of performance in the aftermath of
image of its corporate principles and accomplishments that Mozambique’s civil war shows, UNDP has a clear compar-
brand UNDP distinctively. Documenting, disseminating ative advantage in managing and providing support during
and branding the organization with its successes have a conflict and the immediate post-conflict periods, but seems
number of advantages: the exposure this affords builds to lack an effective strategy for making the transition to a
partnerships, generates resources and enhances credibility. post-conflict phase. It seems to have been slow in becoming
Although UNDP has scored a number of successes with an effective agent for long-term development after many
building institutions and with the Nampula local gover- years of responding to crises. The challenge for UNDP is to
nance and district planning model, not many will associate devise an effective formula that allows it to harness the
these successes with UNDP unless these experiences are successes of peace building and recovery for long-term
systematically and strategically turned into knowledge development gains.
assets for the organization and the country.
Develop a strategic response at corporate and country
Informed advocacy on key issues is more important level on how to support governments that have adopted
than simply preserving a reputation for neutrality and direct budget support. UNDP cannot expect to make a
generating resources. UNDP’s concern to preserve the substantive contribution to development policy in
unique relationship of trust that it has built with the gov- Mozambique as long as it remains outside of the donor
ernment, which relies on UNDP’s reputation for neutrality, harmonization and coordination of aid initiatives and fails
may at times jeopardize its capacity for advocacy on critical to develop a strategic approach to redefining how it will
human rights and human development issues. By the same support government in the new environment. There are 63
token, concern with raising resources from donors may lead to avowedly a number of risks in supporting direct budget
accepting the management of programmes that detract from support, but there are greater risks in not taking any
UNDP’s core business and its effectiveness. UNDP should decision at all and continuing with systems that may
take stronger stands in supporting programmes that are of wrongly or correctly be perceived as raising transaction
strategic value and are in line with UNDP’s mandate and costs and undermining national ownership.
human development priorities, rather than focusing on pro-
Direct budget support with its attendant implications
grammes only because of their resource mobilization value.
challenges UNDP, both at the corporate and at the country
level, to make a decision, one way or the other, about how
RECOMMENDATIONS to respond to government capacity needs and how to re-
The findings and conclusions of the ADR lead to the orient its role to this harmonization initiative.
recommendations outlined below. These recommendations There are a number of options UNDP could pursue
are by no means exhaustive but cover issues that the ADR globally. UNDP could participate fully in aid harmoniza-
team think strategic and necessary to support UNDP as it tion especially where donors are increasingly committed to
builds on its comparative advantage and past record of direct budget support. Alternatively, UNDP could focus on
achievements to reposition itself to meet emerging and advocacy work, building government capacity in fiduciary
future development challenges and enhance its added value mechanisms, procurement management, financial manage-
in Mozambique. ment and budget programming.
In the case of Mozambique, it seems clear that a way
ENHANCING THE STRATEGIC POSITIONING
must be found for UNDP to participate as a full member in
OF UNDP SUPPORT
the Joint Donor Review which the government conducts
Define a coherent and compelling vision and an effective with donors annually. This is essential if UNDP is to play a
communication strategy. Designing a compelling, coher- credible role in placing human development and poverty
ent and distinctive vision of how UNDP will support reduction at the centre of policy discussions. UNDP’s
Mozambique’s development needs in the years ahead is an hesitancy to join the group of direct budget support donors
urgent challenge. In a crowded and competitive environ- is understandable given the potential risks of compromising
ment such as Mozambique, where development needs and its neutrality or impartiality, but UNDP should not be
government strategies for addressing them have changed, perceived as undermining the Rome Declaration and
this is a necessary first step for increasing UNDP’s profile Monterrey Consensus. The ADR team has concluded that
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

UNDP would be well-advised to encourage the UN System development agenda. This will require greater collaboration
as a whole to commit itself to the donor support group and among UN agencies. The scope of the Resident
to bring, not just UNDP’s resources and expertise to the Coordinator Office has grown impressively in the last
table, but the collective weight of the UN system. UNDP two years, and this may provide a foundation for further
could facilitate a consensus building exercise within the UN collaboration. The United Nations has agreed on system-
system to start a dialogue with the government and define wide objectives and guidelines for programming, but these
a role and the terms under which the UN system would join objectives mean little without the collective weight that
the direct budget support. In any event, the risks are better comes with joint programming.
met by confronting them than by avoiding them. The trend towards support for harmonization among
Support capacity building for development manage- key donors has extensive implications for the UN system as
ment and aid coordination to promote government a whole. A strategy to meet this challenge is necessary and
leadership and national ownership of the process. UNDP depends on UN Agencies developing a strong position of
should focus on enhancing capacity for strategic planning joint advocacy on human development, MDGs and
and financial management at crucial levels of the govern- strengthening a pro-poor bias in PARPA. Efforts to articu-
ment. All parties in support of direct budget support – the late common goals and strategies through the United
government, the bilateral and multilateral donors – are Nations Development Assistance Framework (UNDAF)
cognizant of the magnitude of capacity required to lead, have not yet led to the ultimate objective of maximizing
coordinate and manage development assistance and the goal-oriented development cooperation through joint
development processes and to direct external resources and programming. The UNDAF strategic objectives represent
efforts towards national development priorities. the collective commitments of the UN System, including
Government leadership and national ownership can mean its programming agencies (UNDP, UNFPA, UNICEF,
the difference between achieving aid effectiveness through WFP), the specialized agencies (FAO, UNESCO, WHO)
64 direct budget support and attaining development effective- and the commitments sanctioned by the Mozambique
ness. Increased capacity within the central government to government in a number of international instruments. This
improve financial management systems and to foster is the moment to experiment with joint programming on a
systemic efficiency to manage the resources channeled significant scale.9 Pooling resources in joint programming
directly into the state treasury and conduct national level is perhaps the United Nations’ only viable strategy for
planning is a pre-requisite for Mozambique to take full overcoming its reputation of having too little funds, limited
advantage of the potential the commitment to aid expertise and often too many agendas, especially in the
coordination and harmonization entails. context of greater donor harmonization and adoption of the
Even though 15 out of 47 donors have made commit- direct budget support mechanism.
ments that range from 1 percent to 60 percent of their aid The UNDAF for Mozambique (2002-2006) has
budget, the success of this experiment is not guaranteed. embraced two common thrusts for development assistance
For more donors to join and for those who have joined to across the UN System. The first is the HIV/AIDS
maintain predictability of funding and increase their level of pandemic and the second is gender equity with a special
commitment, assurances will be required that finance emphasis on girls’ access to educational opportunities.
managers and planners are prepared to execute their Recent research, especially in the Common Country
responsibilities accountably and effectively, and for this, a Assessment, reveals that “common and mutually reinforcing
great deal more training and restructuring is required. support for HIV/AIDS and gender equity are undoubtedly
Because of UNDP’s impartiality and government trust, key to ensuring longer-term empowerment, reaching
UNDP is uniquely placed to promote and support building poverty reduction goals and ensuring rights attainment for
capacity in departments and ministries to reduce fiduciary all populations.”10
risks , accelerate programme implementation, and thereby Redouble efforts to enable civil society to have a
enhance government’s leadership role. genuinely independent input to PARPA through the
Champion and strengthen UN system collaboration Poverty Observatory. UNDP has had a tradition of
through joint programming and broaden non-traditional supporting the emergence of a strong civil society sector in
partnerships. UNDP is unlikely to marshal the resources Mozambique. In part because of its efforts, and its support
and the credibility on its own to give priority to its human to umbrella NGO support organizations, the number of

9
The field visit of the executive boards of UNFPA and UNDP made a similarly strong recommendation. UNDP/UNFPA Executive Board, Report on the Joint Field Visit to Mozambique,
DP/2003/CRP – DP/FPA/2003/CRP.1. Annual Session, 2003
10
United Nations, Mozambique, United Nations Development Assistance Framework (UNDAF) 2002-2006, Maputo: April 2001, p. 5
 5. GENDER EQUALITY

NGOs in the country has increased more than eight-fold Promote a rural development focus and accord
since the mid 1990s. The Poverty Observatory, housed increased priority in UNDP programming to reducing
within the Ministry of Planning and Finance, is a promis- human poverty and improving rural livelihoods. The
ing instrument for providing an independent assessment of overwhelming imperative in Mozambique is to devise and
the efforts by government and donors to reduce poverty, implement a viable pro-poor growth strategy that places the
inequalities and regional disparities. rural poor at the centre of the equation. Income and human
UNDP should intensify its efforts to ensure that the poverty in Mozambique is primarily rural. The majority of
Poverty Observatory opens up the way for civil society Mozambique’s poor, with little or virtually no access to edu-
organizations to participate in national policy dialogue on cation, health, safe drinking water and basic physical and
poverty reduction. Civil society organizations should social infrastructure, are rural-based. Reduction of human
include the full gamut of non-government organizations, poverty should be an overarching objective to which all
encompassing faith-based, private sector and citizens’ UNDP programme areas should aspire.
groups, all of which are essential actors in bringing fuller Closing the rural—urban divide and the huge income
democracy to Mozambique. More important, civil societies and human poverty gap will depend on expanding the
can also be a resource that UNDP can tap into to test and opportunities and human capabilities of the rural poor.
enrich its ideas and knowledge base on critical development MDG targets for reducing absolute poverty have been set
issues facing the country. and annual commitments made within the context of
PARPA. Augmenting on-farm and off-farm rural incomes
ENHANCING PROGRAMME PERFORMANCE is essential to closing the gap between high growth and
AND CONTRIBUTION TO DEVELOPMENT persistent human poverty and the PARPA will need to put
RESULTS rural development at the centre. Given its human develop-
Sharpen strategic focus, achieve greater coherence and ment mandate, UNDP is in a good position to take a
enhance programme effectiveness by reducing the num- stronger stand on devising a rural-focused programme and 65
ber of core areas. Achieving greater coherence will entail advocate for a greater human development and rural bias
building on existing strengths though UNDP Mozambique within PARPA. More explicit linkages should be made
may choose to develop new areas. These strengths are in between existing UNDP programmes with a rural presence
local governance and decentralization through district plan- – decentralization and justice sector programmes – and
ning, support to democratic institutions and vulnerability poverty reduction by building support for augmenting rural
reduction particularly responding to the HIV/AIDS pan- incomes more deliberately into these existing governance
demic. More specifically, it is recommended that UNDP programmes.
concentrates its support on four core areas : (a) local gover- Build on past successes and increase initiatives to
nance and decentralization through district planning and (b) strengthen local government. Decentralization of govern-
support to key democratic institutions (c) combating the ment functions and strengthening of district level governments
spread of HIV/AIDS and (d) policy advocacy in the area of have worked well in Mozambique. Experiments in devolution
poverty reduction and MDGS that draws on the organiza- of responsibilities and even in fiscal decentralization have
tion’s human development paradigm while limiting micro- shown the government that sharing political responsibility
level support to high impact replicable innovations. with district governments has the potential to move the
Within the context of PARPA, UNDP could focus on centers of decision-making closer to the people, to provide
the alignment of PARPA reporting and tracking of progress services efficiently, generate income and reduce poverty in
to human development and MDG targets by piloting the rural areas. UNDP’s success in strengthening represen-
provincial and district level human development reports. tative district-level planning has spawned a number of
Nampula would be an obvious place to start if synergies other initiatives which now need coordination and close
within and among UNDP interventions are to be realized. observation in order to ensure that the collective lessons of
This entails reducing commitments to other areas where a these diverse experiments make a real contribution to the
clear comparative advantage is not evident and the potential government’s decentralization plans.
for development results is demonstrably less. The following Improve and diversify resource mobilization and partnership
are areas where commitments could be reduced: enterprise strategies UNDP will need to re-invigorate and diversify its
promotion, microfinance, community-based income and resource mobilization strategy, broaden partnerships and
employment generation schemes and demining. Support in develop flexible programming procedures. This will assist
these areas may be maintained only to the extent that they the organization in reversing the downward trend in
demonstrate innovation and reinforce outcomes to be resource mobilization levels and in improving the coherence
achieved in core areas. and quality of its programme. Notwithstanding the
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

harmonization of aid, there is still a large universe of poten- and recommends that these laudable joint programming
tial cost-sharing avenues outside direct budget support. The initiatives be strengthened by explicitly linking these efforts
quality of UNDP’s programming is the currency of its to meeting specific MDGs and by incorporating gender
future success in resource mobilization. Instead of respond- equality as one of its components.
ing to donors and government by undertaking programmes
proposed by them, or formulating programmes which ENHANCING KNOWLEDGE AND
UNDP presumes will interest its partners, UNDP’s inter- STREAMLINING BUSINESS PRACTICES
ests are best served by making its programmes of high Increase in-house expertise by expanding the knowledge
enough quality to place them in demand among its govern- base. In a rapidly changing context, in-house expertise and
ment and donor partners. The programmes need to be substantive capacity are indispensable for effective
demand-driven rather than supply-driven. programming and maintaining credibility and a competi-
A first step in upgrading its resource mobilization tive edge with government and other development partners.
strategy will be to improve the way it trademarks or brands Mozambique presently requires a set of skills and capacities
and markets its programmes. To this end, the UNDP which the UNDP Country Office does not have in
should devise a comprehensive communication strategy abundance. Based on perceptions gathered during the ADR
which documents successful experiences and enhances exercise, a number of partners, including government, per-
UNDP’s visibility in order to effectively market its ceive UNDP as well-intentioned but at times lacking the
programme to potential funders. Non-traditional sources of requisite competencies to make a substantial contribution
funds and partners should figure significantly in this strategy. to their programmes.
Another important and crucial step is to improve the It is the view of the ADR team that while reducing the
quality of service that UNDP provides in collaborating with scope of its interventions, the UNDP should seek to build
funding partners, and this refers especially to the quality high level in-house expertise in its core areas to meet present
66 and timeliness of reporting and speedy resolution of any and future demands. This would contribute to substantially
implementation problems, if UNDP is to be seen as a high raising its profile and the quality of its contributions to the
quality provider of unique development services by either policy debates on poverty reduction strategies within the
government or donors country. UNDP must be seen as a leader and substantive
UNDP should also seek opportunities to provide authority on those core areas which it supports and champi-
services to government on a contract basis in areas where it ons. It can engage expertise locally through research institutes
has unique technical expertise. Capacity building and or abroad through its regional centres and the global
technical advice in the context of direct budget support is network or it can build expertise by establishing research
one such area while election monitoring is another. Building and resource centres where successful experiences and
capacity in poverty programming, monitoring and account- lessons are documented.
ing is yet another, especially as increases in direct budget As an example, UNDP might support the central and
support place demands on the government’s capacity to provincial governments in establishing a resource centre
manage poverty alleviation programming, monitoring and based in Nampula to document UNDP/UNCDF’s and the
reporting. government’s experiences in strengthening local govern-
However, being a credible development service provider ment and to disseminate lessons and innovative ideas,
requires technical competency, flexibility and reliability, and nationally and internationally on the process of decentral-
UNDP at both corporate and country level will need to ization. This would allow UNDP to turn this invaluable
squarely address this area. Reprofiling has left UNDP’s experience and the lessons learnt into knowledge assets
capacity thin on the ground and highly specialized skills will for the country and re-engineer itself as a knowledge
be needed. UNDP will need to draw upon corporate units organization within Mozambique
and its global networks for these resources and skills. Improve business processes. Because it is perceived as a
The ADR team applauds the Country Office’s current success story, Mozambique is an attractive destination for
preoccupation with the design of the next CCA/UNDAF visiting missions. It is the view of the ADR team that the
and its promotion of joint programming among key UN Country Office seems to be overwhelmed by frequent
agencies. Amalgamating HIV/AIDS, disaster management requests to receive delegations and participate in pilots for
and food security under a single category labeled “the triple the UNDP and the UN system as a whole. These obliga-
threat” is a strategic step toward linking major programmes tions have strained its capacity and often diverted attention
in a way that opens the way for joint programming. The away from the core business of the office. UNDP’s capaci-
ADR strongly supports this joint programming initiative ty to contribute effectively to Mozambique’s transition may
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

be jeopardized by the frequent obligations to meet

headquarters’ demands.
However, being a credible development service
provider requires technical competency, flexibility and
reliability, and UNDP at both corporate and country level
will need to squarely address this area. Reprofiling has left
UNDP’s capacity thin on the ground and highly specialized
skills will be needed. UNDP will need to draw upon
corporate units and its global networks for these resources
and skills.
The ADR team applauds the Country Office’s current
preoccupation with the design of the next CCA/UNDAF
and its promotion of joint programming among key UN
agencies. Amalgamating HIV/AIDS, disaster management
and food security under a single category labeled “the triple
threat” is a strategic step toward linking major programmes
in a way that opens the way for joint programming. The
ADR strongly supports this joint programming initiative
and recommends that these laudable joint programming
initiatives be strengthened by explicitly linking these efforts
to meeting specific MDGs and by incorporating gender
equality as one of its components.
67
CONCLUSION
Mozambique has made tremendous progress in overcoming
a legacy of conflict and has succeeded in forging a compre-
hensive strategy for poverty reduction and secured the
commitment of its key development partners in this
process. It has achieved and sustained a relatively high
record of economic growth over the past seven years and
has become a reasonably attractive country for foreign
direct investment. However, as this evaluation has shown,
Mozambique is still very much a country in the process of
transition from a post-conflict country to a stable democra-
cy and has a huge backlog of human poverty and income
disparities.
The principal challenge for UNDP is how to work with
the government in setting a pro-poor development course
for a country that is still very poor and largely rural. UNDP
will need to make a strategic shift to address the challenges
posed by the triple threat of food insecurity, vulnerability to
natural disasters and HIV/AIDs and the paradox of growth
with poverty.
ANNEX 1: LIST OF KEY PERSONS MET

ANNEX 1: LIST OF KEY PERSONS MET

Government of Mozambique
Nuno Tomas, First Secretary, Permanent Mission of Mozambique
to the United Nations
Fernando Juliao, Third Secretary, Ministry of Foreign Affairs
Cesar Gouveia, Deputy Director, International Cooperation, Ministry of Foreign Affairs
Salimo Vala, Programme Head, Ministry of Agriculture and Rural Development
Jose Mate, Programme Head, Ministry of Agriculture and Rural Development
Isabel Cossa, Programme Officer, Ministry of Agriculture and Rural Development
Ragendra de Sousa, Programme Head, Ministry of Agriculture and Rural Development
Ester Jose, Programme Officer, Ministry of Agriculture and Rural Development
Hermes Sweia, Programme Officer, Ministry of Agriculture and Rural Development
Francisco Mabjaya, Vice-Minister, Ministry for Coordination of Environmental Affairs
69
Diogo Milagre, Adjunct Executive Secretary, National Aids Council
Lourenco Domingos Chipenembe, Permanent Secretary,
Ministry of State Administration
Higino Longamane, National Director for Public Service,
Ministry of State Administration
Gamiliel Munguambe, Director, National Demining Institute
Vicente Paulo, Chief Technical Advisor, Programme of District Planning,
Ministry of Planning and Finance, Nampula
Members of the Equipa Technica, District Administrator’s Office,
Mogovolas District Administration, Nampula
Castro Sanfins Namuala, Mayor, City of Nampula
Dr. Abdul Razak Noormohamed, Governor, Province of Nampula
Manuel da Costa Gaspar, Vice-President, National Institute of Statistics
Jose Sulemane, National Budget Director, Ministry of Planning and Finance
Pedro Couto, Office of National Budget Director, Ministry of Planning and Finance
Machatine Munguambe, Rector, Michafutene ACIPOL Police Training Centre
Jose Manuel Guambe, National Director for Local Governance,
Ministry of State Administration
Lucia Bernadette, National Coordinator, National Reintegration for Social Action
Project Ministry of Social Action
Aires do Amaral, National Coordinator for Justice Project, UNDP Mozambique
Ministry of Justice
Marylene Spezzati, UN Resident Coordinator and UNDP
Basilio Zaqueu, National Coordinator, MicroStart Project, Resident Representative
Ministry of Agriculture and Rural Development
Gana Fofang, Deputy Resident Representative, Programmes
Gabriel Mambo, Deputy National Director,
National Direction of the Treasury Svend Madsen, Deputy Resident Representative, Operations

Gumercindo Langa, National Adjunct Director, Inacia Salvador, Assistant Resident Representative,
Institute for Disaster Management Head of Project Support Unit

Rogerio F. Manguele, Planning Department, Stella Pinto, Assistant Resident Representative

Institute for Disaster Management and Head of Poverty Eradication and HIV/AIDS Unit

Maria Madalena Luciano, Planning Department, Henny Matos, Assistant Resident Representative
Institute for Disaster Management and Head of Governance I Unit

Rita Almeida, Planning Department, Violet Kakyoma, Assistant Resident Representative

Institute for Disaster Management and Head of Governance II Unit

Joao Carlos Mabombo, Planning Department, Tofayel Basunia, Programme Officer, Poverty Eradication
Institute for Disaster Management and HIV/AIDS Unit

Arlindo Peidade de Sousa, Administrator, Radio Mozambique Lisa da Costa, Programme Officer, Poverty Eradication
and HIV/AIDS Unit
Joao Matola, Programming, Radio Mozambique
Carlos Mucapera, Programme Officer, Governance II Unit
Carlos Manuel, General Secretary,
National Assembly of the Republic Rikke Fablienke, Programme Officer, Governance II Unit
Anselmo Zimba, Programme Officer, Governance II Unit
UNDP Sorley Mulcahie, Programme Officer, Governance I Unit
Saraswathi Menon, Director, Evaluation Office
Miguel Castanha, Programme Officer, Governance I Unit
Nurul Alam, Deputy Director, Evaluation Office
Ngila Mwase, Economic Adviser,
Jeffrey Avina, Deputy Director, Regional Bureau for Africa Economic and Policy Analysis Unit

Michele Falavigna, Country Programme Adviser, Southern African John Barnes, Chief Technical Advisor,
Development Community (SADC) and Indian Ocean Cluster, District Planning Project, UNCDF
Regional Bureau for Africa
Ondine Veira, Programme Officer,
Elizabeth Lwanga, Director, Regional Bureau for Africa Poverty Eradication and HIV/AIDS Unit

Diane Keppler, Chief, Internal Audit Section Johannes Giorgis, Chief Technical Advisor,
Disaster Mitigation Project
Jennifer Topping, Adviser, Bureau of Development Policy
Peter Reeh, Assistant to Resident Representative,
Sam Barnes, Senior Adviser, Bureau for Crisis Prevention Office of the Resident Coordinator
and Recovery
Marina La Guidice, Chief Technical Advisor,
Marco C. van der Ree, Programme Manager, UNCDF Anti-Poverty Partnership Initiative
Kadmiel Wekwete, Technical Adviser, Local Governance Unit, Francesca Dagnino, Chief Technical Advisor, Justice Project
UNCDF
Lourino Alberto Chemane, Chief Technical Advisor,
Rebecca Dahele, Evaluation Specialist, UNCDF Information Communication Technology
Cyril Guillot, Technical Adviser UNCDF Paula Pateguana, HIV/AIDS Programme Analyst
Clarisse Nhabangue, Programme Assistant,
Demining and Disaster Preparedness
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

United Nations Agencies Eamon Cassidy, Head, Department for International

Development, Great Britain
Angela Van Rynbach, Representative, World Food Programme
Juliet Born, Coordinator for HIV/AIDS, USAID
Peter Haag, Consultant, World Food Programme (WFP)
Ines Teixeira, Coordinator of Cooperation, European Union
Petra Lantz, Representative, UNFPA
Machel Farrant, Good Governance and Democratization Officer,
Beatrice Crahay, Deputy Representative, UNFPA European Union
Peter Vandor, Resident Representative, Ancieto Bila, Operations Officer Country Management Unit,
Food and Agricultural Organization (FAO) World Bank
Marie-Pierre Poirer, Resident Representative, UNICEF Perry Perone, Resident Representative,
Gloria Kodzwa, Head of Programmes, UNICEF International Monetary Fund

Carolina Siu, Project Officer, Health, UNICEF

Civil Society Organizations
Marie-Louise Dzietham, Resident Representative, Jose Negrao, Socio-Economist, Cruzeiro do Sul,
United Nations High Commission for Refugees Development Research Institute
Brigitte Jallow, Chief Technical Advisor, Alvaro Casimiro, Co-ordinator, Link NGO Forum
Media Development in Mozambique, UNESCO
Phillip Machon, Advisor for Marketing and Organization,
Pedro Chequer, UNAIDS Coordinator Link NGO Forum
Fernando Goncalves Andre, Editor, SAVANA,
Bilateral and Multilateral Donors Weekly Maputo Newspaper
Magnus Lindell, Counselor for Cooperation, Embassy of Sweden
Eudoxia Gaveta, Head, Finance Department, Care International 71
Thomas Thomsen, Counselor, Embassy of Denmark
Maria Chuma, Project Director of Urban Project,
Nina Berg, Programme Officer, Embassy of Denmark Care International
Havard Hoksnes, First Secretary,
Royal Norwegian Embassy
Jan Arne Munkeby, Minister Counselor,
Royal Norwegian Embassy
Jan Willem Le Grand, First Secretary, Embassy of the Netherlands
Cristina Pucarinho, Counselor, Embassy of Portugal
Kevin Colgan, Attache and Development Specialist,
Embassy of Ireland
Ronald Meyer, Secretary, Head of Cooperation,
Embassy of Germany
Ichiro Muto, Head, Economic and Development,
Embassy of Japan
Kenji Sudo, Deputy Resident Representative,
Japan International Cooperation Agency
Bernhard Weimer, Consultant, Swiss Development Corporation
Gabriel Dava, Director, Programme Support Unit Canadian
International Development Agency
Adrien Hadorn, Resident Director,
Swiss Agency for Development and Cooperation
 ANNEX 2: REFERENCES AND DOCUMENTS CONSULTED

A N N E X 2 : R E F E R E N C E S A N D D O C U M E N T S CO N S U LT E D

Abrahamsson, Hans and Anders Nilsson, 1995, Mozambique: Galli, Rosemary Elizabeth, People’s Spaces and State Spaces, Land
the Troubled Transition, From Socialist Construction to Free Market and Governance in Mozambique, Lexington Books, Oxford: 2003
Capitalism, Zed Books, London: 1995
Government of Mozambique and UNDP, “Project Document for
Bollinger, L. and J. Stover, The Economic Impact of AIDS in Support to PARPA’s Monitoring and Evaluation System,” Maputo:
Mozambique, The Futures Group International, September 1999 May 2003
Brown, Mark Malloch, “Bridging the Gap” The World Today, Government of Mozambique and UNDP, “Project Document for
June 2000 Upstream Microfinance Capacity Building Project,” Maputo:
December 2002
Chelala, C. “AIDS Takes a Toll in African Classrooms,”
The Japan Times, August 22, 2000 Government of Mozambique and UNDP, “Project Proposal for
Support to the Police of the Republic of Mozambique Phase III,”
Chelala, C. “AIDS, A Modern Epidemic,” Pan American Health Maputo: March 2004
Organization, Washington, D.C. 1993
Government of Mozambique and UNDP, Prison Policy and
Chelala, C. “AIDS: A Medical and Social Epidemic,” Strategy for Implementation, Maputo: August 2002
The Japan Times, October 5, 2002
Government of Mozambique and UNDP, Project Document for
Craib, A., Felisberto Novungo and G. Curtis, In-Depth Evaluation Anti-Poverty Initiatives Trust Fund (APPI), Maputo: May 2003
Mission of the Accelerated Demining Programme, Maputo: June 1999
Government of Mozambique and UNDP, Report of the Final
Cramer, Christopher and Nicola Pontara, “Rural Poverty and Programme Evaluation Mission for Support to the Justice Sector,
Poverty Alleviation in Mozambique: What’s Missing from the Maputo: April 2002
Debate?” Journal of Modern African Studies, 36, 1 1998
Government of Mozambique, Action Plan fore the Reduction 73
Cramer, Christopher, “Can Africa Industrialized by Processing of Absolute Poverty, 2001-2005 (PARPA), Strategy Document for
Primary Commodities? The Case of Mozambican Cashew the Reduction of Poverty and Promotion of Economic Growth,
Nuts,” World Development, 27, 7 1999 Maputo: 2001
De Brito, Luis, The Condemned of Maputo, Prepared for UNDP Government of Mozambique, Committee of Counselors, Agenda
as part of the UNDP Programme “Support to the Justice Sector, 2025, The Nation’s Vision and Strategies, November 2003
Maputo: 2002
Government of Mozambique, Economic and Social Balance (PES)
Decentralization Donor Working Group, “Decentralization: Issues for 2003, Maputo: 8 March 2004
and Concerns,” March 22, 2004
Government of Mozambique, Interim Poverty Reduction Strategy
Do Amaral, Aires, Luis de Brito and Ussumane Aly Dauto, The Paper (PRSP), Incorporating the Action Plan for the Reduction of
Prison System in Mozambique, Prepared for UNDP as part of the Absolute Poverty (PARPA), Maputo: February 2000
UNDP Programme Support to the Justice Sector, Maputo:2000
Government of Mozambique, “International Reconstruction
Duffield, Mark, “Complex Emergencies and the Crisis of Conference, Six Months Later,” Maputo: November 2000
Developmentalism,” Institute of Development Studies Bulletin:
Linking Relief and Development. Sussex: October 1994 Government of Mozambique, Ministry of Planning and
Finance, PARPA Implementation Evaluation Report, 2001,
Duffield, Mark, Global Governance and the New Wars, the Merging Maputo: February 2003
of Development and Security, Zed Books, London: 2001
Government of Mozambique, Ministry of Planning and
Economist Intelligence Unit, Country Report: Mozambique, Finance, Poverty and Well-Being in Mozambique: The Second
United Kingdom: October 2003 National Assessment, March 2004
Economist Intelligence Unit, Country Report: Mozambique, Government of Mozambique, National Institute of
United Kingdom: January 2004 Demining, Annual Report Mine Action Programme 2003,
Epstein, Helen, “The Hidden Cause of AIDS,” The New York Maputo: February 2004
Review of Books, May 9, 2002 Government of Mozambique, National Institute of Demining,
Firmino, G., and Amilcar Tivane, “In-Depth Study in Mine Action Activities in Mozambique, 2002, Maputo: 2003
Governance Report,” Paper prepared for UNDP in preparation Government of Mozambique, National Institute of Demining,
for the Assessment of Development Results Mission, Eduardo Plano Annual de Prioridades de Desminagem 2004, Maputo:
Mondlane University, Maputo: March 2004 February 2004
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

Government of Mozambique, National Institute of Demining, The Pfeiffer, James, “International NGOs and Primary Health Care
Five-Year National Mine Action Plan 2002-2006, November 2001 in Mozambique: the Need for a New Model of Collaboration,”
Social Science and Medicine, 56, 2003
Government of Mozambique, National Institute of Statistics,
Poverty and Well-Being in Mozambique, 1997 Pitcher, M. Anne, Transforming Mozambique, The Politics of
Privatization, 1975-2000, Cambridge: 2002
INE, MISAU, MPF, CEP, CNCS, UEM, “Impacto Demografico
do VIH/SIDA em Mocambique.” Ronda Vigilancia Epidemiologica Pringle, Vibha and Peter P. Houtzager, “UNDP Evaluation of
2002. Maputo: Maio de 2004 Governance-Poverty Linkages, Conceptual Framework”,
Evaluation Office, April 2004.
International Labour Office, Women and Poverty in Mozambique,
A Synthesis of an ILO Study on Feminization of Poverty in Programme Aid Partners (PAP and the Government of
Mozambique, October 2001 Mozambique, “Memorandum of Understanding for the Provision
of Direct Budget and Balance of Payments Support” Maputo: 2004
International Monetary Fund, “Republic of Mozambique: Joint
Staff Assessment of the Poverty Reduction Strategy Paper,” Programme Aid Partners (PAP) and the Government of
Washington, D.C.: July 2003 Mozambique, Aide-Memoire of the Joint Review, April 2004.
Jackson, D. and B. Weimer, “Provincial Governments as Partners vs Republica de Mocambique, Provincia de Nampula, Administracao
SWAps,” Unpublished paper for DANIDA, Maputo: 2003 do Distrito de Mogovolas, “Experiencia Sobre Colecta et Gestao
de Receitas da Administracao do Distrito de Mogobolas,”
Jackson, D., “A Planning Law for Mozambique?” Paper prepared Fevreirer 2004
for the Ministry of Planning and Finance, Maputo: March 2004
Slattery, Brian, “Development without Equality” An Interview
Jackson, D., “Local Governance Approach to Social Reintegration with Raul Domingos” Journal of International Affairs, New York:
and Economic Recovery in Post-Conflict Countries: The View Fall 2003
from Mozambique,” Paper for the Workshop: A Local Governance
Approach to Post-conflict Recovery, New York: October 2002 Soderbaum, F. and Ian Taylor, “Transmission Belt for Transnational
74 Capital or Facilitator for Development: Problematising the Role
Jackson, D., Velasco Bazima and Roberto Salomao, The of the State in the Maputo Development Corridor,” Journal of
Implications of Decentralization and Deconcentration for the Modern African Studies, 39, 4, 2001
National Planning and Budget System, Prepared for the Ministry
of Planning and Finance, Maputo: December 2003 Tshirley, D. and Rui Benefica, “Small Agriculture, Wage Labour
and Rural Poverty Alleviation in Land-Abundant Areas of
Jose Negrao, “The PARPA: Towards Achieving Results” Cruzeiro Africa: Evidence from Mozambique,” Journal of Modern African
do Sul: May 2002 Studies, 39, 2, 2001
Kulipossa, Fidelx Pius, “Progress towards the Implementation of UNCDF/UNDP, Independent Programme Impact Assessment of the
Decentralization Policies in Mozambique,” Paper written as an UNCDF Local Development Programme, Maputo: March 2004
input to the Government-Donor Joint Review of the Public Sector
Reform, Maputo: March 2004 UNCDF/UNDP, Mid-Term Evaluation Report of MicroStart
Mozambique, Maputo: January 2004
Narayan, D., Voices of the Poor: Can anyone Hear Us? Oxford
University Press for the World Bank, Washington, D.C.:2000 UNDP, “Are There Governance-Poverty Linkages? A study of
UNDP Governance Programmes, the Contribution to Democratic
OECD, Harmonising Donor Practices for Effective Aid Delivery, Governance and Possible Links to Poverty Reduction, A Joint
DAC Guidelines and Reference Series, 2003 UNDP/Netherlands Evaluation Study,” Terms of Reference,
OECD, DAC Joint Assessment of the Aid Programmes of Evaluation office, December 2003
Germany, The Netherlands and the United Kingdom in UNDP, “Country Evaluation: Assessment of Development
Mozambique, Report of a Mission to Mozambique, 4-14 Results,” Evaluation Office, 2002
September 2001, DAC, Paris: 2001
UNDP, Education and Human Development, Trajectory, Lessons
OECD/DAC, Rome Declaration on Harmonization, reproduced and Challenges for the 21st Century, Mozambique -National
at OECD URL: http://www.aidharmonization.org/ah-wh/second- Human Development Report 2000 Maputo: 2001
ary-pages/why – Rome Declaration, 25 February 2003
UNDP, “Evaluation of UNDP Assistance to the Mozambican
OECD, Statement Adopted by members of the OECD’s Parliament,” Maputo: October 2001
Development Assistance Committee, 15-16 April 2004
UNDP, “Getting Out of the Box: UNDP and Economic
Palha de Sousa, Cesar A. D., “PARPA/PRSP Process and Civil Management Support in Mozambique” Exploratory Visit Mission
Society Involvement in Mozambique,” Cruzeiro do Sul: April 2002 Report, Paper prepared for UNDP Mozambique, Scanteam, Oslo:
March 2000
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

UNDP, “Project Proposal for Support to Capacity Development UNDP, Management Audit of UNDP Office in Mozambique,
of the Assembly of the Republic,” Maputo: December 2003 Report No. RCZ0070, OAPR, 2001
UNDP, “Resource Mobilization and Strategic Partnership Plan UNDP, Mid-Term Evaluation for Enterprise Mozambique,
of Action,” Maputo 2004 Maputo: December 2003
UNDP, “Report on the Millennium Development Goals, UNDP, Mid-Term Review for Strengthening Democracy and
Mozambique 2002, Maputo: 2002 Governance through Development of the Media in Mozambique,
Phase II, Maputo: April 2003
UNDP, “Terms of Reference – Country Evaluation: Assessment
of Development Results, Mozambique,” New York: 2003 UNDP, Mozambique, “Public Sector Reform Strategy 2001-2011,
Implementation Plan Phase I: 2002-2005,” Maputo: April 2004
UNDP, “UNDP Involvement with the Police of the Republic
of Mozambique (PRM),” Brief prepared by UNDP, Maputo, UNDP, NEX Evaluation Mission Final Report, Maputo:
22 April 2004 October 2001
UNDP, “UNDP-EU Project Proposal: Supporting Citizens Access UNDP, Thematic Trust Fund for Crisis Prevention and Recovery,
to Justice,” Maputo: 2003 Bureau for Crisis Prevention and Recovery, 2002
UNDP, Assessment of Development Results, Evaluation Office, UNDP, Gender, Women and Human Development: An Agenda
New York: July 2002 for the Future, National Human Development Report for
Mozambique Maputo: 2001
UNDP, Country Evaluation: Assessment of Development Results,
Bulgaria, Evaluation Office, 2003 UNDP/UNFPA Executive Board, Report on the Joint Field
Visit to Mozambique, DP/2003/CRP – DP/FPA/2003/CRP.1.
UNDP, Country Evaluation: Assessment of Development Results, Annual Session, 2003
Ethiopia (Draft), Evaluation Office, 2004
UNDP/UNFPA, First Country Cooperation Framework for
UNDP, Country Evaluation: Assessment of Development Results, Mozambique (1998-2001), DP/CCF/MOZ/1, November 1997
Egypt, Evaluation Office, 2003 75
UNDP/UNFPA, First Regional Cooperation Framework for Africa,
UNDP, Country Evaluation: Assessment of Development Results, 1997-2001, DP/RCF/RBA/1, New York: 1996
Jamaica (Draft), Evaluation Office, 2004
UNDP/UNFPA, Mid-Term Review of the Fourth Country
UNDP, Country Evaluation: Assessment of Development Results, Programme for Mozambique, DP/1996/12/Add.1, 30 January 1996
Nigeria, Evaluation Office, 2004
UNDP/UNFPA, Review of the Regional Cooperation Framework
UNDP, Country Evaluation: Assessment of Development Results, for Africa, 1997-2001, DP/RRR/RBA/1, July 2000
Turkey (Draft), Evaluation Office, 2004
UNDP/UNFPA, Second Country Cooperation Framework for
UNDP, Country Evaluation: Assessment of Development Results, Mozambique (2002-2006) DP/CCF/MOZ/2, June 2001
Vietnam, Evaluation Office, 2003
UNDP/UNICRI, Analysis of the Results of the Survey on
UNDP, Country level Impact Assessment (CLIA) Studies: Burkina Victimisation and Police Performance, Eduardo Mondlane
Faso, Malawi, The Philippines, Evaluation Office, 2000 University, Population Studies Centre, Maputo: 2002
UNDP, Development Effectiveness Report 2003, Partnership for UNDP/UNICRI, Strategic Plan for the Police of the Republic of
Results, Evaluation Office, 2003 Mozambique, Eduardo Mondlane University, Population Studies
UNDP, Evaluation of UNDP’s Role in the PRSP Process, Volume I, Centre, Maputo: 2002
Main Report, Evaluation Office, 2003 UNICEF, Summary of the Additional Analysis of the Demographic,
UNDP, Evaluation of UNDP’s role in the PRSP Process, Volume II, Nutrition and Health Findings, Multisectoral Assessment of the Impact
Country Reports, Evaluation Office, 2003 of the Humanitarian Situation on the Lives of Mozambican Children
and Women in Maputo, Gaza, Inhambane, Manica, Sofala and Tete
UNDP, Final Assessment Report for Support to Economic Management Provinces, Maputo: November 2003
Capacity Building Programme (SEMP), Maputo: October 2001
United Nations Country Management Team, Report of the
UNDP, Fourth Country Programme for Mozambique, Maputo: Annual Retreat, 22-23- January 2004
October 1992
United Nations, Annual Report of the UN Resident
UNDP, Handbook on Monitoring and Evaluating for Results, Coordinator, February 2002
Evaluation office, 2002
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

United Nations, Annual Report of the UN Resident

Coordinator, February 2003
United Nations, Annual Report of the UN Resident
Coordinator, March 2004
United Nations Secretariat, Department of Political Affairs,
Mission Report on Coordination of Municipal Elections in
Mozambique, Electoral Assistance Division, 4-10 May 2003
United Nations Secretariat, Department of Political Affairs,
MOZ/02/003 & MOZ/02/U 03 Projects “Electoral Assistance in
Mozambique,” Electoral Assistance Division, April 2004
United Nations Secretariat, Department of Political Affairs,
UNDP Project MOZ 02 003 Electoral Assistance to Mozambique,
Evaluation Report, 2004
United Nations, Mozambique, United Nations Development
Assistance Framework (UNDAF) 2002-2006, Maputo: April 2001
United Nations, Mozambique: Surviving the Floods Together, Annual
Report of the UN Resident Coordinator, 2000
Unruh, Jon, Niklas Heynen and Peter Hossler, “The Political
Ecology of Recovery from Armed Conflict: The Case of
Landmines in Mozambique,” Political Geography, 22, 2003
USAID Mozambique, HIV/AIDS in Mozambique, 2002
76
Weimer, B. “The Context of Government Reform – an Update,”
Draft paper prepared for UNCDF/UNDP, Maputo: 2003
World Bank, Country Assistance Strategy for the Republic of
Mozambique, October 2003, Report No. 26747-MOZ
World Bank, Legal Vice Presidency, Mozambique: Legal and
Judicial Sector Assessment, Draft Paper, Maputo: 2004
World Bank, World Bank Group Data and Statistics, Mozambique,
Washington, D.C.:2003
 ANNEX 3: MOZAMBIQUE HUMAN DEVELOPMENT INDICATORS FOR 2003 COMPARED WITH SADC MENBERS COUNTRIES

A N N E X 3 : M O Z A M B I Q U E H U M A N D E V E LO P M E N T I N D I C ATO R S
F O R 2 0 0 3 CO M PA R E D W I T H S A D C M E M B E R S CO U N T R I E S

Country HDI Rank Population Area GDP Life Adult GDI

(of 175) (sq.km) per capita expectancy literacy rank
in PPP (US$) %

Mozamique 170 18.90 801,590 1,140 41 45 140

Angola 164 13.9 1,246,700 2,053 47 42 n/a
Botswana 125 1.7 566,730 8,244 38 78 101
Democratic 167 53.8 2,267,050 606 45 63 136
Republic
of Congo
Lesotho 137 2.1 30,350 2,272 43 84 110
Malawi 162 10.7 94,080 586 38 61 132
Mauritius 62 1.2 2,030 10,530 73 85 59
Namibia 124 1.8 823,290 6,410 42 83 100
Seychelles 36 0.08 450 n/a 73 91 n/a 77
South Africa 111 43.6 1,221,040 10,132 46 86 98
Swaziland 133 1.1 17,200 4,503 44 80 107
Tanzania 160 35.2 883,590 557 43 76 130
Zambia 163 10.5 743,590 806 37 79 133
Zimbabwe 145 12.9 386,850 2,280 39 89 113
 ANNEX 4: MILLENNIUM DEVELOPMENT GOALS AND UNDP’S CONTRIBUTION IN MOZAMBIQUE

A N N E X 4 : M I L L E N N I U M D E V E LO P M E N T G OA L S A N D U N D P ’ S
CO N T R I B U T I O N I N M O Z A M B I Q U E

MDGs for Present Status/ Probability UNDP’s Contribution

Mozambique of Meeting the Goal by 2015

Goal 1: Eradicate extreme poverty and hunger

Reduce extreme Incidence of extreme poverty UNDP has contributed to income growth through
poverty to 33.5% has dropped from 69% to 54% microfinance programmes, enterprise training and
between 1997 and 2003. rural–based community development UNDP.
Probability: Likely contributes indirectly to poverty reduction by
enhancing the government’s capacity to deliver
essential public services with support to decentraliza-
tion and capacity building for key institutions.

Halve the incidence of Poverty headcount in rural UNDP has contributed to reducing malnutrition
underweight children areas has dropped from 71.3% through its CCF1 PROAREA project to provide
to 55.3% from 1997 to 2003 and, rural credit, through support for feeder roads ,
at 55.3% remains higher than the rehabilitation microfinance and rural based community
51.5% in urban areas. development programmes, as well as, indirectly, with
Probability: Unlikely programmes to reduce vulnerability to natural
disasters such as floods and drought.

Goal 2: Achieve universal primary education 79

100% completion for EP1 completion rates in UNDP has contributed only indirectly through
boys and girls 2004 may reach a total of support to community micro-projects and
of primary education 43% and for girls, 36%. by funding inputs defined by district planning
Probability: Unlikely and finance consultative councils.

Goal 3: Promote gender equality and empower women

Eliminate gender Proportion of girls in EP1 has risen UNDP makes no contribution to girls’
disparity in primary and from 41.8% in 1995 to 43.9% in 2001. education and gender mainstreaming.
secondary education Probability: Unlikely

Goal 4: Reduce Child Mortality

Reduce U5MR to 67 U5MR declined in 1990s from UNDP has contributed indirectly to reducing child
277 in 1994 to 246 in 1997 to mortality by building institutions to coordinate and
197 in 2004. Based on projections, carry out programmes for reducing the spread of
it will stand at 180 in 2015. HIV/AIDS and the incidence of children born
Probability: Unlikely to infected mothers.

Goal 5: Improve maternal health

Reduce MMR by MMR estimated at 160/100,000 in UNDP has contributed indirectly to reducing
three-fourths of the 2004, and the trend since 1995 has maternal mortality by taking measures for eventually
1990 rate, approximately not shown significant improvement. reducing the prevalence of HIV/AIDS.
100/100,000 live births Probability: Unlikely
MDGs for Present Status/ Probability UNDP’s Contribution
Mozambique of Meeting the Goal by 2015

Goal 6: Combat HIV/AIDS, malaria and other diseases

Halt and reverse the HIV prevalence among adults UNDP has contributed directly to reducing HIV pre-
spread of HIV/AIDS has increased from 3.3% in valence by establishing the National AIDS Council, by
1992 to 14.8% in 2004 and assisting in the drafting of a National Strategic Plan,
will reach 16.3% in 2010. providing institutional assistance to the AIDS Com-
Probability: Unlikely mission at the Maputo Hospital and by mainstreaming
AIDS in its governance and poverty programming.

Halt and reverse the Proportional rate of malaria UNDP has not contributed to reducing
incidence of malaria mortality in inpatient wards the incidence of malaria.
was 32% in 1998, 42% in
1999 and 40% 2000.
Probability: Unlikely

Goal 7: Ensure environment sustainability

Raise rural water 29% of rural areas and 36% UNDP has contributed indirectly to rural infrastructure
access to 67% of urban areas have access through its decentralization programme that funds
and urban water to safe water supplies in 2004 priority social infrastructure identified by district
access to 62%. Probability: Unlikely planning consultative councils. Some of these are
water facilities. UNDP has also supported
implementation of the Water Sector Strategy.

Integrate principles The government’s Action Plan UNDP previously contributed directly to integrating
of sustainable for the Reduction of Absolute sustainable development into national planning
development into Poverty notes few linkages by supporting the implementation of the Government’s
country programmes between environment National Environment Management Programme.
and reverse loss of and poverty.
environmental resources Probability: Unlikely

Goal 8: Develop a partnership for development

Make available .4% of the population had UNDP has contributed directly to increasing
information and access to a computer and access to ICT by supporting the ICT Policy
communication .2% used the internet Commission and by forming Provincial Digital
technologies (ICT) Probability: Unlikely Resource Centres (CPRDs) in two provinces.

Source: World Bank, Country Assistance Strategy for the Republic of Mozambique, 2003; UNDP Evaluation Office preparatory documentation for the ADR mission, 2003;
UNDP Human Development Report, 2003,Oxford: 2003
 ANNEX 5: STRATEGIC RESULTS FRAMEWORK WITH INTENDED OUTCOMES FOR CCF2

A N N E X 5 : S T R AT E G I C R E S U LT S F R A M E W O R K
W I T H I N T E N D E D O U TCO M E S F O R CC F 2

Governance
Outcome 1 Increased public awareness of Sustainable Human Development
Dialogue

Outcome 2 Increased effectiveness of parliament to perform its functions

Parliament

Outcome 3 Increased capacity of the justice sector to improve the administration of justice,
Justice law and order incorporating international norms for human rights

Outcome 4 Increased public awareness of human rights treaties and norms

Justice

Outcome 5 Effective legal and policy framework for decentralization and local governance
Decentralization

Outcome 6 Improved Capacity to efficiently and equitably provide public services

Public sector
81
Poverty
Outcome 7 The policy and planning framework of the country incorporates a comprehensive
All projects approach to reduction of human and income poverty taking account of the
Millennium Development Goals

Outcome 8 Institutional capacity to plan and implement multisectoral strategies

Limit spread of to limit the spread of HIV/AIDS and mitigate its socioeconomic impact
HIV/AIDS

Outcome 9 Improved access to financial services by the poor and other disadvantaged groups
Microfinance

Environment and Energy for Livelihoods

Outcome 10 Improved capacity of authorities to plan and implement in tegrated
Environment approach to environmental management responding to needs of poor

UN Support
Outcome 11 Effective use of UNDAF to facilitate the national response to global goals
Global goals

Outcome 12 Harmonized and simplified planning and programming requirements

UN agency within the UNDG
coordination
 ANNEX 6: DISTRIBUTION OF UNDP RESOURCES BY SRF GOALS

A N N E X 6 : D I S T R I B U T I O N O F U N D P R E S O U R C E S B Y S R F G OA L S

UNDP Resource Distribution 1

80,000,000

70,000,000
Gross Budget Amounts

60,000,000

50,000,000

40,000,000

30,000,000

20,000,000

10,000,000

0
Governance Poverty Environment Gender Special Dev. Other
Situations

Goal Categories

UNDP Resource Distribution 2

60 83

50
Gross Budget Amount

40

30

20

10

0
G1 G2 G3 G4 P1 P2 E1 E2 1 2 SD 1 G1 G1
Gen Gen

Sub-Goal Categories

Special Dev.
Situations Other
7% 12%

Environment
Governance
30%
23%

Gender
0%
Poverty
28%
 ANNEX 7: SELECTION OF PARPA INDICATORS AND TARGETS

A N N E X 7 : S E L E C T I O N O F PA R PA I N D I C ATO R S A N D TA R G E T S

Objective Indicator Situation in 1999 Target for 2004

Access to Education
To ensure that children have Gross Enrollment 74.9% 88.1%
access to basic education of
acceptable quality, taking into
account the need to reduce
regional and gender disparities
in admission and school performance
To ensure access to school for girls and Proportion of girls in EP1 43% 45%
their permanent attendance

Increased Productivity in Agriculture

Increase productivity of small Proportion using pesticides 1.8% 6%
farmers, especially those with and fertilizers
labour problems through
investment in extension activities

Infrastructure Network Expanded and Improved

Expand and improve the quality Reduce proportion of poor roads 32% 25% 85
of roads to permit marketing and
reduce transaction costs, especially
in districts with the highest agricultural
and livestock potential

Expanded Access and Better Health Care

Objective Indicator Situation in 1999 Target for 2004
Improve access and quality of Hospital maternal 150/100,000 100/100,000
health care for women mortality

Source: Government of Mozambique, Action Plan for the Reduction of Absolute Poverty 2000-2004, Maputo: 1999
 ANNEX 8: ACRONYMS

A N N E X 8 : AC R O N Y M S

ADR Assessment of Development Results

AIDS Acquired Immune Deficiency Syndrome
CCA Common Country Assessment
CCF1 First Country Cooperation Framework (1998-2001)
CCF2 Second Country Cooperation Framework (2002-2006)
CPRD Provincial Digital Resource Centre
DANIDA Danish International Cooperation Agency
DBS Direct budget support
DPG Development Partners Group
FAO Food and Agriculture Organization
FRELIMO Liberation Front of Mozambique
G15 Group of 15
HDI Human Development Index 87

HIPC Heavily Indebted Poor Country

HIV Human Immunodeficiency Virus
ICT Information and Communication Technology
IMF International Monetary Fund
IND National Demining Institute
INGC National Disaster Management Institute
JDR Joint Donor Review
LDC Least Developing Country
MDG Millennium Development Goal
MLIS Mozambique Landmine Impact Survey
NAC National AIDS Council
NGO Non Governmental Organization
NHDR National Human Development Reports
OECD Organization of Economic Cooperation and Development
PAF Performance Assistance Framework
PAF Performance Assistance Framework
PAP Programme Aid Partners
PARPA Action Plan for the Reduction of Absolute Poverty
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

PES Economic and Social Plan

PRSP Poverty Reduction Strategy Paper
RENAMO National Resistance Movement of Mozambique
ROAR Results-Oriented Annual Reports
SADC Southern African Development Community
SRF Strategic Results Framework
SWAps Sector Wide Approaches
UN United Nations
UNAIDS The Joint United Nations Programme on HIV/AIDS
UNCDF United Nations Capital Development Fund
UNCT United Nations Country Team
UNDAF United Nations Development Assistance Framework
88 UNDP United Nations Development Programm
UNESCO United Nations Educational, Scientific and Cultural Organization
UNFPA United Nations Population Fund
UNICEF United Nations Children's Fund
UNMAS United Nations Mine Action Service
UNOMOZ United Nations (Peacekeeping) Operations in Mozambique
USAID United States Agency for International Development
WB World Bank
WFP World Food Programme
WHO World Health Organization
ANNEX 9: TERMS OF REFERENCE

ANNEX 9: TERMS OF REFERENCE

TERMS OF REFERENCE

1. Background
The Evaluation Office (EO) of the United Nations Development Programme
(UNDP) launched a series of country evaluations, called Assessments of
Development Results (ADRs), in order to capture and demonstrate evaluative
evidence of UNDP’s contributions to development results at the country level.
Undertaken in selected countries, the ADRs focus on assessing UNDP’s
added value and the difference its contributions make to the country’s devel-
opment challenges with a view to enhancing performance and strategically
positioning the organization’s suppor t within national development priorities
and emerging corporate policy directions. The overall objectives of the
Assessments of Development Results are:
• Support the Administrator’s substantive accountability function to the
Executive Board and serve as a vehicle for quality assurance of UNDP
89
interventions at the country level.

• Generate lessons from experience to inform current and future

programming at the country and corporate levels.

• Provide to the stakeholders in the programme country an objective

assessment of results (specifically development outcomes) that have
been achieved through UNDP support and in partnerships with other
key actors in a given period.
An Assessment of Development Results is planned for Mozambique
beginning May 2004. It will cover the periods 1998-2001, and 2002-2006 (i.e.
the 1998-2001 Country Cooperation Framework (CCF)). The assessment
will as necessary also cover preceding periods where there is evidence that
UNDP support prior to 1998-2001 has served as a foundation for present
developments.

2. Objectives of the assessment

The purpose of the evaluation is to review the experience of UNDP in
Mozambique; draw lessons learned and recommend improvements for
strengthening UNDP’s overall performance and support to the country. The
Assessment of Development Results in Mozambique will:
• Provide an overall assessment of the results achieved through UNDP
support and in partnership with other key development actors during
1998-2001.
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

• Provide an analysis of how UNDP has positioned Framework (UNDAF); the Global Cooperation
itself strategically to bring added value and responded Framework (GCF) and the Regional Cooperation
effectively to national development needs and priori- Framework (RCF). This may include examining how
ties to changes in the national development situation. UNDP has leveraged its resources and that of others
towards the achievement of results, the balance
• Based on the analysis of key achievements and overall between upstream and downstream initiatives and
findings; draw key lessons and provide clear and the work on MDGs.
forward-looking recommendations in order to
suggest optimal strategies for the UNDP in the future. • The Evaluation should consider the influence of sys-
temic issues, i.e. policy and administrative constraints
5. Scope of the assessment affecting the programme, on both the donor and pro-
gramme country sides, as well as how the development
The evaluation will undertake a comprehensive review of
results achieved and the partnerships established have
the UNDP programme portfolio and activities during the
contributed to ensure a relevant and strategic posi-
period under review, with a more in-depth focus on
tioning of UNDP support.
governance and poverty. Specifically, the ADR will cover
the following:
B. DEVELOPMEN T R E S U LT S

A. S T R AT E G I C POSITIONING
• Provide an examination of the effectiveness and
• Ascertain the strategic focus of UNDP support and sustainability of the UNDP programme, by: (a)
its relevance to national development priorities, highlighting main achievements (outcomes) at
including relevance and linkages with the overarching national level in the last five years or so (some results
goal of reducing poverty and the Millennium have their origin in efforts prior to 1997) and UNDP’s
90 contribution to these in terms of key outputs; (b)
Development Goals (MDGs). This may include an
analysis of the perceived comparative strengths of ascertaining current progress made in achieving
the programme and a review of the major national outcomes in the given thematic areas of UNDP’s
challenges to development. The evaluation will support. The evaluation should qualify the UNDP
assess UNDP support in relation to the government’s contribution to the outcomes with a fair degree of
macro-economic and social development policies plausibility, and consider anticipated and unanticipat-
and strategies; the NAPED and Interim Poverty ed, positive and negative outcomes. It should also
Reduction Strategy Paper (I-PRSP). The aim is to gauge the contribution to capacity development at
ascertain the added value of UNDP support in effec- the national level as well as the degree of national
tively contributing to and influencing the national ownership and sustainability of these results. The
development through strategic priority setting and assessment will cover the key results and support in
intervening at optimal entry points. all thematic areas (governance, poverty, environment,
gender, HIV/AIDS, ICT, and any other areas as
• Assess how UNDP has anticipated and responded appropriate).
to significant changes in the national development
context within the core areas of focus. In this regard, • Identify and analyze the main factors influencing
the ADR may, for example, consider key events at results, including the range and quality of develop-
national and political level that influence and affect ment partnerships forged and their contribution to
the development environment; the risk management outcomes, the provision of upstream assistance and
of UNDP; any missed opportunities for UNDP policy advice and partnership strategy and how the
involvement and contribution; its efforts at advocacy positioning of UNDP influences the results.
and policy advice and UNDP’s responsiveness. The
evaluation should bring out the choices made by • Assess the anticipated progress in achieving intended
UNDP in response to government reforms and outcomes, against the bench marks and indicators set
explain the rationale behind these choices. under the SRF Outcomes (see Annex 1) and the
1998-2001 CCF objectives and proposed future
• Review the synergies and alignment of UNDP programmes and, where this is relevant, against
support with other initiatives and partners, including the MDG targets.
that of the United Nations Development Assistance
 COUNTRY EVALUATION: ASSESSMENT OF DEVELOPMENT RESULTS – MOZAMBIQUE

• Provide an in-depth analysis of the two thematic preparation (with preliminary desk review, programme
areas, governance and poverty and identify the key mapping, TOR proposal, exploratory mission to the
challenges and strategies for future interventions in Country Office, theme-specific desk research and local
each area. These two subjects have been selected based studies and research); conducting the ADR by the country
on notable UNDP involvement in the past, complexity evaluation mission; and use of the ADR and follow-up (dis-
in terms of inter-linkages and synergies with other semination, corporate discussions, country office manage-
areas; and the growing challenges expected in the ment response, stakeholder consultations, learning events).
next stage of the country’s development. Preparatory work at the local level will be carried out in
advance to provide substantive background for the
C. LESSONS A N D G O O D P R AC T I C E S Evaluation Team. These in depth studies in poverty and
governance will be conducted by local research institute
• Identify key lessons in the thematic areas of focus and or companies. The Mozambican team will also be charged
on strategic positioning that can provide a useful basis with conducting select surveys of key partners through
for strengthening UNDP support to the country and questionnaires. The in-depth study work may entail the
for improving programme performance, results and review of available reports, collecting additional documen-
effectiveness in the future. tation, conducting select interviews, field visits and analysis
and focus group discussions. This work will be based on spe-
6. Methodology cific TOR in addendum to these generic terms of refrence.
The assessment will employ a variety of methodologies
including desk reviews, stakeholder meetings, client sur-
7. Expected outputs
veys, and focus group interviews and select site visits. (See The main expected output is the comprehensive final report
Annex for a range of evaluation techniques) The Evaluation on " Mozambique Country Evaluation: Assessment of
Team will review national policy documents (including the Development Results", including relevant annexes with 91
National Poverty Eradication Plan or PARPA), which give detailed data. In addition, supporting studies in poverty and
an overall picture of the country context. The Team will also governance will be available.
consider any thematic studies/papers, select project docu- Prior to leaving the country, the Evaluation Team will
ments and Programme Support Documents as well as any discuss its preliminary findings and recommendations with
reports from monitoring and evaluation at country level, as the Resident Representative and the Country Office
well as available documentation and studies from other staff and present these to the Government and partners
development partners. Statistical data will be assessed at a meeting of key stakeholders. The Team will use this
where useful. Empirical evidence will be gathered through feedback to finalize the report.
three major sources of information: documented
records, interviewee perceptions and the validation of
and cross-referencing of all sources and the information
gathered through a process of ‘triangulation’. (See ADR
Methodology Guidelines)
A wide stakeholder consultation and involvement is
envisaged. The Evaluation Team will meet with Government
Ministries/institutions at central and province level, research
institutions, civil society organizations, NGOs and private
sector representatives, UN Agencies, Bretton Woods institu-
tions, bilateral donors, and beneficiaries.
The Team will visit field/project sites in a representa-
tive sample of states and communities to ensure a balanced
coverage of all the country’s regions as will be decided by
the Evaluation Team and the EO in consultation with the
country office.
In terms of methodology, the ADR will follow the
guidance issued by the Evaluation Office, and consist of