ASSESSMENT OF DEVELOPMENT RESULTS

ASSESSMENT OF DEVELOPMENT RESULTS

E V A L U A T I ON OF UNDP CONT R I B UT I ON GUYANA

HUMAN DEVELOPMENTeffectiveness COORDINAT

GUYANA
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NATIONAL OWNERSHIP relevance MANAGINGFO
sustainability MANAGINGFOR RESULTS responsiven
AN DEVELOPMENTresponsiveness NATIONAL OWN
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effectiveness
ASSESSMENT OF DEVELOPMENT RESULTS
E V A L U A T I ON OF UNDP CONT R I B UT I ON GUYANA

Evaluation Office, May 2010

United Nations Development Programme
REPORTS PUBLISHED UNDER THE ADR SERIES
Afghanistan Egypt Nigeria
Argentina Ethiopia Philippines
Bangladesh Georgia Peru
Barbados Guatemala Rwanda
Benin Guyana Serbia
Bhutan Honduras Seychelles
Bosnia & Herzegovina India Sudan
Botswana Indonesia Syrian Arab Republic
Bulgaria Jamaica Tajikistan
Burkina Faso Jordan Turkey
Cambodia Lao PDR Uganda
Chile Libya Ukraine
China Maldives Uzbekistan
Colombia Montenegro Viet Nam
Republic of the Congo Mozambique Yemen
Ecuador Nicaragua Zambia

EVALUATION TEAM

Team Leader Anne Gillies

Team Members Virginia Ravndal

Perry Mars

Evaluation Office Task Manager Azusa Kubota

Research Assistant Zembaba Ayalew

ASSESSMENT OF DEVELOPMENT RESULTS: GUYANA

Copyright UNDP 2010, all rights reserved.

Manufactured in the United States of America. Printed on recycled paper.

The analysis and recommendations of this report do not necessarily reflect the views of the
United Nations Development Programme, its Executive Board or the United Nations Member
States. This is an independent publication by UNDP Evaluation Office.

Cover photographs provided by UNDP Guyana.

Copy editing: Denise M. Doig

Graphic design: Laurie Douglas Graphic Design (www.lauriedouglas.com)
Printing: Consolidated Graphics
FOREWORD

This is an independent country-level evaluation but some of these challenges are being addressed
called the Assessment of Development Results under leadership of the country office.
(ADR) conducted in Guyana by the Evaluation
Office of the United Nations Development The ADR highlighted a number of issues and
Programme (UNDP). This evaluation examined challenges that are shared by UNDP country
the relevance and strategic positioning of UNDP offices in middle-income countries. In order to
support and its contributions to the countrys continue to be relevant and effective, UNDP
development from 2001 to 2010. It assessed needs to define its strategic niche and constantly
UNDP Guyanas interventions under the four change its role in a fast evolving environ-
thematic areas of the country programme (poverty ment. To support the countrys transition to a
reduction, democratic governance, environ- middle-income status, the ADR recommends
ment and energy, and disaster recovery and risk UNDP Guyana continue to reorient and shift
reduction), with an intention to provide forward- its programming towards higher-level policy
looking recommendations that are useful for analysis and advice from community-level invest-
the formulation of the new UNDP country ments. National stakeholders expressed their
programme in Guyana. The ADR process endorsement of this recommendation based on
benefited from a participatory stakeholder the strengths of UNDP in Guyana and the
workshop held in April 2010 in Guyana. The countrys priorities. The ADR also reminded
workshop was attended by approximately 60 UNDP of the importance in maintaining a fine
national participants, including key senior balance between Guyanas short-term emergency
government officials and high-level representa- needs and long-term development needs. UNDP
tives from civil society, political parties, the UN Guyana has quickly mobilized resources to attend
system and bilateral donors. to the countrys emerging priorities, but this
was done, at times, at the expense of meeting
During the period under evaluation, Guyana long-term development support outlined in the
has graduated from the Heavily Indebted programme documents. As external assistance
Poor Countries status and has now become a for development activities from traditional
lower-middle income country. Despite progress development partners continues to reduce, there
made, Guyana continues to face challenges of is a need for UNDP to stay focused on issues
out-migration of educated people, poverty and where it has comparative advantage and help
uneven levels of human development among its Guyana explore alternative sources of support
people. Guyana also experienced pressing needs through South-South, regional and public-
due to the devastating floods of 2005 and the 2006 private partnerships. It is my sincere hope that
elections. UNDP Guyana responded to these this ADR has provided UNDP Guyana, UNDP
emerging needs well, while supporting long-term globally and national partners with an opportu-
development priorities within the framework of nity to reflect on the role of UNDP in Guyana
the key national development strategies notably and other emerging middle-income countries.
the National Development Strategy and the
Poverty Reduction Strategy Paper. The ADR A number of people contributed to this evalua-
identified challenges with programme manage- tion. First and foremost, I would like to thank the
ment such as delayed project implementation, independent evaluation team, led by Anne Gillies,
weak monitoring and evaluation and inadequate and its members, Virginia Ravndal and Perry
sizes of interventions to ensure lasting change, Mars. I thank the external reviewers of the draft

FOREWORD iii
 report, Dennis Ben, professor at the University team with invaluable support. I would also
of the West Indies, and Fuat Andic, independent like to thank the UNDP Regional Bureau for
consultant, as well as research assistant Zembaba Latin America and the Caribbean, especially
Ayalew. My sincere gratitude is extended to Senior Programme Advisor Carla Khammar for
all the people in Guyana: the Government supporting the ADR process, participating in
of Guyana, political parties, civil society, the the stakeholder workshop and representing the
international development community, the UN regional bureaus commitment to the evaluation
family, the private sector, local authorities and follow-up. Finally, let me thank our colleagues
members of the communities where the ADR in the Evaluation Office: Azusa Kubota, task
team visited during the evaluation mission. manager of this evaluation, as well as Oscar
Garcia, Fabrizio Felloni, Michael Reynolds,
The evaluation would not have been possible Thuy Hang To, Michelle Sy, and Anish Pradhan
without the support provided by colleagues in for their support.
UNDP Guyana: Resident Representative Kiari
Liman-Tinguiri, Deputy Resident Representative
Didier Trebucq, and the ADR focal persons
including Patsy Ross, Amaly Kowlessar, Nadine
Livan and Kenroy Roach. All other programme, Saraswathi Menon
project and operations staff provided the ADR Director, Evaluation Office

iv FOREWORD
CONTENTS

Acronyms and Abbreviations vii

Executive Summary ix
Chapter 1. Introduction 1
1.1 Objective and scope of the ADR 1
1.2 Methodology 3
1.3 Structure of the report 4

Chapter 2. Development Challenges and National Strategies 7

2.1 National development priorities 7
2.2 Role of external assistance 12

Chapter3. UNDP Response and Strategies 15

3.1 UN and UNDP roles in Guyana 15
3.2 UNDP development approach 17

Chapter 4. UNDP Contributions to Development Results 23

4.1 Effectiveness 32
4.2 Efficiency 34
4.3 Sustainability 30
4.4 Country programme management 34

Chapter 5. Strategic Positioning of UNDP 41

5.1 Strategic relevance 41
5.2 Responsiveness 43
5.3 Strategic partnerships 44
5.4 Contribution to UN values 46
5.5 Contribution to UN coordination 48

Chapter 6. Conclusions and Recommendations 51

6.1 Conclusions 51
6.2 Recommendations 57

Annexes
Annex 1. ADR Terms of Reference 61
Annex 2. Evaluation Framework 69
Annex 3. Results Overview for the UNDP Guyana Country Programme 2001-2008 85
Annex 4. List of Individuals Consulted 89
Annex 5. List of Documents Consulted 95

CONTENTS v
 Tables
Table 1. Evaluation Criteria and Key Questions 1
Table 2. Key Economic and Social Indicators for Guyana, 2000/2001 and 2006/2007 8
Table 3. ODA Flows to Guyana 2001-2007 13
Table 4. Major International Donors to Guyana 2001-2007 13
Table 5. Thematic Areas and National Development Partners for UNDP in Guyana 18
Table 6. Results Overview for Guyana Country Programme 18
Table 7. Annual Programme Expenditures for UNDP Guyana 2004-2008 21
Table 8. Estimated Total Project Expenditures by Thematic Area for
UNDP Guyana 2001-2008 21
Table 9. Thematic Area Expenditures by UNDP Guyana 2004-2007 21
Table 10. UNDP Guyana Balanced Scorecard Report Summary 2004-2007 35

vi CONTENTS
ACRONYMS AND ABBREVIATIONS

ADR Assessment of Development Results

AIDS acquired immune deficiency syndrome
AWP Annual Work Plan
BCPR Bureau for Conflict Prevention and Recovery (UNDP)
CARICOM Caribbean Community
CCA Common Country Assessment
CCF Country Cooperation Framework
CDB Caribbean Development Bank
CDC Civil Defence Commission
CDERA Caribbean Disaster and Emergency Response Agency
CIDA Canadian International Development Agency
CPAP Country Programme Action Plan
CPD Country Programme Document
CREDP Caribbean Renewable Energy Development Programme
CSME Caribbean Single Market Economy
DEX direct execution
DFID Department for International Development (United Kingdom)
DISSC Development of Institutional Social Statistics Capacity
EPA Environmental Protection Agency
EPTSI Enhance Public Trust, Security and Inclusion
EU European Union
FAO Food and Agriculture Organization of the United Nations
FTI Fast Track Initiative
GECOM Guyana Elections Commission
GEF Global Environment Facility
GoG Government of Guyana
GSI Guiana Shield Initiative
HIPC Heavily Indebted Poor Countries
HIV human immunodeficiency virus
IDB Inter-American Development Bank
ILO International Labour Organization
IMF International Monetary Fund
IT information technology
LCDS Low Carbon Development Strategy
MDG Millennium Development Goals
MMU Media Monitoring Unit
MoF Ministry of Finance

ACRONYMS AND ABBREVIATIONS vii

 MoFA Ministry of Foreign Affairs
MOU memorandum of understanding
NDS National Development Strategy
NEX national execution
NGO non-governmental organization
NIM national implementation
ODA official development assistance
OECD Organisation for Economic Co-operation and Development
OP Office of the President
PRSP Poverty Reduction Strategy Paper
RC Resident Coordinator
RR Resident Representative
SCP Social Cohesion Project
SLM sustainable land management
TRAC target for resource assignment from the core
UNAIDS Joint United Nations Programme on HIV/AIDS
UNCBD United Nations Convention on Biodiversity
UNCT United Nations Country Team
UNCTAD United Nations Conference on Trade and Development
UNDAF United Nations Development Assistance Framework
UNDP United Nations Development Programme
UNECLAC United Nations Economic Commission for Latin America and the Caribbean
UNEG United Nations Evaluation Group
UNESCO United Nations Educational, Scientific and Cultural Organization
UNFCCC United Nations Framework Convention on Climate Change
UNFPA United Nations Population Fund
UNICEF United Nations Childrens Fund
UNIFEM United Nations Development Fund for Women
UN-REDD United Nations Programme on Reducing Emissions from
Deforestation and Degradation
UNV United Nations Volunteers

viii ACRONYMS AND ABBREVIATIONS

EXECUTIVE SUMMARY

INTRODUCTION composed of three external consultants and a task

manager from the UNDP Evaluation Office, and
Located on the north eastern coast of South
supported by the work of a research assistant.
America with a landmass of 214,969 square
The ADR covered the time period from 2001
kilometers, Guyana is the only English-speaking
to 2008. UNDP launched its second Country
country on the continent and had an estimated
Cooperation Framework (CCF) for Guyana in
population of 736,000 persons in 2008. The
2001, which was extended to 2005. From 2006
population is concentrated in a narrow coastal
to the present, the programme has operated
belt bordering the Atlantic Ocean, an area
under the County Programme Document (CPD)
that occupies only 10 percent of Guyanas land
and Country Programme Action Plan (CPAP),
mass. Approximately 76.7 percent of Guyanas
which was co-designed with and approved by the
land surface is covered by dense forest, where
government of Guyana in line with the countrys
scattered communities of the native Amerindian
main development priorities as found in the
population live. Guyanas small population is
2001-2006 Poverty Reduction Strategy Paper
composed of six different ethnic groups, the
(PRSP).
largest of which are those of East Indian descent,
who are about 43.4 percent of the population,
The broad objectives of the ADR were to
and Afro-Guyanese with about 30.2 percent.
assess overall UNDP performance and contribu-
The other main groups are mixed race (16.7
tion to the development of Guyana during the
percent), native Amerindians (9.2 percent) and
past two programming cycles (2001-2005 and
the Chinese, Europeans and others totaling 0.3
2006-2010), and to extract recommendations to
percent. The countrys economy is traditionally
be applied in the design of future country strate-
based on three main export commodities: sugar,
gies, particularly for the next programming cycle
rice and minerals such as gold and bauxite. The
starting in 2012.1
agricultural sector, which is mainly sugar and rice
production, is the major contributor to Guyanas
The ADR focused on several key criteria
economy with about 30 percent of GDP in
and topics that are standard across all ADRs
2007, followed by industry (mainly mining and
conducted by the UNDP Evaluation Office.
manufacturing) with 23 percent, and services
UNDP performance in contributing to develop-
(including the public sector) comprising about
ment results in Guyana (as embodied in the CCF
47 percent. Environmental issues are of partic-
and CPD/CPAP) was assessed. The strategic
ular importance in Guyana due to its key role
positioning of UNDP was also assessed, that is,
in global forestry conservation as evidenced by
how UNDP situated itself within the develop-
recent launch of the Low Carbon Development
ment and policy space of the country and what
Strategy (LCDS).
strategies it took in assisting the development
efforts led by the government and people of
The Assessment of Development Results (ADR),
Guyana. The specific criteria applied were:
which was an evaluation of UNDP contribution
effectiveness, efficiency, sustainability, strategic
to Guyana, was conducted between May and
relevance, strategic partnerships, responsiveness,
July 2009 by an independent evaluation team

1
The Guyana programme in UNDP has been extended to 2011.

EXECUTIVE SUMMARY ix
 and contribution to UN values and coordination. projects and expenditures were in environment
Under each criterion, specific subcriteria were and energy, followed by democratic governance,
used based on an evaluation framework approved poverty reduction and disaster recovery and risk
by the Evaluation Office with extensive input reduction. Presented below are key findings in
from the main stakeholders in Guyana. each of these thematic areas.

The ADR process unfolded in several stages. Poverty reduction: The ADR found that
Following a scoping mission in June 2009, work on poverty and livelihoods contributed to
planning was conducted and a main mission planned country results as well as provided some
took place in July 2009. After the data collection immediate benefits for vulnerable communi-
phase, the team analyzed the qualitative informa- ties and beneficiary groups, especially in remote
tion collected from more than 200 participants and rural communities. Poverty and livelihoods
(including main partners and beneficiaries) and work under the CCF cycle from 2001 to 2005
then an inception report was drafted to outline built on what had been done in the late 1990s,
the evaluation design. This report was carefully with a continued emphasis on community-
reviewed and revised several times through a based poverty reduction work with Amerindian
multi-stage quality assurance process, including peoples, women, youth and the rural poor in line
the Evaluation Office, expert external reviewers, with key PRSP-I objectives and aims as well as
UNDP senior management, the country office UNDP corporate strategy and values. During the
and government of Guyana. The final report CPD-CPAP period the programme continued to
was presented for discussion with country evolve; results for poverty reduction were defined
office colleagues and national partners during differently and there appeared to be attempts
the stakeholder workshop. The final evalua- to create a better balance between upstream,
tion report is the result of extensive input and policy-related work and downstream community
dialogue with a wide range of key partners in the initiatives. There was on-going support for
UNDP Guyana programme. building Millennium Development Goals
(MDG) and PRSP monitoring capacities in the
country (at both the national and regional levels),
UNDP IN GUYANA several pilot initiatives to support small-scale
The UNDP Guyana country programme is economic development for isolated communities,
managed from the country office in Georgetown, and capacity building for small-scale entrepre-
Guyana, which is currently staffed with approx- neurs via the EMPRETEC project. However,
imately 30 people. From 2004 to 2008, the several smaller-scale, downstream initiatives
average annual expenditure for the programme in community-based poverty reduction faced
was $3.55 million. From 2001 to 2008, the challenges in capturing the lessons of pilot initia-
country programme supported 34 development tives as well as linking their effects to broader
initiatives totaling approximately $24 million, policy reform aims.
which included both core and non-core resources.
Democratic governance: Beginning in the early
Since 2001 the UNDP Guyana programme has 2000s, UNDP work on democratic governance
focused its efforts within four main thematic was based on continued involvement at the
areaspoverty reduction, democratic governance, request of government in supporting national
environment and energy, and disaster recovery elections and on-going dialogue concerning how
and risk reductionas well as gender equality to strengthen the countrys key public sector and
as a cross-cutting theme, which are all consis- governance institutions. Several specific projects
tent with the first and second multi-year funding had some success in meeting their planned
frameworks and the current corporate strategic results over both programme cycles. During the
plan (2008-2011), The largest number of CCF period, UNDP contribution was somewhat

x EXECUTIVE SUMMARY
limited in scope in comparison to the original for biodiversity and land use management regula-
plans outlined in the programme document, tions were also expanded in response to emerging
probably due to changes in the overall context. needs. The major partners and beneficiaries
Consistent technical support was offered to the for UNDP Guyanas work in this area were
Guyana Electoral Commission (GECOM) and the Environmental Protection Agency (EPA),
UNDP Guyana played a noteworthy role in at a broader institutional level, and various
negotiating multi-donor support for peaceful Amerindian communities in the hinterland areas,
conduct during the 2006 elections. UNDP work which involved building capacities for local land
in democratic governance did not dramatically use planning and biodiversity management.
expand from the CCF to CPD-CPAP periods, Projects implemented by the EPA included
although the Social Cohesion Programme conducting training workshops for key personnel
(SCP) did make some acknowledged contribu- from the EPA, the Guyana Forestry Commission
tions to national unity-building and constructive and other environment-related agencies. The
dialogue. However, the SCP evaluation noted ADR found that institutional capacity building
that there were some weaknesses in the project, had a positive cumulative effect over several
including its somewhat fragmented approach years, but there was a need for continued support
and its failure to truly build local organizational to further enhance EPA capacities for regulatory
capacity or sufficiently engage local government enforcement. Work with Amerindian communi-
structures, which was corroborated by the ADR ties led to increased recognition over time among
teams own research. In 2007 the so-called Fast policy makers of the need to consult with affected
Track Initiative (FTI) spearheaded by UNDP communities, as witnessed by the extensive
Guyana mobilized a wide range of mainly short- consultations currently taking place around the
term responses to the Bartica and Lusignan LCDS. This was also effective in assisting many
massacres, which appeared to help decrease the hinterland communities to become stronger
potential for wider social and political unrest advocates for local environmental management
among affected communities. UNDP Guyana practices. UNDP Guyana helped increase the
also engaged with both women (especially in resources available to Guyana via the Global
the early to mid-2000s) and with youth in its Environment Facility (GEC), thereby assisting
democratic governance programming. the country to meet global climate change
reporting requirements.
Environment and energy: UNDP Guyana made
some useful contributions to national results in Disaster recovery and risk reduction: The
the environment and energy area, and there were ADR found that UNDP made several useful
several examples of moderately effective projects contributions to country objectives and priori-
that helped to build both individual and institu- ties in disaster recovery and management. This
tional capacities around natural resource and included support for both short-term response
biodiversity management. The scope and variety to emergency situations and longer-term aims to
of programming in the environment thematic area reduce Guyanas vulnerability to climate change
as a proportion of the total country programme and rising sea levels via capacity strengthening
increased over time, indicating both its emerging with key bodies such as the Civil Defense
importance in Guyana and the ability of UNDP Commission (CDC) and National Drainage and
to respond and adapt accordingly. In response Irrigation Authority. Two major floods2005
to emerging government interest in renewable being the most seriousresulted in 60 percent of
energy issues, which surfaced in the early 2000s, Guyanas GDP being lost. UNDP supported the
UNDP Guyana increased its funding for this immediate post-flood recovery and reconstruc-
area and over the past several years supported tion process in Guyana starting in March 2005,
an important pilot project in increasing access to as well as follow-up to provide short-term
renewable energy for hinterland areas. Support livelihood inputs to the most-affected rural

EXECUTIVE SUMMARY xi
 communities. This further reinforced the need to but these effects were difficult to measure.
better prepare for and build long-term capacity Currently one of the main challenges for
to respond to natural disasters and climate poverty reduction in Guyana is that UNDP
change. UNDP had previously assisted the is viewed by most stakeholders as a source
government to prepare a comprehensive disaster of funds for small-scale, community-based
management strategy for Guyana. Following the work by a range of government, non-state
2005 floods, UNDP was involved in planning and international partners. Efforts are
for a comprehensive new project to strengthen now being made to shift the focus towards
local and national capacities for disaster response broader, upstream initiatives in line with
and risk reduction, which was launched in UNDP corporate priorities. In the future,
2008 in close conjunction with other interna- UNDP Guyana will need to realistically
tional partners including the Inter-American consider what it can contribute at the grass-
Development Bank (IDB). The project will roots level of poverty reduction, in terms
support an update of the 2003 draft compre- of small-scale, one-off economic develop-
hensive disaster management strategy funded ment initiatives, due to its limited resources
by UNDP, an update of emergency response and the need to focus on underlying policy
and flood response plans, plus extensive capacity and structural issues to the greatest extent
development for the CDC. possible.
In democratic governance, UNDP Guyana
MAIN CONCLUSIONS contributed to the peaceful conduct during
the 2006 elections and was also successful in
1. In terms of overall development effective- promoting new paradigms of social inclusion
ness, since 2001 UNDP Guyana made some in the country through the SCP, although
progress towards its planned outcomes it was very difficult to judge whether any of
in all four thematic areas, which in turn this work produced deeper changes to break
contributed to Guyanas overall develop- down ethnic tensions in the country. So far
ment priorities and aims. very little has been done in public adminis-
tration reform to enhance the institutional
The UNDP country programme was charac- or policy frameworks related to account-
terized by very positive synergies among all ability and transparency of the public service,
the thematic areas, which enhanced effec- which was a planned outcome under the
tiveness and was a sensible approach for a CPD-CPAP. New initiatives currently being
country programme of this size. The main planned to strengthen aid coordination and
challenges in the area of effectiveness con- poverty monitoring during the remainder of
sisted of finding the appropriate mix of the programme cycle may address these gaps
policy-oriented and community-based inter- to some extent at least.
ventions, ensuring that useful linkages were
forged between the two levels on an on-going The environment and energy thematic
basis, and choosing the right combination of area also made some contributions towards
short-term initiatives or project investments country-led objectives and outcomes, and
so that longer-term programme outcomes the scope of work has gradually expanded
could be achieved in a clear and demon- since 2001. UNDP Guyana contributed to
strable way. the governments emerging priorities and
needs in renewable energy, and support
In poverty reduction, the ADR concluded became increasingly focused on natural
that UNDP had contributed to national resource management systems and access to
capacity strengthening for poverty eradica- alternative energy sources in under-serviced
tion in line with main PRSP-I objectives, rural areas. Commendable progress was also

xii EXECUTIVE SUMMARY

 made towards strengthening management in terms of both their financial or organiza-
and protection of natural resources (by gov- tional viability and their ability to produce
ernment and local communities), as well lasting development benefits for partici-
as economic and social empowerment of pants. Lessons learned from pilot initiatives
Amerindian communities in the hinterlands. were not always extracted and applied.
The ADR concluded that UNDP Guyana
3. Programme management was strong, but
has the strong potential to play a highly stra-
with room for continued improvements in
tegic role in these sectors in the future.
some areas.
In natural disaster recovery and risk reduc-
The ADR concluded that the country pro-
tion, UNDP Guyana took a prominent role
gramme was in the process of overcoming
in coordinating the immediate response
a number of on-going management and
to the humanitarian crisis resulting from
resource mobilization challengesincluding
the 2005 floods and helping to strengthen
weaknesses in results formulation and
institutional capacities for more sustained
outcome level evaluation and reporting; as
disaster prevention and risk management.
well as delays in project planning, approval
The ADR concluded that UNDP contrib-
and implementationleading to numerous
uted to creating an enabling environment
extensions. There were also challenges with
for better long-term enforcement of existing
on-going follow-up, monitoring and quality
standards/codes that govern coastal devel-
assurance by the country office with project
opment and land use planning, as well as
partners and beneficiaries to ensure that
community involvement in disaster planning
problems were identified and corrective
and response.
action taken in a timely fashion. These issues
2. Efficiency and sustainability were variable are now being diagnosed and addressed by
for the UNDP Guyana programme. an increasingly proactive and systematic
management approach in the country office,
There were many examples of good mana-
but they will continue to require sustained
gerial efficiencies, which included strong
effort in the future.
synergies among thematic areas, leveraging
of resources, and acceptable financial dis- 4. UNDP demonstrated its strategic rele-
bursement rates and administrative expense vance in Guyana since the early 2000s, due
ratios according to UNDP corporate bench- to its alignment with country priorities
marks. However, many projects had to be within its four thematic areas.
extended due to implementation delays and
Overall UNDP comparative advantage cor-
some of the small-scale investments made
responds not just to the amount of funding
were possibly inadequate to assure lasting
it provided, which was relatively modest in
change resulting in developmental inef-
comparison to major international donors,
ficiency. At the time of the ADR, the
but also the degree to which its strategic
country programme had already begun to
inputs in capacity development, small-scale
initiate some improvements in these areas.
demonstration projects and peace-building,
Positive examples of sustainability arising
as well as its flexibility and adaptability,
from UNDP work in Guyana were mainly at
were and are highly valued by partners at
either the individual or organizational levels;
all levels. In the future UNDP strategic rel-
fewer examples were found of sustained
evance is likely to rely mainly on the quality
change being created at the policy and
and precision of its upstream policy work as
institutional levels. There were on-going
well as technical or capacity development
challenges with the conduct of small-scale
inputs within and across all four thematic
or pilot economic development initiatives
areas. UNDP Guyana has the possibility

EXECUTIVE SUMMARY xiii

 to maintain its strategic focus on support Support for the MDG led to improved gov-
for key institutional reforms, which will ernment commitment and stronger systems
strengthen the countrys future successful for tracking the countrys progress on global
development as an emerging middle-income development indicators. UNDP Guyana
country. The ADR noted that the past rel- maintained consistent engagement with vul-
evance and overall strategic positioning of nerable groups such as Amerindians and the
UNDP in Guyana has been influenced to rural poor. The ADR concluded that initia-
some extent by relatively high turnover in the tives with the vulnerable and poor could be
Resident Representative (RR) position. further strengthened if there were clear action
plans or strategies for the country programme
5. UNDP Guyana was responsive to emerging
outlining both the proposed coverage of
needs and forged strategic partnerships at
this work and its scope and rationale, par-
many different levels.
ticularly with Amerindians in remote, rural
The agency reacted quickly to emerging communities who are likely to be heavily
needs in many cases, for example, the 2008 affected by future economic and environ-
FTI, support for the 2006 elections and mental initiatives outlined under the LCDS.
the 2005 floods response. UNPD Guyana Weaknesses in gender mainstreaming also
also responded well to the increasing focus demonstrated the need to ensure that gender
on environment and energy issues in the is thoroughly integrated into the programme
country by mobilizing more resources and in the future. In terms of UN coordination,
technical support. Overall, the ADR found UNDP played a positive leadership role in
that UNDP Guyana was able to maintain UNDAF planning but so far there has been
an adequate balance between short-term weak implementation of joint programmes.
responsiveness and longer-term development It appeared that more practical steps need to
objectives. However, it was noted that the be taken by UNDP as the lead UN Country
high demands placed on the country office Team (UNCT) agency in Guyana to help
during 2005 and 2006 due to the floods support greater project-level collaboration
and elections did create some challenges between the resident UN agencies.
in terms of maintaining focus on longer-
term work. There has also been continuous
RECOMMENDATIONS
emphasis on partnership-building with key
national and international partners. When 1. Policy/upstream orientation
possible, UNDP Guyana has consistently
reached out to involve civil society and the UNDP Guyana should continue to reorient
private sector, with more pronounced and its programming towards higher-level
sustained partnerships in the poverty reduc- policy change and strategic upstream work
tion and democratic governance thematic in support of the new PRSP-II and LCDS.
areas and in environment and energy to UNDP Guyana should continue to
some extent. Challenges include the need strengthen its recent shift towards a policy-
to deepen partnerships with civil society and oriented or upstream approach as stipulated
the private sector, and with non-OECD in the UNDP corporate strategic plan to
(Organisation for Economic Co-operation match the emerging lower-middle income
and Development) donors. status of Guyana and in close alignment
6. UNDP Guyana made a strong and consis- with the strategic directions set in the new
tent contribution to UN values and PRSP-II and LCDS. Eventually, given the
coordination. shrinking resource base for this type of work,
UNDP should seriously consider the feasi-
bility of gradually and consciously moving

xiv EXECUTIVE SUMMARY

 its strong focus towards a more strategic government for an agreement to be reached
upstream approach from small-scale, down- include support for more public sector,
stream community-based work over the next human resource development, the develop-
five years. During this transition UNDP ment of institutional incentives to reduce the
should also take into account the unique brain-drain of skilled personnel, and mobi-
circumstances of the Guyana development lization of expertise from the diaspora to
context and the need to respond to key contribute more systematically to Guyanas
national priorities, and also ensure a clear economic and political development (all of
interconnectedness between downstream and which were raised during the ADR research
upstream work. by various partners).
2. Inclusion and consultation The continued focus on national owner-
ship is a very positive aspect of the UNDP
Consistent with the overall UNDP human
programme, including emphasis on the
development approach, UNDP Guyana
national execution/implementation (NEX/
should continue to strengthen its stra-
NIM) modality. However, UNDP should
tegic approach to working with vulnerable
do more in the future to develop managerial
groups and communities.
capacities and systems of partner agencies
The strategic partnerships with targeted vul- via explicitly building institutional capacity
nerable groups, such as Amerindians and development processes into ongoing imple-
the rural poor, should be based on clearer mentation processes.
criteria, more in-depth planning, consulta-
4. Sustainability
tions and needs assessments, and systematic
analyses of the types of upstream (not just UNDP Guyana should improve sustain-
downstream) interventions needed with dif- ability by working with implementing
ferent subgroups. These processes should be partners and beneficiaries to create realistic
carried out jointly with the lead government exit strategies for projects, extract and apply
implementing agencies. lessons, and replicate project effects.
3. Capacity development UNDP should ensure that initial strategies
are built into all project designs upfront so
UNDP Guyana should develop a detailed
that explicit sustainability aims are set and
strategy for capacity development that is
progress towards sustainability can be moni-
focused on deep institutional change rather
tored on a regular basis. Strategies could
than on individual training or one-off
include explicit cost-sharing arrangements
knowledge transfer.
with lead partners, precise descriptions of
UNDP Guyana, in close consultation with how work initiated under UNDP-supported
government, should develop a longer-term projects will be institutionalized in the
strategy or specialized plan for capacity long-term, and identification of specific
development that makes an explicit shift to benchmarks against which to assess progress
development of strong, sustainable institu- towards sustainability linked to results-based
tional systems commensurate with Guyanas frameworks shown in Annual Work Plans
emerging middle-income status. This (AWPs). Such approaches would enable
strategy should take into account chronic both UNDP and its implementing partners
human resource shortages in government to understand whether results are likely to
and attempt to go beyond superficial, one-off be sustained over time, as well as what inter-
approaches that simply enhance individual ventions are needed to ensure this does occur
awareness or skills. Other potential examples as planned.
that would require further discussion with

EXECUTIVE SUMMARY xv
 For so-called pilot projects, UNDP should UNDP should continue to play a role in
place greater effort on researching and learning leading and/or facilitating dialogue between
lessons from similar initiatives undertaken by government and international partners when
UNDP and others before planning and initi- requested and/or as appropriate, as well as
ation. While pilot projects are actually being in proactively coordinating donor support
implemented, greater efforts should be made within specific sectors when key gaps or
to learn from and share lessons to improve opportunities appear. The exact nature of
the effectiveness and chances for long-term this coordination role may of course vary
replication of these efforts. between programme areas depending on the
context and the needs within each sector as
5. Strategic partnerships
well as the role of international partners.
UNDP Guyana should improve its part-
7. South-South cooperation
nership approach with non-state actors, as
well as help strengthen the level of dialogue UNDP Guyana should develop a strategy
between these groups and government. and action plan for fostering South-South
cooperation in-country, regionally and
UNDP should continue to work closely with
internationally on a range of key develop-
government to find ways of strengthening
ment issues.
the meaningful and consistent engagement
of non-state actors in development pro- South-South cooperation requires a more
gramming. This should include assistance explicit plan and strategy in the context of the
for strengthening the partnerships forged by country programme as well as the regional
government with the private sector and civil development context, specifically in relation
society groups to implement specific capacity to the Caribbean Community (CARICOM)
development projects in natural resource and larger movements for economic and
management and economic empowerment; social integration across the Caribbean such
in many countries these partnerships have as the Caribbean Single Market Economy
been shown to be the most effective means (CSME). UNDP should continue to be
to increase local ownership and sustain- proactive and strategic in brokering more
ability. In order to guide its own work and South-South exchanges and information-
establish more meaningful strategic and sharing on behalf of Guyana, as well as in
programmatic relationships with non-state response to emerging country needs, in areas
actors, UNDP Guyana may also consider such as respect for diversity, peace-building,
establishing a programme advisory com- climate change and environmental protection,
mittee for itself that regularly meets with alternate energy, small enterprise develop-
representatives from a wide range of non- ment, information technology, investment
state actors, to provide UNDP Guyana with and manufacturing, public sector reform,
an opportunity to have more sustained stra- human resource development, disaster man-
tegic dialogue with these groups and ensure agement, and mobilization of investment/
that they clearly understand the role of development resources from non-traditional
UNDP and its mandate. development and investment partners such as
emerging economies in Asia and the Middle
6. Facilitation and coordination
East. This would include fostering stra-
UNDP Guyana should continue to facilitate tegic exchanges both regionally and within
strong dialogue and relationships between Guyana itself.
lead development partners including the
government and the UN system when
requested and appropriate.

xvi EXECUTIVE SUMMARY

8. Gender equality 10. Programme management and oversight
UNDP Guyana should develop a strategy UNDP Guyana should continue to improve
and action plan for mainstreaming of its mechanisms and systems to manage for
gender equality issues. development results.
Given that there has been no gender main- UNDP Guyana has made substantial progress
streaming strategy in place over the past in improving its management systems in
several years and no explicit commitment the past two years, but the momentum
of resources for working on gender main- should be maintained to ensure that these
streaming issues in the country programme, initial measures are built on and expanded
UNDP should develop such a strategy to upon. This should include such areas as:
ensure that gender issues are fully inte- continued support to enhancing results man-
grated within each of the thematic areas and agement and formulation of realistic and
outcomes in the next CPD-CPAP. This measurable results statements, design of
should, at a minimum, involve allocation of more realistic project timeframes to prevent
specialized resources towards gender main- implementation delays, improved corporate
streaming work, as well as development of record-keeping for the country programme,
measurable aims and indicators to gauge continued updating of the new resource
progress towards gender mainstreaming. mobilization strategy and close attention
to options and opportunities for funding,
9. Support for the Resident Representative role
increase in staffing levels commensurate
UNDP headquarters should improve with the programmes evolving needs, and
its corporate support for the Resident enhanced focus on outcome monitoring and
Representative (RR) role in Guyana. evaluation. There is also a need to continue
to inform partners of results-based man-
Due to the key role of the RR establishing agement (RBM) system requirements for
and maintaining UNDP strategic posi- effective project implementation, and to
tioning in Guyana, there should be increased integrate partner capacity development and
analytical and strategic support from UNDP knowledge-sharing as much as possible into
headquarters for the RR position in Guyana routine project implementation.
in order to decrease turnover and ensure
leadership continuity.

EXECUTIVE SUMMARY xvii

xviii EXECUTIVE SUMMARY
Chapter 1

INTRODUCTION

1.1 OBJECTIVE AND SCOPE for 2001-2005, with a closer look at the more
OF THE ADR recent programme. UNDP projects and activities
within the context of the broader United Nations
The Assessment of Development Results (ADR)
Development Assistance Framework (UNDAF)
in Guyana is an independent country-level
2006-2010 were evaluated. Finally, the ADR also
evaluation conducted by the Evaluation Office
considered the contribution made by UNDP in
of the United Nations Development Programme
support of greater UN coordination and coherence
(UNDP) in 2009. The main objectives of the
in programming in Guyana since its introduction.
ADR are to assess overall UNDP performance
and contribution to development in Guyana
UNDP strategy and performance were evaluated
during the past two programming cycles
from two perspectives. First, UNDP perfor-
(2001-2005 and 2006-2010), and to extract
mance in contributing to development results in
recommendations to be applied in the design of
Guyanaas embodied in the CCF and CPD/
future country strategies, particularly for the next
CPAPwas assessed. Second, the strategic
programming cycle 2010-2014.2
positioning of UNDP was assessedhow UNDP
situated itself within the development and policy
The ADR examined UNDP strategy and perfor-
space of the country and what strategies it took
mance under the ongoing Country Programme
in assisting the development efforts led by the
Document (CPD) 2006-2010 for Guyana and
government and people of Guyana. The questions
accompanying Country Programme Action Plan
used to guide the assessment under the main
(CPAP) for the same time period, as well as the
evaluation criteria are summarized in Table 1.
previous Country Cooperation Framework (CCF)

Table 1. Evaluation Criteria and Key Questions

Criteria Key questions
Effectiveness How did implementation of any UNDP-funded projects (as well as any non-project activi-
ties) contribute to progress towards the stated development outcomes?
How did the implementation of different projects and the mix of project and non-project
intervention contribute to maximizing the results?
Did the implementation of the projects have positive effects on poor and disadvantaged
groups in Guyana (e.g. women, youth, Amerindian groups, or any other marginalized or
vulnerable groups in the country), and if so, how were these results achieved?
Efficiency Have the UNDP programmes been implemented within deadlines, costs estimates?
Have UNDP and its partners taken prompt actions to solve implementation issues?
Were the UNDP resources focused on the set of activities that were expected to produce
significant results?
Were resources combined among any UNDP interventions that contributed to reducing
costs while supporting results?
Did the programme implementation place an undue burden on some partners?
If so, what were the consequences?

2
The current programming cycle, which officially ends in 2010, is likely to be extended until 2011.

CHAPTER 1. INTRODUCTION 1
 Table 1. Evaluation Criteria and Key Questions (continued)
Criteria Key questions
Sustainability Were interventions designed to have sustainable results given the identifiable risks and did
they include an exit strategy?
What issues emerged during implementation as a threat to sustainability?
What were the corrective measures that were adopted?
If there was testing of pilot initiatives, was a plan for scaling up initiatives prepared and
how did it proceed?
Strategic Did UNDP address the development challenges and priorities and support the national
relevance strategies and priorities, while operating within its mandate as outlined in the current
corporate Strategic Plan 2008-2011?
Did the UNDP programme facilitate the implementation of the national development
strategies and policies and play a complementary role to the government?
Was the UNDP strategy designed to maximize the use of its corporate and comparative
strengths as outlined in the Strategic Plan?

Strategic Has UNDP leveraged its interventions through a series of partnerships to enhance their
partnerships effectiveness?
Have there been cases of missed opportunities for using partnerships more effectively?
Has UNDP worked in partnership with non-state actors to maximize the impact of its projects?
Has UNDP been effective in assisting the government to partner with external development
partners?
Has UNDP sought to maximize the opportunity of using South-South cooperation as a
mechanism to enhance development effectiveness?

Responsiveness Was UNDP responsive to the evolution over time of development challenges and the
priorities in national strategies, or significant shifts due to external conditions, commen-
surate with its mandate and comparative strengths as outlined in the Multi-Year Funding
Framework (2004-2007) and the Strategic Plan (2008-2011)?
Did UNDP have an adequate mechanism to respond to significant changes in the country
situation, in particular in crisis and emergencies?
How are the short-term requests for assistance by the government balanced against
long-term development needs?

Contribution to Is the UN system, and UNDP in particular, effectively supporting the government towards
United Nations the achievement of the MDG?
values Is the UNDP programme designed to appropriately contribute to the attainment of gender
equality?
Did the UNDP programme target the needs of vulnerable or disadvantaged segments of
society so as to advance towards social equity?

Contribution to Was the UNDAF process logical and coherent and undertaken in full partnership with UNCT
UN coordination and non-resident agencies and national stakeholders?
Has UNDP facilitated greater programme collaboration among UN and other international
agencies working in the country?
Has UNDP been able to facilitate national access to the UN systems knowledge, expertise
and other resources?

2 CHAPTER 1. INTRODUCTION
1.2 METHODOLOGY since 2001 and the fact that many of the
same partners or stakeholders were involved
The ADR in Guyana was conducted by an
with multiple projects or initiatives over
independent evaluation team, composed of three
time, a draft list of individuals in key
external consultants, a team leader and two
agencies to be interviewed was constructed
specialists, and a task manager from UNDP
based on the project/outcome and partner-
Evaluation Office, supported by the work of a
ship mapping. Due to the structure of
research assistant.
the programme, many key individuals were
able to provide information on more than
The assessment of evaluability, the extent to
one UNDP-funded initiative. This allowed
which the subject of an evaluation is ready to
the ADR team to collect first-hand informa-
be evaluated, began with the preliminary desk
tion from key personnel involved with
research in May 2009 and continued with a
approximately 29 development projects
scoping mission and immediate follow-up to
implemented during the two program-
Guyana in June 2009 to establish the evaluation
ming cycles. The project sample therefore
framework and approach to be used in the ADR.
represented roughly 85 percent of the
The evaluability assessment determined that the
implemented projects.
Guyana country programme was able to be
evaluated in a credible and reliable manner and Both UNDAF and CPAP mid-term reviews
that there was sufficient primary and secondary were completed by the United Nations
data to assess performance according to all Country Team (UNCT) and UNDP
the main evaluation criteria. It also found country offices respectively in late 2008.
there were no major barriers to the conduct This meant not only could the ADR draw
of the evaluation, and that the limitations to on this information to enhance the analysis
the Guyana ADR would likely be trivial and of overall country programme performance,
therefore not liable to affect the credibility of several project-level evaluations were also
the final conclusions and recommendations. available.
The following information from the evaluability
There were some gaps in documenta-
assessment was incorporated into the design of
tion and information for the CCF period
the ADR:
(2001-2005). Therefore, the decision
Analysis was conducted of the main pro- was made by the team to provide a more
gramme outcomes and results under each detailed performance assessment for the
thematic area for the Guyana programme post-2005 period for which records and
since 2001 (i.e. poverty reduction, democratic information were more easily available,
governance, environment/energy and disaster but it was decided that there was sufficient
relief/mitigation), and a project list was information to provide a less detailed assess-
generated of the main projects or initiatives ment for the earlier programme period.
undertaken to support outcome achievement
for the entire ADR timeframe. This included The inception report was prepared and submitted
financial data and lists of documents available to UNDP at the end of June 2009 and included
for the programme. a detailed evaluation framework on which the
research was based.3 The ADR employed a
Given the relatively small number of variety of qualitative data collection methods such
development projects (approximately 34) as document reviews, individual interviews, focus
implemented under the Guyana programme group meetings and observation, and discussions

3
See Annex 2 for a copy of this framework.

CHAPTER 1. INTRODUCTION 3
 at selected project sites.4 The main evalua- findings with relevant stakeholders in an ethical,
tion mission took place in July 2009 to collect non-judgmental manner. The evaluators signed
information from within the country based on and adhered closely to the UNEG Code of
the framework established during planning. Conduct (2007) throughout the ADR in terms
Approximately 225 informants were interviewed of evaluation standards and ethics, including
for the ADR, including those who attended independence, impartiality, honesty and integrity,
focus groups at various project sites.5 Visits to competence and accountability. Prior to every
three regions in different parts of the country interview conducted by the team information
were undertaken by various members of the was shared with individuals regarding respect for
evaluation team. During the inception mission confidentiality. Other best practices followed by
these regions were determined to be central for the team included avoidance of harm, accuracy,
UNDP involvement with a number of project completeness, reliability and transparency. It
activities and beneficiaries cutting across various should be noted that each evaluation team
thematic areas.6 During the scoping mission member signed a declaration of interest form
interviews were also held at UNDP New York (attached to the UNEG Code of Conduct) prior
Headquarters and several telephone interviews to commencing work on the evaluation, which
were conducted with informants outside of clearly stated the extent to which they had any
Guyana following the main field mission in direct or indirect interests related to the focus of
July. The final report was prepared and validated the ADR.
from August 2009 to April 2010 through the
exchange of drafts among the Evaluation Office,
the country office, the Government of Guyana 1.3 STRUCTURE OF THE REPORT
(GoG) and other national stakeholders, as well Following the introductory chapter, Chapter
as comments from an external review panel 2 provides information on the main develop-
composed of experienced senior evaluators with ment challenges facing the country (as embodied
development knowledge of Guyana and a partici- in key national policy documents), how the
patory stakeholder workshop held in Guyana in government has responded to these challenges
April 2010. over time, and the evolving role of external
development assistance in this context. Chapter
The ADR was conducted in accordance with 3 outlines the UN response to Guyanas develop-
United Nations Evaluation Group (UNEG) ment challenges and the role of UNDP, as well
Norms and Standards for Evaluation in the UN as background information on the overall UNDP
System (2005) and with the ADR Guidelines development assistance strategy and framework
(2009) and draft Methods Manual (2009) of in Guyana (from 2001 to the present). Chapters
the UNDP Evaluation Office, as well as with 4 and 5 provide information on the main findings
universal evaluation best practices such as the from the evaluation research. Specifically,
triangulation principle and validation of facts and Chapter 4 describes UNDP contribution to

4
The validity of qualitative information from purposive or pragmatic sampling is mainly assured in programme evalu-
ations via triangulation or cross-checking to validate information obtained from multiple sources. See also Michael
Quinn Patton, Qualitative Research and Evaluation Methods, 3rd Edition, Newbury Park, CA: Sage Publications, 2001
and E.G. Guba and Y.S. Lincoln, Fourth Generation Evaluation, Newbury Park, CA: Sage Publications, 1989 for more
information on the qualitative techniques used to plan and implement the ADR.

5
See Annexes 4 and 5 for lists of individuals and documents consulted during data collection for the ADR.

6
Three regions were selected for site visits: Region 1, which is in the northwest of the country; Region 9, which is
south-central; and Region 5, which is east of Georgetown. All are considered rural areas, but Regions 1 and 9 are
classified as hinterlands due to their remoteness from the settled coastal regions. The selection of these regions was
judged by the ADR team, based on inputs from the country office, to provide a good cross-section of UNDP work
in remote or rural areas, especially with the rural poor and Amerindian populations. Each region was deemed to have
unique characteristics including partnership arrangements that would provide different perspectives on the programme.

4 CHAPTER 1. INTRODUCTION
development results according to three main and recommendations are provided in Chapter
evaluation criteria: effectiveness, efficiency and 6. The annexes at the end of the report provide
sustainability; and Chapter 5 provides informa- information on the ADR Terms of Reference,
tion on UNDP strategic positioning in Guyana the evaluation framework used and the individ-
according to the evaluation criteria. Conclusions uals and documents consulted.

CHAPTER 1. INTRODUCTION 5
6 CHAPTER 1. INTRODUCTION
Chapter 2

DEVELOPMENT CHALLENGES AND

NATIONAL STRATEGIES
2.1 NATIONAL DEVELOPMENT economy is traditionally based on three main
PRIORITIES export commodities: sugar, rice and minerals
such as gold and bauxite. The agricultural sector,
2.1.1 OVERVIEW OF THE NATIONAL which is mainly sugar and rice production, is the
DEVELOPMENT CONTEXT
major contributor to the Guyanese economy with
Located on the north eastern coast of South about 30 percent of GDP in 2007, followed by
America with a landmass of 214,969 square industry (primarily mining and manufacturing)
kilometers, Guyana has an estimated population with 23 percent, and services (including the
of 736,000 persons as of 2008, which is mostly public sector) comprising about 47 percent. Since
concentrated in a narrow coastal belt bordering 2000 the GDP share of both the agricultural and
the Atlantic Ocean that only occupies about industrial sectors declined slightly while services
10 percent of Guyanas land space. According grew.9 Guyana has a highly educated population,
to recent figures approximately 76.7 percent although a large number of people have migrated
of Guyanas land surface is covered by dense to the United States, Canada and the United
forest, where scattered communities of the native Kingdom. Out-migration of educated people has
Amerindian population are located.7 A notable been a common issue for Guyana over the past
characteristic of Guyanas small population is several decades, which adds to the development
that it is composed of six different ethnic groups, challenges due to a declining population base
the largest of which are those of East Indian to support productive activities in a relatively
descent, about 43.4 percent of the population, small economy. However, the Guyana diaspora
and Afro-Guyanese who make up about 30.2 overseas also contributes significantly to Guyanas
percent. The other main groups are mixed race economic development via the high volume of
(16.7 percent), native Amerindians (9.2 percent) remittances sent home from this source.10 Given
and the Chinese, Europeans and others totaling that the Guyanese birthrate is also dropping,
the remaining 0.3 percent.8 combined with out-migration, the population
growth for the country will continue to decline
Guyana graduated from Heavily Indebted Poor in the future.11 Table 2 provides an overview of
Countries (HIPC) status in 2007 and it is key economic and social development indicators
now officially ranked as a lower middle-income for Guyana for the main time period covered by
country under World Bank criteria. The countrys the ADR.12

7
UNECLAC, Statistical Yearbook for Latin America and the Caribbean, 2008.

8
All national data is taken from the 2002 Guyana Population and Housing Census, published in 2005. Additional data
cited in this section related to GDP and poverty figures are from the latest World Bank Country Assistance Strategy
(released 2009) and the UN Common Country Assessments (2000 and 2005).

9
Figures on share of GDP are from the World Bank (2009).
10
Some observers claim that diaspora remittances represent up to 83 percent of ODA received by the country and there-
fore form a substantial part of the economy (Orozco, 2002).
11
According to UNESCO projections found in the UNECLAC Statistical Yearbook for Latin America and the
Caribbean (2008), the Guyanese birthrate will likely decline from 17.1 percent for the current period (2005-2010) to
around 15.9 percent for the following five years.
12
Data for 2008 was used if available at the time of writing the report.

CHAPTER 2. DEVELOPMENT CHALLENGES AND NATIONAL STRATEGIES 7

 Table 2. Key Economic and Social Indicators for Guyana, 2000/2001 and 2006/200713
Indicator 2000/2001 2006/2007
Human development index (HDI) value 0.740 0.729
GDP (USD billion) $0.71 $1.1
GDP per capita (USD) $1,511 $2,497
Real GDP growth (%) -1.4 5.4
External debt (% of GDP) 167.4 66.8
Inflation rate (%) 6.1 8.1
Bank of Guyana assets (Guyana dollar million) 113,735.4 130,792.1
Population growth rate (%) -0.12 -0.22
Birth rate (per thousand) 24.2 17.1
Mortality rate under five (per thousand) 70 60
Maternal mortality ratio (per 100,000 live births) 110 110
Life expectancy (years) 63 67
Illiteracy rate (% of population 15 years plus) 1.5 N/A
Public expenditure on education (% of GDP) 4.3 8.6
Public expenditure on health (% of GDP) 4.2 8.3
Combined gross enrolment ratio in education (%) 84 83.9
Ratio of girls to boys in education (%) 99 96
Total remittance inflows (USD million) $230 $278
HIV/AIDS prevalence (%) 2.6 2.5
Human poverty index (HPI) value (%) 12.7 10.2
Gini index 44.6 44.6

Although very rich in natural resources, Guyana hinterland population in Regions 8 and 9 were
still faces considerable challenges in terms identified as living in extreme poverty, 79 percent
of overcoming poverty and providing for the of the population for interior communities as
equitable development of its people. According a whole, 45 percent for rural coastal areas and
to the latest Guyana Millennium Development 29 percent for the city of Georgetown, clearly
Goals (MDG) report for 2007, the propor- indicating the extreme disparities for different
tion of people living below the poverty line parts of the country.15
was around 35 percent, while those in extreme
poverty comprised 19 percent of the population.14 As a result of modernization and structural
Based on research conducted by UN agencies in reforms in the economy Guyana experienced
Guyana in 2000-2001, about 94 percent of the single digit inflation rates as far back as 1991, a
13
Multiple sources were used to compile the table: Guyana Bureau of Statistics (http://www.statisticsguyana.gov.gy/);
Bank of Guyana (http://www.bankofguyana.org.gy); CDB, Social and Economic Indicators 2006; World Bank Coun-
try Assistance Strategy 2009; World Bank World Development Indicators database 2009; UNECLAC, Statistical
Yearbook for Latin America and the Caribbean 2008; IDB Country Strategy 2008; UNDP Human Development
Report 2003 (for 2000-2001 figures); International Monetary Fund (www.imf.org/external/pubs/ft/weo/); and UNDP
Human Development Report 2009 (for 2007 figures).
14
These figures represent an improvement on the 43 percent and 29 percent respectively, which existed in 1993 when
the current government took power. The marginal poverty gap for Guyana also declined from 16.2 percent in 1993 to
12.4 percent in 1999 according to the GoG, Guyana Millennium Development Goals Report 2007.
15
United Nations Country Team, United Nations Common Country Assessment of Development Challenges in
Guyana, 2001.

8 CHAPTER 2. DEVELOPMENT CHALLENGES AND NATIONAL STRATEGIES

7.4 percent growth in real output, and signifi- CARICOM, to help broker a truce and a plan
cant increases in per capita income by 1996. for long-term constitutional reform, which was
Since 1996 economic growth slowed due to a embodied in the Herdmanston Accord signed
decline in commodity prices, unfavorable weather by the major parties in 1998.17 The ensuing 2001
conditions and an unstable political environment, elections were also plagued by violence, but the
which discouraged investment. In addition the 2006 elections were peaceful, which indicated the
rate of private investment decreased signifi- possibility for a more stable political context in
cantly from 13.4 percent of GDP in 1998 to the country given the right conditions.
6.6 percent in 2003.16 Nevertheless, due to fiscal
reforms in the 1990s, the country managed to
2.1.1 DEVELOPMENT FRAMEWORKS AND
attain significant debt relief in the early 2000s, PRIORITIES
which eventually led to positive economic growth
Guyanas development priorities and challenges
after the mid-2000s. However, the recent global
for the timeframe covered by the ADR
economic problems are expected to have a ripple
(2001-2008) are mainly summarized in the
effect on Guyanas economy. Guyana is an active
National Development Strategy (NDS), the
member of the regional Caribbean Community
National Competitiveness Strategy (NCS) and
(CARICOM) including the Caribbean Single
the first Poverty Reduction Strategy Paper
Market Economy (CSME) initiative, which is
(PRSP-I). These were recently succeeded by
seen as an important strategy for maximizing the
the second Poverty Reduction Strategy Paper
economic development opportunities of member
(PRSP-II) and the Low Carbon Development
states. If the integration of human resources
Strategy (LCDS).
flows and productive structures in CARICOM
continues to evolve, Guyana may be able to
NDS
build on this to further fuel its own economic
development. Prepared in the late 1990s, NDS was initially
designed to cover the time period 2000 to
The country attained political independence 2010.18 The broad objectives identified in the
from British colonial rule in 1966, but there were NDS were: 1. attainment of economic growth,
ongoing violent partisan political conflicts and 2. poverty alleviation, 3. attainment of geograph-
ethnic polarization throughout the 1970s and ical unity, 4. equitable geographic distribution
1980s. Guyana was finally able to achieve free of economic activity, and 5. diversification of
and fair democratic elections in 1992, but the the economy. The main development challenges
political context continued to be very volatile, facing the country at the time were economic
which affected the social and economic develop- instability due to budget deficits, high inflation
ment status of the country throughout the rates, weak growth, and ongoing political and
1990s. The 1997 elections were accompanied by racial or ethnic tensions. However, the NDS
street protests and political violence. It took the lacked an operational strategy or action plan and
intervention of outside mediators, most notably specific expenditure targets. Most stakeholders

16
World Bank, A Time to Choose: Caribbean Development in the 21st Century, 2005.
17
The Herdmanston Accord (signed 17 January 1998 in Guyana) recommended a process to examine how to bring
about sustained dialogue between the two main political parties. The accord acknowledged the need for constitutional
reforms including establishment of a Constitutional Reform Commission to develop arrangements for improvement
of race relations in Guyana. Although there was and is strong support in principle among leaders in Guyana for the
aims embodied in the Herdmanston Accord (see, for example, President Jagdeos 2003 address Towards Greater
Inclusive Governance: Building Trust to Achieve Genuine Political Cooperation), the proposed Constitutional Reform
Commission is still pending.
18
The NDS was first tabled in parliament in August 2000 and then retabled for approval in 2001. The NDS may in fact
have been intended to have a longer lifespan post-2010, but it is unclear what formal provisions were made for regular
review, updating and/or costing in relation to ongoing national budgetary plans.

CHAPTER 2. DEVELOPMENT CHALLENGES AND NATIONAL STRATEGIES 9

 acknowledge that it had limited practical utility priorities for Guyana, most of which are still
in terms of guiding and monitoring ongoing present:
development work in the country.
Support for economic policies to stimulate
growth, including improved fiscal/macroeco-
In order to support achievement of the NDS,
nomic policies, support for private sector
the NCS was launched by Guyana in 2006 as
growth, expansion of the economic base to
a public-private partnership. This was meant to
benefit the poor, restructuring and modern-
encourage new strategies for economic growth
izing the traditional sector, developing new
and to increase Guyanas ability to compete both
economic sectors to support growth, and
regionally and subregionally within the context of
protecting the environment.
the emerging CSME. The NCS contained three
major components to focus on: core policies, Promotion of good governance and restoration
sector policies and policies targeting strategic of confidence in the business environment,
subsectors of the economy. The strategy called including institutional and regulatory reforms,
for improved policy coordination and leadership, and improved public accountability and
public-private collaboration, analytical/technical confidence in the political system through
capabilities and donor harmonization in order crime reduction, attention to the rule of law
to enable its implementation. It also identi- and administration of justice, local govern-
fied a number of specific action steps to revise ment reform and human rights protection.
and update existing policies affecting economic
Investment in human capital, including
growth and investment in the country. However,
progress on the NCS has not been as rapid improvement of education and health services.
as planned and many policy areas related to Support for improvements in infrastructure
improving economic growth are still undergoing services, including water systems, sewage/
analysis and planning. sanitation and housing.

PRSP-I and II Design of a social safety net strategy to

support the poor and vulnerable directly in
During the late 1990s and early 2000s, the first
times of need.
complete PRSP for Guyana was prepared for the
2001 to 2006 time frame. Under this strategy, Major infrastructure development, including
Guyana achieved the enhanced HIPC comple- improving the maintenance, quality and
tion point in 2003, which enabled the country coverage of sea defenses, roads and drainage/
to obtain various forms of additional debt relief irrigation schemes, and rural electrification.
and financing.19 According to the PRSP-I, the
social and political challenges of the 1990s in The PRSP mentioned several special interven-
Guyanaincluding rising foreign indebtedness, tions that the government would undertake
continued brain drain and lack of investment in Regions 1, 8, 9 and 10 due to particularly
in the economyhad led to high levels of high poverty rates and/or social vulnerabili-
rural poverty, especially in interior areas of the ties in those regions. These were mainly geared
country, uneven rates of educational attainment, towards specific support for Amerindian peoples
weak local government systems, poor regulatory in Regions 1, 8 and 9, who have historically had
and institutional systems discouraging private much higher poverty levels than other segments
investment, and deteriorating social services. It of the population, as well as enhanced investment
described the following specific development in economic development of Region 10, where
jobs were lost in the mining sector.

19
World Bank, Memorandum and Recommendation of the President of the IDA to the Executive Directors on
Assistance to the Cooperative Republic of Guyana under the Enhanced HIPC Debt Initiative, November 2003.

10 CHAPTER 2. DEVELOPMENT CHALLENGES AND NATIONAL STRATEGIES

PRSP progress reports were prepared and precedent-setting initiative to possibly catalyze
released by the GoG in 2004 and 2005, based a future market for ecosystem services. Over the
on public consultations and collection of relevant past several years, the GoG committed to include
statistical data to gauge progress within key areas. 10 percent of its national territory (the global
These reports provided a largely favorable picture average) in a protected areas system, although at
of progress towards key targets although there present it is the only country in the hemisphere
was acknowledgement that detailed operational that does not have a protected areas system.
plans to effectively implement all aspects of Protected area legislation has been drafted (but
the PRSP were missing in some instances. not yet tabled in parliament) and several new
Although the 2001 PRSP did not explicitly protected areas are now being considered. A
mention linkages to the MDG, these were fully number of important international treaties and
integrated with the PRSP over time and stand- conventions have been signed by the GoG both
alone MDG reports were also prepared by the before and during the time period covered by
government in 2003, 2004 and 2007, which the ADR.22 Also since the early 2000s, the GoG
provided additional information on progress increased its focus on providing energy to the
towards some of the key aims in the PRSP.20 A hinterlands and on increasing energy access for
second PRSP was to be launched in 2007 for the all. Major environment-related policy documents
next five years, but this was delayed and a draft outlining these priorities and in effect for the
PRSP-II was instead prepared in 2008 covering time period covered by the ADR include: the
only four years.21 Guyana Climate Change Action Plan 2001, the
National Biodiversity Action Plan 1999/2006,
LCDS the National Environmental Action Plan 1994,
During the period covered by the ADR, Guyana the Amerindian Act (amended 2006), and the
undertook important and innovative conserva- Energy Policy of Guyana 1994.
tion measures including establishing the first
conservation concession in the world, working In the new LCDS (released in mid-2009), the
together with Amerindian communities to launch GoG places even greater importance on many
the countrys first community-owned conser- environmental priorities, which were established
vation area and (more recently) engaging in a in past national policy frameworks and documents,

20
The ADR team was not able to obtain copies of the 2003 and 2004 MDG reports.
21
The new PRSP was still awaiting ratification by parliament at the time the ADR took place. The PRSP-II draft docu-
ment was shared with international partners in Guyana as well as accepted by the World Bank board in mid-2009 as
the basis for its new Country Assistance Strategy (CAS). The draft PRSP-II has evidently retained the seven pillars
mentioned in PRSP-I, and the main objectives and areas of focus follow through with the key national development
aims and areas of focus from the early 2000s. There is more data presented from poverty and demographic surveys
to assist in evidence-based planning; acknowledgement is provided in the PRSP-II (and more recently by govern-
ment officials interviewed for the ADR) that targets, strategies, and indicators need to be realistically adapted to the
timeframes and resources available as well as to the challenging and rapidly evolving global economic context. A wide
range of secondary policy initiatives are closely linked to the PRSP-II such as a new NCS to foster improved economic
growth and investment, potential taxation reform and a legislative package for local government reform that mostly
builds on what was done during the PRSP-I periodclearly indicating the governments priorities continue to focus on
competitive growth, good governance and improved provision of public goods.
22
These were: United Nations Framework Convention on Climate Change (UNFCCC), United Nations Convention
on Biodiversity (UNCBD), Convention on International Trade in Endangered Species of Wild Flora and Fauna
(CITES), International Plant Protection Convention, Convention concerning the Protection of the World Cultural
and Natural Heritage (World Heritage), Kyoto and Montreal Protocols, United Nations Convention on the Law of the
Sea, United Nations Convention to Combat Desertification (UNCCD), International Convention for the Prevention
of Pollution (MARPOL 73/78),Vienna Convention for the Protection of the Ozone Layer, and Basel Convention on
the Control of Trans-boundary Movement of Hazardous Wastes and their Disposal. Guyana also participates in the
following for which instruments of accession are still being awaited: Convention on Wetlands (Ramsar Convention)
and Convention for the Production and Development of the Marine Environment in the Wider Caribbean Region and
its Protocols (Cartagena Convention).

CHAPTER 2. DEVELOPMENT CHALLENGES AND NATIONAL STRATEGIES 11

 thereby strongly aligning itself with emerging and to climate change. This is now integrated
global initiatives to both combat climate change within the LCDS. Accordingly the main natural
and undertake sustainable development, most disaster-related issues/priorities in recent years
notably the United Nations Programme on for the government were as follows:
Reducing Emissions from Deforestation and
Improve preparations for natural disasters via
Degradation (UN-REDD). The main priorities
increased public awareness.
identified in the LCDS are as follows:
Upgrade seawall defenses and other
Increase the use of renewable energy
infrastructure.
resources and its accessibility in hinterland
communities. Improve community-based risk and vulner-
ability assessments, development of national
Develop and expand Guyanas protected
and community-level natural disaster plans,
areas system and fulfilment of commitment
and capacity to implement plans and use of
to place 10 percent of territory into conser-
effective early warning systems.
vation areas.
Increase information, coordination and
Completion of the continuing process of
communication capacities.
demarcation and titling of indigenous lands.
Provide incentives for communities to
effectively engage in natural resource conser- 2.2 ROLE OF EXTERNAL ASSISTANCE
vation, including preparing communities to As shown in Table 3, Guyana received official
be involved in forest inventories, monitoring development assistance (ODA) totaling approx-
and establishment of field plots. imately $871 million for the time period of
Streamline environment and energy institu- 2001 to 2007 according to the Development
tional structures and mandates. Assistance Committee of the Organisation
for Economic Cooperation and Development
Ensure laws regarding forestry, mining and (OECD-DAC). In 2001 ODA represented
other land uses are continually updated as 14.6 percent of Guyanas GDP, but had risen
needed, and build national capacity to the to 17 percent by 2005.24 Fluctuations in the
level that will enable effective implementa- annual amounts for ODA to Guyana in 2006
tion of environment policies and laws. were probably due to the influx of support for
the 2005 floods, which were the worst natural
Establish a successful working model for
disaster in Guyanese history. ODA declined
sale of forest carbon credits and determining
again in 2007 and aid-per-capita decreased
how benefits can best be shared within the
from $230 in 1990 to $168 in 2007, although
country.
continued out-migration from the country may
Two major floods (2005 being the most serious) influence these statistics.25 According to the
affected Guyana during this period, resulting in World Bank, Guyana remains the fifth highest
60 percent of Guyanas GDP being lost.23 This aid-per-capita country in the Latin America
reinforced the need to better prepare for and and Caribbean region.26 However, because it is
build capacity to respond to natural disasters now officially classified by the World Bank as

23
See UNDP Guyana/UNECLAC, Guyana: Socio-Economic Assessment of the Damages and Losses Caused by the
January-February 2005 Flooding, March 2005.
24
Figures on ODA as percentage of GDP are taken from Human Development Report 2003 and Human Development
Report 2007.
25
Figures from OECD DAC 2009 and World Bank 2008.
26
The global average in aid-per-capita for lower middle-income countries is $9.

12 CHAPTER 2. DEVELOPMENT CHALLENGES AND NATIONAL STRATEGIES

a lower middle-income country, Guyana is no of the HIPC completion point, the International
longer eligible for some forms of bilateral and Monetary Fund (IMF) became less active in
multilateral assistance that it received previously Guyana and closed its country office in 2006.
as a low-income country. Most of the aid allocated to Guyana continues to
be in the form of project-based support, although
The major international donors to Guyana and recently the European Union (EU) placed most
the amounts disbursed by each for the years of their funds in budgetary support. Pooled funds
2001 to 2007 are shown in Table 4, sorted in or sector-wide approaches are not yet common
descending order for the total amount. in Guyana, although all international partners as
well as the government support the principles of
The lead international relationships between the Paris Declaration.
Guyana and its development partners are based
mainly on long-standing economic or historical The ADR team learned that there were likely
ties. For example, there are strong historical and to be some shifts in focus for the major interna-
economic ties between Guyana the United States, tional partners because of Guyanas relatively
the United Kingdom and Canada; these countries high aid-per-capita situation, the small size of
have been the sources for much foreign investment the economy, the global economic recession and
as well as the main destinations for the majority the countrys recent accession to lower middle-
of Guyanese emigrants. While most of the lead income status. For example, both the Department
donors have resident offices in Guyana, the for International Development (DFID) and the
Caribbean Development Bank (CDB), Japan and Canadian International Development Agency
non-traditional donors such as the Arab states are (CIDA) are now moving to a regional develop-
all non-resident agencies. With the achievement ment approach in the Caribbean, which includes

Table 3. ODA Flows to Guyana 2001-2007 (USD millions) 27

2001 2002 2003 2004 2005 2006 2007
112.13 71.82 96.06 145.14 149.72 172.93 124.17

Table 4. Major International Donors to Guyana 2001-2007 (USD millions) 28

Country/agency 2001 2002 2003 2004 2005 2006 2007 Total
IDB 48.22 24.57 36.78 43.8 48.44 44.88 46.04 292.73
US 15.75 11.51 8.39 19.71 17.6 23.55 21.14 117.65
EU 20.75 17.59 10.36 32.3 12.97 10.89 7.6 112.46
UK 18.13 14.87 9.42 20.29 12.09 6.33 4.63 85.76
CDB 4.53 4.42 8 11.45 8.57 12.79 9.34 59.10
IDA (WB) 7.29 5.86 19.81 5.94 1.22 10.55 2.47 53.14
Canada 4.73 4.17 7.09 7.54 8.85 6.36 7.04 45.78
IMF -5.48 -1.83 0.16 2.71 21.51 27.24 44.31
Japan 4.77 0.69 2.85 10.72 0.5 5.63 4.23 29.39
UN agencies 29
1.83 2.13 1.62 1.94 2.85 1.7 2.46 14.53

27
OECD DAC 2009.
28
OECD DAC 2009.
29
The figure shown for UN agencies includes core agency resources only, not additional leveraged funds.

CHAPTER 2. DEVELOPMENT CHALLENGES AND NATIONAL STRATEGIES 13

 Guyana, in order to increase efficiencies. In resource development and poverty reduction.
general the ADR found all current bilateral While overall donor assistance to Guyana
and multilateral donors remain committed to appeared to be decreasing, several international
supporting economic development as well as partners appear to have increased their prioriti-
social and political stability in Guyana, but zation of resources towards the environment and
because of shrinking aid budgets their level of energy thematic areas. Also, aside from bilateral
financial commitment may be less. and multilateral partners, there will be a role for
key international non-governmental organiza-
In the past, many international partners were tions (NGOs) and inter-governmental agencies
evidently concerned about Guyanas relatively (such as the Conservation International, World
high level of dependence on external assistance, Wildlife Fund and International Tropical
given the size of its population and economy. From Timber Organization) to play in environment
what the ADR could determine what emerged sector support.
during the past decade was a more focused and
strategic approach among international partners, Another area of external assistance for Guyana has
less tolerance for risk and misuse of funds, and been and will likely continue to be an expansion
greater emphasis on developmental performance of interest and investment from countries
as measured, for example, by progress towards outside North America and Western Europe,
key PRSP and MDG indicators. There was also including the Arab states (as noted in Table
the recognized need on the part of the Guyanese 4), China, Brazil, India, Cuba and Venezuela.
government to ensure increased diversification of These are countries that are not members of
external development and investment resources as the OECD-DAC and do not necessarily have
well as to ensure stronger national ownership of traditional foreign aid programmes, but may
the development process as embodied in the 2005 be interested in pursuing both economic and
Paris Declaration. strategic opportunities in Guyana that also link
to the countrys main development and growth
The draft PRSP-II predicts that there may priorities. For example, China has invested some
be an external financing gap of approximately funds in infrastructure development in Guyana,
$40 million per year from 2008 to 2012 due to signed cooperation agreements on trade and
changes in funding flows to the country, partly offered low interest loans in several key areas
as a result of the many factors mentioned above. related to Guyanas economic development.
On the other hand, the new LCDS does provide Venezuela forged a preferential oil supply deal
an economic proposal for sustainable forest use with the GoG in 2008, as well as forgave millions
and preservation in Guyana so standing forests of dollars of foreign debt and financed several
can be protected while promoting sustainable small-scale local projects in Guyana.

14 CHAPTER 2. DEVELOPMENT CHALLENGES AND NATIONAL STRATEGIES

Chapter 3

UNDP RESPONSE AND STRATEGIES

3.1 UN AND UNDP ROLES IN GUYANA or coordination role in all of them due to the
small size of UNCT. Each group has clear terms
UNCT of reference.
The UNCT for Guyana consisted of the following
resident agencies as of mid-2009: UNDP, CCA/UNDAF (2001-2005)
United Nations Childrens Fund (UNICEF),
United Nations Population Fund (UNFPA),30 The first UNDAF programme cycle was
Pan-American Health Organization/World 2000-2005, followed by a second cycle in
Health Organization (WHO), Joint United 2006-2010, which is still ongoing and likely to
Nations Programme on HIV/AIDS (UNAIDS), be extended into 2011 enabling all UN agency
Food and Agriculture Organization of the United programme cycles to be fully aligned by 2012.
Nations (FAO)31 and United Nations Volunteers
(UNV).32 Non-resident agencies linked with The 2000 Common Country Assessment (CCA)
the Guyana UNCT include United Nations investigated and verified the key issues and
Economic Commission for Latin America and development priorities present in the political
the Caribbean (UNECLAC), International and economic context at that time. It noted
Labour Organization (ILO), United Nations that a process of constitutional reform had been
Educational, Scientific and Cultural Organiza- ongoing since the late 1990s but still had to be
tion (UNESCO), United Nations Development completed, coupled with the pressures of the
Fund for Women (UNIFEM), United Nations economic reform and adjustment process under
Information Centre, and International Tele- HIPC. According to the analysis provided this
communications Union. UNDAF 2006-2010, had negatively influenced growth and develop-
which was prepared in 2005, stated that at the ment processes up until 2000, so the main areas
time the UN family of agencies provided approx- identified for UN system support were human
imately 1 percent of Guyanas ODA. resource development and capacity building,
poverty eradication and health promotion. The
UNCT is under the overall responsibility CCA stressed coherence with the NDS and
of the UN Resident Coordinator (RC) (i.e. mentioned the need to implement a region-
UNDP Resident Representative); and there ally-sponsored Directional Plan on Poverty
are subsidiary UN theme groups composed of Eradication, achieve expenditure targets for
representatives of UNCT members in HIV, combating poverty, and create small-scale
operations management, programme coordi- business opportunities for the unemployed,
nation and communication, information, and disadvantaged or marginalized groups including
advocacy groups. UNDP participates in each of women and Amerindians. Overall, this appeared
these theme groups and it plays a leadership and/ to be a very detailed, thorough analysis with clear
identification of priorities and good alignment

30
UNFPA does not have a full country office in Guyana. There is an assistant representative who reports to the UNFPA
regional office in Jamaica.
31
After an absence of 25 years, the FAO re-established an office in Guyana in mid-2009.
32
There is also an ILO project located in Guyana whose coordinator attends UNCT meetings.

CHAPTER 3. UNDP RESPONSE AND STRATEGIES 15

 with government priorities as formulated or 6. promotion of civil and political rights (e.g.
understood at the time. supporting the implementation of human
rights instruments and affirmative action
The 2001 UNDAF emphasized the need for a programmes, supporting institutional
rights-based approach to development, greater strengthening and capacity building of
coherence among UN agencies and the desire political institutions, as well as the judiciary
of the UN agencies to support the government and enforcement entities).
in addressing the proposed constitutional and
governance changes discussed in the late 1990s. UNDP was expected to tailor its programming to
The three long-term outcomes of the UNDAF fit within and contribute towards these strategic
were stated as follows: directions, specifically those related to economic
opportunities and respect for rights. However,
Progressive realization of the Guyanese
the 2001 UNDAF did not contain explicit results
people, beginning with the most deprived,
and monitoring framework, which could be used
of their economic, social, cultural, civil and
by UNCT to assess ongoing progress towards
political rights.
these strategies.
Facilitatingmeaningful participation of all
Guyanese in the political process. CCA/UNDAF (2006-2010)
Assisting the State to respect, protect and The 2005 CCA identified three broad priority areas
fulfil the rights of all citizens and to be for development work in Guyana: 1. expanding
accountable for the positive and negative human capabilities, 2. fostering empowerment,
responsibilities associated with this duty. and 3. widening opportunities. The CCA verified
civil society empowerment, security issues (in
Within these broader outcomes, the main strate-
relation to stability and consensus-building), and
gies were:
alignment with pro-poor development policy
1. increasing the standard of living via support as embodied in the NDS, PRSP-I, MDG and
for relevant policy reform (e.g. creation of HIPC initiative (such as ongoing government
protected areas, other aspects of environ- investment in essential human needs) as key
mental well-being, underlying factors related national priorities. It also stressed the linkages
to food security and poverty reduction, between successful completion of the PRSP-I,
increase food access for the poor, and which at that time was behind schedule, and
support for natural disaster prevention and sound macroeconomic policies.
mitigation);
Subsequently the 2006 UNDAF identified three
2. protection and assistance for families, women
main national priorities, which UN agencies
and children (e.g. adherence to international
would support: 1. poverty elimination through
conventions to respect women and childrens
investing in people and requisite physical capital,
rights);
with a target set of a minimum 10 percent
3. health system support (e.g. capacity develop- increase in the number of Guyanese accessing
ment, access and management); quality services; 2. an inclusion system of
governance based on the rule of law in which
4. promotion of educational rights (e.g. citizens and their organizations participate in
increasing quality education and access to the decision-making processes that affect their
information technology, IT); well-being, this would include establishment of
5. increasing access to employment (e.g. the five constitutional rights commissions; and
economic and employment policies, especially 3. a macroeconomic framework and sustainable
in rural areas); and economic base conducive to the elimination of

16 CHAPTER 3. UNDP RESPONSE AND STRATEGIES

poverty, with a target of reducing poverty to 28 3.2 UNDP DEVELOPMENT APPROACH
percent by 2010 through stimulation of economic
growth and employment generation. 3.2.1 THEMATIC AREAS AND KEY
PARTNERS IN THE UNDP COUNTRY
PROGRAMME
The UNDAF included a results matrix with
three UN agency outcomes linked to the above Under the CCF 2001-2005 there were three
national priorities, as well as a monitoring and thematic areas: poverty reduction, democratic
evaluation framework that indicated the UN governance and environment. The main objectives
family division of labour and provided a means of the country programme (see Table 5) were
of measuring success. Specific contributions were clearly linked to the governments main priorities
proposed for UNDP in the areas of promoting but not explicitly aligned to the broader UNDAF
pro-poor economic growth, support for private because that process was still at the preliminary
sector development, strengthening of public stage. In the more recent CPD-CPAP from
sector management systems and access to basic 2006 to the present, the main outcomes were
services, increased social cohesion, and support again very closely linked to government priorities
for the electoral process rule of law and rights- and the linkages with the UNDAF were much
based approaches. In turn these priority areas, more explicit and clear. After 2006, energy was
described in the next section of the report, officially added to the environment portfolio and
were linked explicitly to the UNDP programme the thematic area of natural disaster recovery and
framework. risk reduction was split off into its own practice
area, even though work on both these areas
In 2008 a mid-term review of the current initially fell under the environment portfolio.
UNDAF was undertaken.33 The report was Currently there are four major thematic areas in
generally complimentary of the UNDAF design the programme, which are well-established as
and the relevance of the identified strategies and separate practice areas; a cluster of outcomes is
aims. It noted all UN agencies including UNDP clearly identified for each one linked in turn to
had considerably contributed towards meeting the larger UNDAF results framework (see Table
UNDAF aims and stated outcomes one and 6). At various stages specific programming on
two were likely to be achieved by 2010, with gender was subsumed under both the poverty
some provisos regarding outcome three related reduction and democratic governance thematic
to poverty. However several short-comings were areas. HIV/AIDS was included in the CPD as
highlighted, including over-ambitious objectives, a separate suboutcome under poverty reduction,
lack of clear baselines for measuring progress, but was not included in the CPAP.
lack of clarity regarding outcome and output
definition (including poorly-defined targets), the National development partners for UNDP have
need for a more precise human-resource capacity largely remained the same under each thematic
development strategy to support the countrys area over the past several years, as shown in Table
priorities in this area, and the urgent require- 5, even though the extent of involvement of some
ment for further resource mobilization to support partners has varied based on specific initiatives.
UNDAF goals. Due to Guyanas small size and the interlinked
nature of development work in the country,
UNDP has worked with several key partners
within different thematic areas.

33
Mid-Term Review of UNDAF 2006-2010 of the United Nations, November 2008.

CHAPTER 3. UNDP RESPONSE AND STRATEGIES 17

 Table 5. Thematic Areas and National Development Partners for UNDP in Guyana
Thematic area National Development Partners
Poverty Office of the President, Ministry of Foreign Affairs, Ministry of Finance, Ministry of
reduction Amerindian Affairs, Bureau of Statistics, Ministry of Local Government, Guyana Manufacturers
Association, Private Sector Commission
Democratic Office of the President, Guyana Electoral Commission, Ministry of Local Government and
governance local government authorities, Ministry of Culture, Youth and Sport, Womens Affairs Bureau,
Ethnic Relations Commission, plus various NGOs and community- and faith-based groups
Environment Office of the Prime Minister, Ministry of Agriculture, Ministry of Amerindian Affairs,
and energy Environmental Protection Agency, Guyana Lands and Surveys Commission, Iwokrama
Rainforest Centre, Guyana Marine Turtle Conservation Society, Guyana Forestry Commission,
Guyana Energy Commission
Natural disaster Office of the President, Civil Defense Commission, Ministry of Agriculture, various
recovery and community-based groups
risk reduction

3.2.2 COUNTRY PROGRAMME detailed elaboration of proposed outcomes and

RESULTS/OUTCOMES corresponding outputs under the CPD-CPAP,
Elaboration of results evolved over time for with attached targets and indicators. An overview
the country programme from a small number of planned results for the Guyana country
in the CPD to a much more complex and programme since 2001 is provided in Table 6.

Table 6. Results Overview for Guyana Country Programme

Country Cooperation Framework 20012003 (extended to 2005)34
Planned Objectives Proposed Initiatives/Outputs
Poverty reduction Capacity building and strengthening of IT systems within government
(ref CCF, paragraph 19) ministries
To provide catalytic and synergistic Strengthening and upgrading the statistical system with the Bureau
support for achieving the goals of of Statistics
the national capacity-strengthening Productive employment, income generation and leadership/skills
for poverty eradication. development for Amerindians and women

Democratic governance Continuing support to the constitutional reform process

(ref CCF, paragraph 24) Gender, within the context of empowerment for development
To continue to provide support Strengthening of local, municipal, regional and national institutions
for efforts to build an inclusive and organs of governance
democracy. Support for the electoral process
Assistance in consensus-building activities and consultations,
including institutional development of the proposed Race Relations
Commission35
Environment (implied objective Training of government officials in the EPA, the Guyana Geology and
see subtitle before paragraph 25) Mines Commission, the Guyana Forestry Commission and the Guyana
Human resource development for National Bureau of Standards
environmental stability Community sensitization dialogues regarding environmental issues
(forestry, mining and urban household sanitation)
Capacity development of the EPA to undertake its mandate

34
Note that there was no formal results framework provided in the CCF (dated 9 November 2001). Therefore, the objec-
tives and initiatives/outputs were extrapolated from the document, but they have been treated as putative results state-
ments for the purpose of the performance analysis in the ADR.
35
See the CCF document, paragraph 24 page 7, which uses the term Race Relations Commission. The official title of
this body was evidently later changed to the Ethnic Relations Commission.

18 CHAPTER 3. UNDP RESPONSE AND STRATEGIES

 Table 6. Results Overview for Guyana Country Programme (continued)
Country Programme Document 2005201036
Planned Objectives Proposed Outputs
Poverty reduction (ref. CPD RRF page 6) Improve capacity to monitor
Note: Planned results for poverty reduction are subsumed under UNDAF and manage indicators
Outcome No. 3, Reduce poverty by 28 percent by 2010 through stimula- System developed to ensure
tion of growth and job creation (MDGs 1 and 8). broad-based participation in
A. PRS/PRSP prepared to ensure participatory process with civil society in preparing strategies and policies
policy formulation and programming, and taking into consideration clear
linkages with human development and the MDG.
Corresponds to CPAP RRF (2006) OC 1.2: Pro-poor policy reform to achieve
MDG targets; and OC 1.2.1: PRS/PRSP prepared through substantive partici-
patory process to ensure clear linkages with human development and the
MDG).
B. Broad-based, multi-sectoral and multi-level response generated, No information provided
integrating HIV/AIDS into national development plans and mainstream-
ing HIV/AIDS into key sectors and ministries.
No corresponding CPAP outcome.
C. Local poverty initiative(s) linked to policy change undertaken. Capacity built to develop
Corresponds to CPAP RRF OC 1.3: Local poverty initiatives, including microfi- decentralized poverty-reduction
nance; and 1.3.2 : Replicable poverty linkages initiative(s) linked to policy strategies, incorporating disaster
change undertaken. management strategies
Capacity of private sector built
to improve business processes
towards the achievement of the
MDG, including engaging in
partnerships for development
D. Community and regional development strategies will take into consid- No information provided
eration national, sectoral and external trade policies.
No corresponding CPAP outcome.
Democratic governance (ref CPD RRF page 7) Elections held to international
Note: Planned results for governance are subsumed under UNDAP standards
Outcome No. 2, Empowered individuals and groups, strengthened institu- Governments ability to promote
tions and an enabling constitutional and human rights framework. human rights strengthened
A. Institutional/legal/policy frameworks established to promote and Access to and quality of justice
enforce accountability, transparency and integrity in the public service. improved
Corresponds to CPAP RRF OC 2.7: Public administration reform and anti-corrup-
tion; and OC 2.7.2: Institution/legal/policy frameworks established to promote
and enforce accountability, transparency and integrity in public service.
B. Social cohesion and peace-building approaches factored into national Capacity built in institutions,
development frameworks, and integrated into programmes designed civil society organizations
and implemented at the national and local level (with due regard paid and political parties in social
to the promotion of human rights). cohesion and peace-building
Corresponds to CPAP RRF OC 4.1: Social cohesion and peace-building; and Political dialogue and inclusivity
OC 4.1.2: Social cohesion and peace-building approaches informed/factored in governance strengthening
into national development frame-works, and integrated programmes designed
and implemented at national and local level.

36
For the purposes of summarizing the results areas in the latest programme cycle, the outcome column provides infor-
mation on what is found in both the CPD and CPAP (to show how the two documents are essentially consolidated
within the CPAP results framework). The outputs are those stated in the official CPAP results and resource framework
agreed between UNDP and GoG.

CHAPTER 3. UNDP RESPONSE AND STRATEGIES 19

 Table 6. Results Overview for Guyana Country Programme (continued)
Country programme document 20052010
Planned Objectives Proposed Outputs
Environment and energy (ref. CPD RRF page 6) Capacity built in hinterland
Note: Planned results for environment and energy are subsumed under communities for renewable
UNDAF Outcomes No. 1 An increase in at least 10 percent in the proportion energy
of Guyanese accessing quality services in education, health, water and sanita- Capacity built in the use
tion, and housing with capabilities enhanced to maximize available opportu- of renewable energy
nities, and No. 3 Reduce poverty by 28 percent by 2010 through stimulation technologies
of growth and job creation under MDGs 1 and 8.
A. Access to energy services, electricity or cleaner fuels in rural areas
increased.
Corresponds to CPAP RRF OC 3.3: Access to sustainable energy services; and OC
3.3.2: Access to energy services, electricity or cleaner fuels in rural areas increased.
B. Value of biodiversity factored into national planning, and government Capacity built to manage
and local communities empowered to better manage biodiversity and the community natural
ecosystem. resources
Corresponds to CPAP RRF OC 3.5: Conservation and sustainable use of biodiver- Capacity built at the
sity; OC 3.5.1: Contribution of biodiversity and ecosystem services to food security, national level to manage
health, livelihoods and reduced vulnerability to natural disasters factored into natural resources
national planning for achievement of development goals, including safeguards Capacity built for land use
to protect these resources; and OC 3.5.2: Communities and local communities management
empowered to better manage biodiversity and the ecosystem it provides.
Natural disaster recovery and risk reduction (ref. CPD RRF page 6) Capacity built to reduce and
Sector-specific, national and local expertise developed, covering disaster- manage environmental risk
preparedness planning and mitigation of risks and vulnerabilities with specific Capacity built to respond
attention to gender. to natural disasters at the
Corresponds to CPAP RRF OC 4.5: Natural disaster reduction; and OC 4.5.2 Sector- community level
specific national and local expertise developed, covering disaster-preparedness
planning and mitigation of risks and vulnerabilities.

3.2.3 OVERVIEW OF PROJECTS AND project management unit housed in UNDP

IMPLEMENTATION MODALITIES Guyana Country Office.
Thirty-four development projects in Guyana were
funded by the UNDP country office between The size of projects funded by the Guyana office
2001 and 2008. The country office implemented over the past several years varied widely. The ADR
the largest number of projects during that time found the majority of projects funded appear to be
period in environment andenergy (14 projects), in the $300,000-$500,000 range, with a handful
followed by poverty reduction (nine projects), of larger projects ranging from $800,000 to more
democratic governance (eight projects) and than $2 million, mainly in the environment and
disaster recovery and risk reduction (three democratic governance thematic areas.
projects). The list of environment projects includes
the Caribbean Renewable Energy Development The majority of projects (31 out of 34 or approxi-
Programme (CREDP), which is a regional initia- mately 91 percent) used the national execution/
tive implemented by CARICOM with Global implementation (NEX/NIM) modality, which
Environment Facility (GEF) resources for which meant they were directly managed by national
UNDP Guyana has some performance oversight development partners using funds allocated to
responsibilities, as well as the multi-country them by UNDP. All four direct execution/
Guiana Shield Initiative (GSI), which has its implementation (DEX/DIM) projects managed

20 CHAPTER 3. UNDP RESPONSE AND STRATEGIES

by UNDP itselftwo in governance, one in total expenditure target for the country office is
environment and one in disaster recovery currently set at approximately $21.5 million for
have had much larger budgets (more than $2 the entire CPD-CPAP period 2006-2010, based
million total) and required more direct, hands-on on a combination of actual expenditures to date
involvement due to their design. and projected programme expenses for the next
two years.
3.2.4 PROGRAMME EXPENDITURES
The ADR team was able to obtain some
Annual programme expenditures for UNDP additional project financial information from the
Guyana in recent years are shown in Table 7 country office regarding expenditures on each
according to information available from the thematic area in the programme for the entire
ATLAS corporate accounting system as of June 2001-2008 period. Unfortunately, none of the
2009. Noticeable fluctuations in recent annual information from the early 2000s is contained
financial expenditures (for example, a nearly 30 in the corporate ATLAS system, which has only
percent drop from 2006 to 2007) appear to be been in place since 2004. This information is
largely attributable to extra infusions of specialized shown in Table 8.
donor resources, which were channeled through
the UNDP programme at that time to support Table 9 shows the official financial information
the 2006 electoral process, and to challenges available from the UNDP ATLAS system on the
with maintaining consistent, diversified flows of programmes thematic expenditures since 2004.
non-core resources on a year-by-year basis. The

Table 7. Annual Programme Expenditures for UNDP Guyana 2004-2008 (USD millions)
2004 2005 2006 2007 2008 Total Annual average
3.05 4.49 6.23 2.29 1.72 17.77 3.55

Table 8. Estimated Total Project Expenditures by Thematic Area for UNDP Guyana 2001-200837
Thematic area Number of projects Total project expenditures
Poverty reduction 9 $4.5M
Democratic governance 8 $8.8M
Environment/energy 14 $9.3M
Disaster recovery and risk reduction 3 $1.1M

Table 9. Thematic Area Expenditures by UNDP Guyana 2004-2007

Thematic area Total project expenditures % of programme spending
Poverty reduction $1.9M 11.7
Democratic governance $2.7M 17.4
Environment/energy $2.3M 14.7
Crisis prevention and recovery38 $4.3M 27.2
Not entered (uncoded projects) $4.6M 28.85

37
These figures were obtained from the country office in early July 2009 and have been used in the ADR; in comparison
to available ATLAS data, which covers a shorter time period and may contain inaccurate project coding, the estimates
give a more comprehensive picture of the level of thematic expenditures.
38
Crisis prevention and recovery incorporates both natural disaster projects as well as projects related to prevention of
political violence under the democratic governance area.

CHAPTER 3. UNDP RESPONSE AND STRATEGIES 21

 Unfortunately the available ATLAS data shows interventions under the CPD-CPAP, given that
a large number of projects as not entered under core funds received from UNDP Headquarters
any specific thematic area (perhaps due to errors only represented about 30 percent of Guyana
or misunderstandings in how the data should Country Offices total programme expenditures
be coded in the system) so it is not possible to for the 2004-2008 period as listed above. This
consolidate it accurately with the data shown in means that the country programme must raise
Table 8 above. the bulk of its resources from a variety of
non-core sources.
UNDP Guyana Country Office has relied on
external resource mobilization in order to ensure Annual resource mobilization efforts related to
the activities planned under its agreed program- raising non-core funds, as well as cost-sharing and
ming frameworks with the government take fundraising arrangements with the GEF, govern-
place as planned. UNDP, through its corporate ment and other international partners, accounted
budget, has a limited amount of core resources for the other 70 percent of funds disbursed by
available on an annual basis, which it distrib- UNDP over the past several years. GEF was
utes to qualifying programme countries under the highest single source of external funding,
its target for resource assignment from the core with approximately $8.17 million allocated to
(TRAC) system.39 Recent figures show UNDP UNDP Guyana from 2001 to 2008. Other major
Guyana Country Office spent approximately $1.1 external funders for UNDP work during the
million of TRAC funds in 2004, $1.2 million in past several years included DFID (UK), CIDA
2005, $898,000 in 2006, $594,000 in 2007 and (Canada) and the EU. Data available from the
$568,000 in 2008. It appears that the gradual but country office shows as of mid-2009 approxi-
consistent decline in UNDP core funds is related mately $16.4 million has already been mobilized
to several factors, including the programming and from non-core funding sources, which represents
absorptive capacity of the country programme roughly 76 percent towards the total planned
and its partnersif funds are not spent as programme expenditures of $21.5 million for
allocated, then they are reduced accordingly in the current CPAP period. The country office
subsequent yearsand the fact that Guyanas predicts another $875,000 of non-core resources
own development status has gradually improved. will be mobilized in the next two years, while the
These funds would obviously not be sufficient remainder of programme funding for this time
on their own to support all planned development period will be covered by UNDP core funds.

39
TRAC is based on a system of allocating the funds available to UNDP from its global contributors based on each
member countrys income status and development needs.

22 CHAPTER 3. UNDP RESPONSE AND STRATEGIES

Chapter 4

UNDP CONTRIBUTION TO
DEVELOPMENT RESULTS
4.1 EFFECTIVENESS To strengthen national capacity for poverty
eradication, the main activities were oriented
The following summarizes the main findings
towards increasing internal communications
for effectiveness under each thematic area in
and computing capacities of the Ministry of
the country programme. Specific comments
Foreign Affairs (MoFA) to support PRSP-I
and examples are provided on various aspects
monitoring, which was moderately successful.
of effectiveness (progress towards results, mix
For example draft regional development
of projects to support results and impact on
strategies were produced, detailing the needs
vulnerable groups and communities) under each
and options for localization of economic and
thematic area. Where appropriate, reference is also
social development investments. However,
made to how the country programme evolved in
these plans were not actively used. Also,
terms of its effectiveness, such as results achieve-
UNDP supported the Bureau of Statistics
ment at either the project and/or programme
and the monitoring and evaluation unit
level, from the CCF to the CPD-CPAP time
in the Office of the President to establish
periods. The ADR team found, in general,
clear benchmarks for measuring poverty
strong interlinkages between the different
reduction. MDG reports produced in the
thematic areas during both programme periods
early 2000s were deemed of relatively poor
that contributed and continues to contribute to
quality, although they did lay the founda-
overall programme effectiveness and the selection
tion for production of an improved MDG
of projects did support overall programmatic
report in 2007 and assisted in the introduc-
results achievement.
tion, with UNICEF collaboration, of the
DevInfo database for collating vital social
Poverty reduction: The ADR found work on
and poverty statistics. Strengths of this
poverty and livelihoods contributed to planned
process included broadly-based, participatory
country results as well as provided benefits for
systems for PRSP and social development
vulnerable communities and beneficiary groups.
tracking with extensive tools and manuals
Poverty and livelihoods work under the CCF
produced. The Development of Institutional
cycle from 2001 to 2005 built on what had been
Social Statistics Capacity (DISSC) project to
done in the late 1990s with a continued emphasis
support social statistics capacity was viewed
on community-based poverty reduction work
by the GoG as critical for effective support
with Amerindian peoples, women and the rural
of PRSP-I monitoring. UNDP support
poor (in line with the PRSP-I key objectives
contributed to the availability of better
and aims as well as UNDP corporate strategy
quality statistical information, creation of
and values). During the CPD-CPAP period
stronger statistical benchmarks for the
the programme continued to evolve, results for
monitoring of the PRSP-I, and broader
poverty reduction were defined differently and
institutional ownership of social data; as well
there appeared to be attempts to create a better
as indirectly contributing to production of an
balance between upstream, policy-related work
updated national poverty profile, develop-
and downstream community initiatives. The
ment of a living conditions survey and the
ADR identified the main initiatives and their
implementation of a national household
challenges were as follows:
budget survey in 2006. However, since 2007

CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 23

 lead responsibility for MDG/PRSP tracking opportunities for hinterland communities. In
was officially transferred to the Ministry spite of being officially deemed a success, the
of Finance (MoF) from the Office of the ADR discovered concrete economic benefits
President and many of these initiatives were were not yet realized from this initiative
discontinued. Building on earlier efforts, a several years after it officially ended. A second
new initiative was being planned with the example was UNDP provided funding for a
GoG at the time of the ADR to continue to National Working Group of key private sector
enhance poverty tracking capacities, building representatives (including members from the
on previous work. Private Sector Commission and the Guyana
Manufacturers Association) to identify and
At the community level the EMPRETEC
sponsor small-scale, micro-enterprise initia-
project from 2003 to 2006 supported small-
tives to support the achievement of the
scale economic development training for local
MDG. Results included establishment of
entrepreneurs consistent with the aims of
a womens agro-processing enterprise in
the PRSP-I and NDS. EMPRETEC was
Region 1 that has recently begun to market
very successful in instilling entrepreneurial
its products nationally, however the womens
attitudes and more than 300 entrepreneurs
group remained severely constrained by lack of
were trained by facilitators from Brazil and
marketing expertise. A third example was the
Ghana. Training of trainers was also offered in
mixed results achieved so far in the Replicable
the internationally-recognized EMPRETEC
Local Poverty Linkages project funded by
capacity development package.40 However
UNDP since 2007 and implemented by the
the ADR was told by key stakeholders,
Ministry of Local Government. The primary
both inside and outside government, the
objective of this program was to reverse the
EMPRETEC project itself ended too
economic damage of the 2005 floods by
abruptly (in spite of a very positive perfor-
supporting work on sustainable livelihoods
mance review) to capitalize on its potential
at the grassroots level. Several small-scale
to influence policies and structures related to
poverty subprojects were supported, but
women and entrepreneurship.
the ADR team found examples of at least
Several smaller-scale, downstream initia- two community initiatives launched under
tives in community-based poverty reduction the Replicable Local Poverty Linkages that
experienced challenges with linking their appeared to have major design and implemen-
effects to broader policy reform aims, which tation flaws.
compromised overall project effectiveness.
HIV-AIDS was included in the original
Also there appeared to be consistent
CPD document under the poverty reduction
challenges with UNDP monitoring itself
thematic area, but it was not included in the
during the project implementation process
CPAP at the request of the government as
to ensure challenges were properly addressed.
the perception was that there was no need
One example was a partnership between
for direct UNDP involvement due to the
the Ministry of Amerindian Affairs and a
availability of resources from other agencies.
European agribusiness company, Amazon
However, the ADR learned from various
Caribbean Ltd., to create 200 acres of manicol
stakeholders that the actual and potential role
palm plantations on a pilot basis in 12
of UNDP in HIV/AIDS work did not seem
Amerindian riverine communities in Region
to have been fully discussed and clarified
1, with the aim of generating economic
either within the UN theme group or even

40
EMPRETEC is a global programme of the United Nations Conference on Trade and Development (UNCTAD),
which has been in existence since 1998. It has been launched in 27 countries and trained more than 120,000 entrepre-
neurs.

24 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS

 with government counterparts before concur- results. However, the ADR found UNDP work
ring with the decision to exclude HIV/AIDS under the CCF was somewhat limited in scope in
from the CPAP. Under UNDP corporate comparison to the original plans outlined in the
mandate, UNDP must remain active in CCF document at the start of the programme
country-level HIV/AIDS mainstreaming period, possibly due to changes in the programme
activities. This can include support for context including shifting government priori-
ensuring that HIV/AIDS is mainstreamed ties and needs. UNDP work in democratic
in the PRSP and other national policies/ governance did not expand dramatically from the
frameworks and within UNDP projects in CCF to CPD-CPAP periods although the Social
all sectors. UNDP is also encouraged to play Cohesion Programme (SCP) did make some
an active technical support and advisory role contributions to national unity and dialogue. The
in terms of integration of gender issues into main initiatives were as follows:
HIV/AIDS at the country level. In lieu of
The CCF document, which was jointly
direct programmatic engagement, UNDP
agreed with the government, clearly
remained involved in some technical support
indicated UNDP planned to help support
activities and was an active member of the
the ongoing constitutional reform process
joint UN theme group (and related technical
and it specifically mentioned the possibility
working group) on HIV/AIDS in Guyana
of institutional development of the Race
during the time period under review. Since
Relations Commission (later renamed as the
2004 UNDP administered approximately
Ethnic Relations Commission) as a means
$500,000 from the specialized Programme
of consensus-building. However the ADR
Acceleration Funds, which are available via
team uncovered no direct evidence of UNDP
UNAIDS to support small-scale projects to
capacity support for this body, although
reinforce the national HIV response. The use
there was continuing support for the Guyana
of these funds was decided jointly by the UN
Elections Commission (GECOM) and for
theme group. However, in spite of the clear
the conduct of the 2001 and 2006 elections.
corporate agreement on a global level between
the two agencies, there also appeared to be a UNDP funded GECOM from the early
need for more consistent dialogue between 2000s to the present. This involved ongoing
UNDP and UNAIDS in Guyana regarding support for GECOM IT and data manage-
how to mutually strengthen each others role ment systems so election results, voter
in HIV/AIDS related work and establish the registration systems and maintenance of
most effective practical working relationship. voter lists were less likely to be disputed.
UNDP provided effective technical
A planned outcome under the CPD related
support for GECOM in the preparation
to trade policies was eventually dropped from
and conduct of the 2006 elections, which
the CPAP due to the decision by GoG not to
included co-funding the Media Monitoring
pursue the development of regional develop-
Unit (MMU) with CIDA. During the
ment strategies as part of the Replicable
elections the Guyana media received orienta-
Local Poverty Linkages project.
tion to international standards for electoral
Democratic governance: UNDP work on reporting from the MMU, which helped
democratic governance beginning in the early minimize ethnic and political violence.
2000s was based on continued involvement at Since the elections, with UNDP support,
the request of government in supporting national the MMU continued to help reduce the
elections and ongoing dialogue concerning how number of violent images in the print media
to strengthen the countrys governance structures. and support a broader movement towards a
Several specific projects over both programme national code of practice for journalists.
cycles had some success in meeting their planned

CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 25

 UNDP took an effective diplomatic, leader- and Recovery in New York, which formed
ship and facilitation role in the 2006 electoral the so-called Framework Team for global
process, which some observers believed helped conflict resolution and prevention. The
ensure these elections unfolded without SCP incorporated a wide range of peace-
major incidents of interethnic violence or building activities with diverse groups at
unrest for the first time in many years. The all levels of society (e.g. local government
UNDP Resident Representative (RR) at that officials, the Ethnic Relations Commissions,
time had strong political diplomacy skills and law enforcement officials, political parties
consequently won the respect and admiration and parliamentarians), including workshops,
of many stakeholders both within and outside trainings, public presentations, resource-
the Guyanese government. To contribute sharing, campaigns and consultations. In
towards electoral peace as well as underlying 2007 a very thorough evaluation was done
issues, UNDP RR helped negotiate the of SCP, which judged it to be quite effective
terms of a 2005 joint memorandum and innovative in terms of progress towards
of understanding for electoral support its major objectives such as influencing
between the Americans, British, Canadians individual, group and social behaviours
and the EU and the GoG. The elections around democratic dialogue. Strong points
memorandum of understanding (MOU) included support for peaceful community
was very strategic in that it emphasized engagement in the 2006 electoral process
certain conditions for enhanced and coordi- and involvement of the private sector in
nated multi-donor electoral support based some SCP-supported political consultations.
on many key recommendations made by The ADR found evidence of good support
the Commonwealth Secretariat following offered under the SCP for creation of a
the violent 2001 elections, and it explicitly comprehensive regional development plan
identified the need for long-term follow-up for Region 10, which engaged actors in a
to address structural issues linked to the developmentally-oriented process both to
Herdmanston and St. Lucia agreements. identify appropriate economic opportunities
A temporary elections unit was established and to strengthen political/social dialogue.
within UNDP country office to administer However the SCP evaluation noted that
and coordinate funds from the main interna- there were some weaknesses in the project,
tional partners under the MOU. However, which the ADR team corroborated in its own
broader follow-up items in terms of consti- research, such as its somewhat fragmented
tutional reform were not pursued by UNDP approach and its failure to truly build
and key stakeholders once the election itself local organizational capacity or sufficiently
was over, possibly because the RR had engage local government structures. The
departed by that time. strong focus on individual change in SCP
(although commendable and needed) was
To directly support national consensus-
judged by some key stakeholders to have the
building, both in relation to the electoral
effect of distracting attention from the more
process and more broadly, UNDP initiated
intensive, challenging work on institutional
the SCP in 2004 continuing until 2006.
change in the governance system. The ADR
The SCP was a DEX project due to its
learned that due to the gap between the
sensitive nature, which involved extensive
end of SCP and the launch of its successor
planning and consultation with experts from
project Enhance Public Trust, Security and
the Office of Humanitarian Affairs, the
Inclusion (EPTSI) there were also strong
Department of Political Affairs, the Office
concerns among stakeholders about loss of
of the High Commission for Human Rights,
momentum and continuity.
and the UNDP Bureau for Crisis Prevention

26 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS

 As part of non-project support for democratic planning/oversight and consultation skills
governance work, since 2004 UNDP has been and helped break the line ministries past
the co-chair with the Office of the President reliance on foreign consultants. New work is
of a joint governance coordination group that now being planned by UNDP with the MoF
included the major international partners in to strengthen the aid effectiveness agenda
Guyana. The ADR learned that this was and to increase monitoring capacity, which
deemed to be an important non-project area could be an effective way to further enhance
of work for UNDP, which is much appreci- public sector management and accountability
ated by government, and it contributed to systems.
increased dialogue between donors and the
The ADR found UNDP had a relatively
GoG on what strategies should be used
consistent focus on youth as part of its
to support national priorities. One major
democratic governance work during both
constraint appeared to be that the group did
programming cycles. Not only did the SCP
not regularly meet.
target vulnerable, at-risk youth in selected
Because of the strong decentralized networks areas and engage them in community-based
established under SCP with various at-risk work, but since 2007 a specific initiative was
communities, UNDP was in a key position launched on youth and governance with
to implement the Fast Track Initiative (FTI) the Ministry of Culture, Youth and Sport,
following the 2008 community massacres which was also involved in the SCP. It was
in Bartica and the East Coast of Demerara. hoped that some of these youth would also
The ADR found UNDP was well-regarded be motivated as a result to participate more
for its effort and it was able to play a key role actively in local government elections and
in coordinating inputs from UNICEF and other forms of community work. However,
DFID. Effects included some small-scale long-term survival prospects for many of
training and awareness-raising activities, plus these small-scale community initiatives
trauma counseling for affected families and appeared to be poorly defined.
communities.
Democratic governance work included gender
UNDP supported some projects to help equality and womens leadership. There was
strengthen public administration and overall a multi-year project to strengthen capacity
government management, transparency and for gender analysis and documentation in the
accountability at all levels. For example, Womens Affair Bureau of the Ministry of
UNDP worked closely with the Ministry of Labour, Social Services and Social Security
Local Government as a key partner both at (now the Ministry of Human Services and
the central level and within specific regions Social Security), which was quite successful.
for implementation of projects related to the This included support for the establishment
environment, energy and poverty reduction of a national Womens Leadership Institute
(such as the Replicable Local Poverty and creation of a national documentation
Linkages project). Mobilization and training centre for women. The training programs
of local communities for poverty allevia- reached a large number of Amerindian
tion, specifically involving neighbourhood women. The consciousness raising initia-
development committees, appeared to have tives of the Womens Affairs Bureau and
some positive effects on capacity development other governmental and non-governmental
for local government officials. The ADR also agencies on gender issues were also deemed
learned that UNDP project support at the to have contributed to a significant increase of
central level, both with the Ministry of Local women parliamentarians, up from 16 percent
Government and the MoFA in the earlier in the early 2000s to 30 percent now. These
programme period, evidently increased some UNDP investments were well-planned and

CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 27

 quite cost-effective, in the sense that the led to increased recognition among policy
work was seamlessly absorbed within the makers of the need to consult with affected
ministry budget and the level of institutional communities, as witnessed by the extensive
commitment among key partners remains consultations currently taking place around
quite high even after the projects end. the LCDS. According to some stakeholders,
this was also effective in assisting many
The ADR found UNDP did not support
hinterland communities to become stronger
any initiatives for the reform of national
advocates for local environmental manage-
judicial systems as originally planned under
ment practices.
the CPD-CPAP after 2006.
Several ongoing areas of support under
Environment and energy: UNDP Guyana made the UNDP country programme were for
some useful contributions to national results improved biodiversity management, contin-
in the environment and energy area, and there uous institutional strengthening of the EPA,
were several examples of projects that contrib- and capacity building for sustainable land
uted to raising awareness and building capacity management (SLM). UNDP support to the
on natural resource and biodiversity manage- EPA in assessing its capacities, and those
ment. The scope and variety of programming in of other government agencies, to undertake
the environment thematic area (as a proportion this work appeared to be highly effective as
of the total country programme) increased over a contribution to broader national environ-
time, indicating both its emerging importance mental aims. The ADR found institutional
in Guyana and the ability of UNDP to respond capacity building had a cumulative effect
and adapt accordingly, for example, in relation over several years, but there was a need for
to emerging government interest in renewable continued EPA support to further enhance
energy issues that emerged between the early its capacities. For SLM, an umbrella project
and middle 2000s. UNDP focus on support was designed to mainstream it into national
for biodiversity issues also changed in response development strategies and processes and
to emerging needs. The major initiatives and into land use planning at national and local
challenges were as follows: levels, assess land degradation in Guyana,
To support human resource capacity and train relevant agencies in early warning
development, a project implemented by the systems. The ADR found the project to be
Environmental Protection Agency (EPA) in highly relevant and quite effective in meeting
the early 2000s conducted numerous training short-term aims with a good likelihood of
workshops to build individual knowledge having long-term positive effects.
and awareness on environmental topics To respond to a number of emerging issues
for EPA personnel, the Guyana Forestry related to the environment in the early 2000s,
Commission and other environment-related which went beyond individual awareness-
agencies. This supported some useful institu- raising and training, a large UNDP-funded
tional capacity development, which has umbrella project to build natural resource
continued to the present. Early sensitization management capacity began in 2003 and
activities also included awareness-raising in lasted for approximately five years. It
Amerindian communities, which made them included approximately 18-20 smaller initia-
more aware of their key role in environmental tives to address many different dimensions
protection and promotion of understanding of human resources and (to a lesser extent)
among both government and communities organizational capacity building. This
regarding the value of broad-based, partici- project was cited frequently during the ADR
patory consultations regarding environmental research by different partners in the GoG
issues. The ADR learned over time this

28 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS

 as a highly effective example of UNDP communities took full ownership of natural
work. An evaluation done in 2007 found resource protection, although more technical
the project produced a number of targeted support is evidently needed over time for
catalytic effects, although so widely scattered the communities to achieve sustainable
it possibly compromised effectiveness. For livelihoods.
example, one subproject with the Ministry
The ADR found UNDP helped increase
of Amerindian Affairs in North Rupupuni
Guyanas ability to access GEF resources and
produced a strong model for community-led
create the appropriate institutional structures
environmental stewardship and led to the
for the GoG to fulfil its obligations under the
establishment of natural resource manage-
UN Convention on Biodiversity (UNCBD)
ment bylaws for these communities. This was
and the UN Framework Convention on
linked to the earlier successful establishment
Climate Change (UNFCCC). Targeted
of the North Rupununi District Development
support via UNDP GEF turned out to be
Board, which was in part as a result of UNDP
particularly strategic in laying the ground-
assistance to the Iwokrama International
work for the LCDS. In 1999 UNDP
Centre for Rainforest Conservation, which
supported the development of the countrys
ended in 2001.41 This was the first such
first National Biodiversity Strategy, which
regulatory framework for Amerindian lands
later served as the foundation for the
in the country and many stakeholders said
National Biodiversity Action Plan II for
that it had and still has the potential to be
2007- 2011 and was approved by the Cabinet
more widely replicated elsewhere.
of the GoG in August 2008. A national
Work in North Rupununi since the late GEF committee was established as well
1990s provided an important springboard with UNDP technical support. Without this
for UNDP Guyana and the programmes strategic input, both financial and technical,
subsequent focus on biodiversity conservation international reporting obligations would
and support for Amerindian communities likely not have been met by the government.
involvement in sustainable natural resource The ADR team learned UNDP Guyana acted
management, which emerged strongly in successfully as a broker bringing information
the early to mid-2000s. Another noteworthy and opportunities related to the GEF to the
initiative to strengthen community engage- attention of the GoG. However, one GEF
ment and consultation in support of both proposal prepared for submission by UNDP
human resources capacity and hinterlands government partners was later determined
livelihoods was a highly visible marine turtle to be ineligible for funding. This appeared
conservation effort in Region 1. This was to indicate the need for UNDP Guyana
intended to provide alternate ecotourism to be better informed about continually-
income for local Amerindian communities, changing GEF eligibility criteria so that
in partnership with the Guyana Marine it could offer appropriate technical advice
Turtle Conservation Society. The ADR on government proposals.42 Another is that
team found that many thought this had there was no formal institutional mechanism
been quite effective in ensuring the local or forum via which international partners

41
The ADR team learned the consultations that were undertaken during the process leading to the establishment of the
Iwokrama reserve in the late 1990s, which was largely facilitated by UNDP, helped provide the indigenous communi-
ties with a model of how consultations with government could be effectively undertaken. This process also fed into the
development of the current Amerindian Act.
42
In another case, the GoG asked UNDP to take a rejected protected areas project forward in its own UNDP GEF port-
folio once the World Bank determined it could not proceed with the project. UNDP considered doing so but found
out belatedly that its own quota in that area of the GEF had been reached. The GoG is now pursuing this possibility
with the IDB, something that the UNDP office was unaware of until the ADR team brought it to their attention.

CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 29

 and the GoG met regularly to discuss coordi- Since the early 2000s UNDP also supported
nation around environment sector support CREDP, a large regional project implemented
including issues arising regarding ongoing by the CARICOM Secretariat with GEF
GEF support.43 The ADR team also noted support that was started under the CCF
GEF financing represented quite a large and continued under the CPF-CPAP. In
proportion of the total resources deployed general, the ADR found UNDP Guyana
over the past several years in environment Country Office had a largely hands-off role
work, which may present some risks for the with CARICOM in terms of direct planning
programme in terms of over-reliance on one and oversight for CREDP. However the
funder.44 country office was a member of the CREDP
project steering committee so there was some
Due to rising energy prices, the need to
accountability for developmental performance
reduce Guyanas dependency on fossil
of the project, which had been only moderately
fuels, and the importance of supporting
effective so far in achieving results (partly
economic development in poor hinterland
due to project redesign). In the view of the
areas through electrification initiatives as
ADR team, CREDP created some additional
outlined in the PRSP-I, renewable energy
management challenges for the country office
issues became more prominent in the UNDP
in that it was only tangentially linked to the
country programme after 2004. Main
Guyana programme and it had also experi-
UNDP involvement was via the Hinterlands
enced some implementation delays. CREDP
Renewable Energy project, which began
has had some positive effects on regional
in the mid-2000s with the Office of the
energy policy and it assisted with development
Prime Minister. It was designed to support
of a national energy policy framework that
small-scale demonstration projects for
could potentially be applied in Guyana.
electrification of hinterland communities
using renewable energy. The ADR discov- In 2006 UNDP Guyana became involved as
ered this project was deemed effective by executing agency in an important regional
both government and community partners, initiative; GSI was intended to address
but because it was designed as a demonstra- issues such as resource valuation, benefit
tion project the overall scale of impact was sharing, monitoring of forests and biodiver-
small and there were numerous technical sity via building local and national capacity.45
challenges. There appeared to be a lack of The Iwokrama Rainforest Centrea
consistent oversight from both UNDP and former UNDP-supported initiative, as
the government implementing partners to noted aboveis the pilot site for Guyana
critically analyze the source of project delays although the ADR team was informed that
and challenges, as well as a poor attention the resources deployed thus far appeared to
to community consultation to ensure be insufficient to support their continued
lessons were extracted and then built on. involvement.46 Although it is too soon to
tell, it is hoped the project can contribute to
catalyzing a futures market for ecosystem

43
The ADR team learned there is a National Climate Committee, which regularly meets, but there is evidently no body
which focuses on broader environment issues.
44
The ADR team was unable to independently verify the exact proportion of GEF resources used in the environment/
energy thematic area over the past several years, but a figure of approximately 69 percent was shared with the team by
the country office based on their own calculations.
45
UNDP supported the Guiana Shield Conservation Priority Setting workshop in the early 2000s, which led to the
Paramaibo Declaration in 2002.
46
There are two financial agreements between UNDP and Iwokrama Centre, one related to developing a benefit-sharing
mechanism and another related to pilot site monitoring activities.

30 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS

 services, as long as UNDP can forge stronger be at risk for natural disasters, especially in
synergies between the regional initiative and vulnerable coastal areas. The ADR found
what is happening at both the national and this project did not proceed as planned, but
local levels. no specific reasons were uncovered.

Disaster recovery and risk reduction: The ADR UNDP in close conjunction with other
found UNDP made very useful contributions international partners including the
to country objectives and priorities in disaster Inter-American Development Bank (IDB)
management. This included support for both was involved in planning for a comprehen-
short-term response to emergency situations and sive new project to strengthen local and
longer-term aims to reduce Guyanas vulner- national capacities for disaster response and
ability to climate change and rising sea levels risk reduction. The project will support
via working with key bodies such as the Civil an update of the previous draft compre-
Defence Commission (CDC) and National hensive disaster management strategy from
Drainage and Irrigation Authority to plan 2003, which UNDP helped fund; an update
and prioritize strategies for effective drainage of emergency response and flood response
systems. The main trends and issues related to plans; plus extensive capacity development
work on disaster recovery and risk reduction by for the CDC. This represents a commend-
UNDP were as follows: able upstream approach regarding effective
natural disaster response as well as policies
In late 2002 UNDP started prepara- and frameworks linked to prevention such
tions for a planned project to assist the as enforcement of policies on land use.
GoG to prepare a comprehensive disaster After some delays, UNV recruitment took
management strategy for Guyana. This place in 2009 to provide technical support
was linked to a regional UNDP-sponsored for this project. A comprehensive capacity
project with the Caribbean Disaster and assessment of key government agencies was
Emergency Response Agency (CDERA)47 conducted during the inception phase of the
of CARICOM to encourage all member project, which appeared to be a very effective
states to create these plans using a standard- approach.
ized model. At that time, UNDP Guyana
using its background analysis helped identify UNDP supported the post flood recovery and
key challenges in Guyana with institu- reconstruction process in Guyana starting in
tional arrangements and capacities related to March 2005. This was a directly implemented
disaster response and management as well as project to access special emergency funds
the need to move beyond a reactive, crisis- from UNDP headquarters with technical
driven approach to more concerted action support from the Office of Humanitarian
to address disaster vulnerabilities. Following Affairs. The ADR team found UNDP and
this process UNDP worked with the GoG other international agencies were concerned
to prepare a project proposal for a two-year at the time about the fragility of govern-
project (2003-2005) to support the Office of ment institutions and systems underlying
the President and the CDC to implement the flood relief process, as little work had
the draft strategy and put in place systems been accomplished on this previously. The
to support it. Plans included institutional emergency project covered mobilization of
capacity development with lead agencies and extra resources to support livelihood recovery.
government line ministries as well as consul- Funding was provided for a temporary
tative processes with communities likely to programme officer for disaster management

47
As of September 2009, the name of CDERA was officially changed to the Caribbean Disaster Emergency
Management Agency (CDEMA).

CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 31

 housed in the UNDP office to help coordi- flood response, in which UNDP was able to
nate the multi-agency response to the floods. effectively mobilize considerable emergency
UNDP supported an immediate post-flood resources within a period of only a few weeks.
socio-economic disaster damage assessment The FTI was launched very quickly under the
done by UNECLAC, which proved to be umbrella of the SCP, drawing on many of
very effective for analyzing the extent of the same communities, networks and resource
the damage and the possible options for people involved in the earlier project to facili-
reconstruction and rehabilitation. It was tate a rapid response. Another good example of
completed in late March 2005.48 implementation efficiency, which could possibly
be replicated if the lessons were extracted, was a
UNDP continued to be involved in the major umbrella project to build natural resource
2005 flood recovery efforts and was able management capacity from 2003 to 2008 that was
to mobilize sufficient additional emergency implemented by the MoFA in the environment/
funds from UN headquarters to provide both energy thematic area. The project was able to
financial and material support to farmers achieve all its major outputs within the planned
affected by the disaster. The ADR team timeframe with fewer resources than anticipated,
learned that UNDP support enabled some which meant that additional resources became
farmers to replant following the floods and available for extra work under a project extension.
they received training on how to avoid
seed loss in future floods. UNDP evidently However the ADR found one major efficiency
contributed to greater coordination between challenge for the programme overall, which was
CDC and government line ministries than in consistent delays that led to numerous project
the past regarding natural disaster responses, extensions due to the rate at which the funds could
and it helped support development of a be disbursed and used by partners. At project
preliminary water level management plan. start-up there were sometimes challenges with
timely approval by key government stakeholders,
4.2 EFFICIENCY coupled with the need for extensive negotia-
tions required with government around sensitive
Managerial efficiency: The main issues looked interventions. Although the scope of consultation
at by the ADR team were whether projects were among key stakeholders in the conceptualization
executed within reasonable deadlines and budgets, and design of most UNDP-funded projects was
and whether prompt or timely actions were taken found to be highly commendable (given the need
to identify and respond to challenges encoun- to focus on government ownership), the trade-
tered in implementation. Another sub-area was offs included loss of momentum, situations where
also whether the administrative and managerial the original design was no longer relevant by the
demands placed on partners were reasonable, time the project was approved, and declining
in relation to the agreed-upon need to increase enthusiasm among partners and community-
government ownership of UNDP-supported based beneficiaries.
projects.
UNDP Guyana was seen by partners as largely
On the positive side, UNDP Guyana displayed hands-off in terms of reporting and other
good managerial efficiencies in many crisis requirements, which evidently did help increase
situations: responding rapidly to the 2005 government ownership of initiatives to some
flood relief, 2006 electoral support, and the extent. Government implementing agencies appre-
2008 FTI. Especially noteworthy was the 2005 ciated UNDP flexibility in terms of project exten-

48
See UNDP Guyana/UNECLAC, Guyana: Socio-Economic Assessment of the Damages and Losses Caused by the
January-February 2005 Flooding, March 2005.

32 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS

sions and/or adaptations to the original objectives became much more prominent since 2006. For
or design. However because UNDP reporting example, the majority of projects selected for
and implementation demands were so flexible, funding were usually carefully linked to overall
the ADR learned that in the past there appeared priorities identified in consultation with govern-
to be challenges with timely reporting as well as ment. The cluster of projects supported under
with identification of and response to emerging each thematic area were not usually selected at
challenges, human resource shortages or changing random, but were designed (in theory at least)
circumstances in the partner agencies that negatively to be part of a larger framework for development
affected projects. In the view of the ADR team, change. Resources appeared to be used pragmati-
this could be related to either unrealistic planning cally and efficiently to produce reasonable benefit.
(e.g. over-ambitious goal setting) on the part In the poverty reduction area, for example, by
of UNDP and its partners, or insufficient joint targeting both downstream efforts that produced
assessment with implementing agencies regarding concrete benefits for hinterland communities as
their project management capacity or lack thereof. well as upstream efforts that were linked to
On the positive side, UNDP country office over poverty-monitoring issues. However, the ADR
the past two years has made efforts to increase was concerned these two areas of work were not
the efficiency of project implementation through always linked as consistently and efficiently as they
instituting more regular meetings and consulta- might have been and a great deal of effort in the
tions with government partners to jointly strategize programme appeared to be focused on implemen-
about overcoming implementation delays. tation of small-scale, downstream projects (mainly
at the request of government and other key
These were some other aspects of manage- stakeholders).
rial efficiency and related internal challenges
and advances noted by the ADR which will be However, on the plus side, UNDP Guyana
elaborated more in the programme management country programme created useful interconnec-
(see Section 4.4.). tions and efficiencies between discrete initiatives
across different thematic areas, in order to share
Programme efficiency: The ADR looked at resources, analysis and information. Several good
the strategic concentration and prioritization of examples were found of where several projects in
planned activities, their relationship to results the environment and energy sector also helped
achievement and sustainability, leveraging address and reinforce poverty reduction aims
or rationalization of resources, and the degree for isolated Amerindian communities. Another
to which UNDP efforts were spread too thin, example was that some poverty reduction efforts
leading to overburdening of staff or resources. drew on the same local leaders and resource people
as in democratic governance projects, which
Overall, the ADR found that the Guyana allowed for efficient cooperation and leveraging of
country programme used available resources in technical inputs between the stakeholders. Finally,
an appropriate manner to help achieve planned it should be noted that by concentrating its work
results both within the country programme as across several thematic areas in two or three
well as in relation to broader national priori- regions of the country (mostly Regions 1, 9 and
ties. UNDP Guyana made efforts over time to 5), various efficiencies appeared to be achieved for
rationalize distribution of resources according to the programme in that expertise, partnerships and
the priority needs of the country and to increase strategies were shared either formally or informally
government ownership of initiatives, as well as to to enhance project performance and implementa-
analyze resource trends, reallocate resources and tion. However, there were the only two projects
anticipate and plan for resource needs as necessary in the environment and energy portfolio that
in a responsive manner. These trends were not entailed collaborating NGOs despite the evidence
as visible prior to the CPD-CPAP period but worldwide that partnering with both governments

CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 33

 and civil society is the most efficient approach to strong concerns that sustainability was compro-
conservation. mised because the amounts allocated to some
small-scale, short-term rural economic and liveli-
hood projects under the Heart of Palm, SCP, FTI,
4.3 SUSTAINABILITY and Replicable Local Poverty Linkages projects
Design for sustainability: Positive examples of were simply inadequate in size or too short-term
sustainability in the UNDP Guyana programme in comparison to the scope of needs and therefore
included EMPRETEC, which started as a project unlikely to have lasting effects. This approach
but continued as an NGO when the project ended. meant that continuous reinvestment needed to
Those initially trained under the project formed be made in the same area to produce results or
an association of entrepreneurs that has helped effects over time. For example, the ADR team
continue to motivate its members towards small saw and heard about several small-scale initiatives
business development in the country. Also, invest- under the Replicable Local Poverty Linkages and
ments made in the Womens Leadership Institute the SCP-related FTI that did not appear to have
by UNDP in the early 2000s appeared to be very adequate plans in place to produce sustainable
sustainable and cost-efficient, possibly because local enterprises, although they did meet other
cost-sharing and hand-over with the govern- aims related to consensus-building in marginalized
ment partner ministry were well-formulated as rural areas. A craft production enterprise started
part of the project design. Good sustainability in Region 5 under the Replicable Local Poverty
in terms of longer-term institutional strength- Linkages flourished while UNDP funds flowed
ening was noted in several environment projects. in for several months, but collapsed as soon as the
For example, there has been ongoing support funds dried up as there was no technical support
for the CDC and the Ministry of Agriculture available from the implementing agency and poor
in setting up stronger institutional structures for diagnosis of longer-term beneficiary issues and
an early warning mechanism for flood disasters. needs. Likewise, technical problems encountered
an effort which has been ongoing over several in the Heart of Palm and hinterland energy
projects. Assistance provided to the Amerindian projects were not promptly addressed. In the case
communities of the Northern Rupununi in the of working with vulnerable youth on small-scale
establishment of local resource management economic initiatives through poverty reduction
plans and community organizations resulted in and democratic governance projects, there did not
structures that have continued to function after appear to be any attention paid to the long-term
many years, and which could be widely replicated policy dimensions related to access to vocational
throughout the country if appropriate follow-up training for young people in high-risk rural areas
was offered. to enhance sustainability. Another sustainability
challenge observed in the democratic governance
The UNDP Guyana programme was found area was the relatively long timelag (according
to have some major weaknesses in terms of to some observers) between the end of the SCP
designing individual project efforts for longer- and the launch of the follow-up project, leading
term sustainability. This was partly a function of to cessation of some earlier community initiatives
the challenging and highly adaptive programming and loss of momentum among partners.
environment, but also demonstrated how sustain-
ability planning had to be built into the design and Sustainability of other UNDP-supported work
ongoing implementation of each initiative. Many appeared to be compromised by the lack of core
poverty reduction efforts appeared to be focused resources within government partner institu-
on small-scale, one-off infusions of resources tions. UNDP invested heavily for several years
instead of a more strategic long-term approach to in strengthening the monitoring unit in the
organizational development. For example, many Office of the President, but this unit was later
stakeholders interviewed for the ADR expressed disbanded. Key personnel took posts outside of

34 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS

government, capacity then had to be rebuilt from observed there was a need to move from the
scratch in the MoFa process that is still process of assessing and/or building the basic
ongoing. In spite of considerable investments regulatory instruments towards actual implementa-
made in building capacity for MDG monitoring, tion, follow-up and scaled-up enforcement. Other
there still appeared to be challenges with timely challenging examples found were the inability to
data dissemination, effective use of data in sustain or replicate school environment clubs under
evidence-based planning and the extent to which the EPA-implemented environment awareness
data systems were being actively maintained project. There was also poor use of the assess-
and used. Another example was the statisticians ment that was conducted with GEF funds of the
paid for by UNDP under the DISSC project countrys capacity in three critical areas (biodiversity
were not able to be absorbed into government conservation, climate change and land degrada-
as planned, so these posts were eliminated or tion). However, it should be noted that the action
trained personnel left to take other jobs. plan currently being prepared by the EPA with
UNDP GEF assistance may help in translating the
Scaling up of pilot initiatives: Replication or assessment into an action-oriented tool.
scale-up of UNDP-funded effects and changes
appeared to be limited. In many cases, the basic
ideas were sound but due to technical problems 4.4 COUNTRY PROGRAMME
and/or lack of timely follow-up, the original vision MANAGEMENT
for broader application was not pursued. In the Corporate programme management indicators:
hinterland the renewable energy project, sustain- According to information obtained by the ADR
ability and wider replication so far were found to team in June 2009 from the UNDP corporate
be compromised by lack of community consulta- balanced scorecard, the UNDP Guyana country
tion, limited use of appropriate technology, and programme either achieved its planned targets
poor systematic learning and reflection by the or remained within acceptable range for its
implementing partners on which to build replica- main management indicators since 2004. The
tion. Most important, little analysis was done key indicators related to measuring programme
by UNDP or its implementing partners of the management, reviewed by the ADR team and
key policy barriers to effective commercializa- their values are summarized in Table 10. The
tion and replication of small-scale rural energy main problems noted were with the management
alternatives.. In several to-build regulatory capaci- efficiency ratio indicator and with implementa-
ties for the environment sector, the ADR team tion of joint programmes.

Table 10. UNDP Guyana Balanced Scorecard Report Summary 2004-2007

2004-2008 average Corporate performance
Selected indicator
value and unit rating (2008)
Annual targets achieved 82.23 (index) Within acceptable range
Programme expenditure ratio within development 85.65 (percentage) Target achieved
focus areas
Management efficiency ratio 21.87 (percentage) Target missed
Financial data quality 1.00 (index) Target achieved
Joint programmes 1 (number) Target missed
Cost recovered from programme country cost sharing 4.67 (percentage) Target achieved
Cost recovered from trust funds and third-party cost 3.6 (percentage) Target achieved
sharing
Programme expenditures 3.5M ($) Target missed
Non-core resources mobilized 4.8M ($) Within acceptable range

CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 35

 Human resources and internal country office said they would welcome more opportunities in
capacity: Currently UNDP Guyana Country the future for critical internal dialogue, reflection
Office has approximately 30 personnel under and brainstorming on performance and manage-
the leadership of a RR and Deputy Resident ment issues due to the complex challenges faced
Representative. The country office team by the programme.
includes permanent, contract and project-
related staff members. Prior to 2003, there Country office leadership: All main observers
were few professional staff members and they in Guyana interviewed by the ADR team, both
all provided collective oversight for the main in government and with the lead international
thematic areas in the programme. After 2003, partner agencies, stated strong concerns that
the management structure for the country office what they perceived as the high turnover in the
was reorganized to reflect increasing specializa- RR position had undermined effective leadership
tion in the programme and to create dedicated and strategic oversight of the UNDP country
staffing clusters for each thematic area, staffing programme over the past several years. This
levels also gradually increased. For example, a concern was also shared internally by key senior
combined analyst/programme officer position staff members. Even though the RR role is not
for environment/energy was designated at the responsible for day-to-day management of the
time while another analyst covered both poverty programme, this position sets the tone and
reduction and democratic governance. A poverty inspires the morale and direction of UNDP work
reduction analyst/consultant and a monitoring as a whole.
and evaluation officer were recently added to
increase the amount of specialized expertise Articulation of results and results framework:
in the country programme. These initiatives UNDP approach to results-based management
indicate the commitment by the country office (RBM) for the Guyana programme has positively
to gradually increasing human resource capacity evolved over time. During the CCF period
so that the programme can be managed as the programme results were broadly defined
effectively and efficiently as possible.49 However there was no formal results framework and the
some stakeholders and partners interviewed for outcomes were not stringently monitored for
the ADR noted that one challenge in the past has a specified period. In the current CPD-CPAP
been the lack of sustained contact with UNDP period, there is a formal results framework jointly
staff members in some cases, which they attrib- agreed with government, which has been updated
uted to heavy demands on key individuals in the via a CPAP mid-term review process conducted
country office. in 2008. Another positive development was that
a RBM action plan was also prepared for the
The ADR learned that there was an increase country programme in 2008, leading to a RBM
in opportunities for learning, ongoing perfor- training workshop for country office personnel.
mance review and critical reflection activities Programme staff also completed an online
among the country programme personnel since project management certification course in 2008.
2007. These included more active engagement There will soon be a follow-up RBM workshop
among the programme team and with country conducted with all UNDP implementing partners
partners to discuss strengths and weaknesses to build their capacity in planning, results-based
of UNDP work, as well as review ongoing implementation, monitoring and risk assessment
progress via weekly programme staff meetings. for individual projects and eventually, it is hoped,
However, country programme staff members support improved and more efficient programme

49
According to information shared with the ADR team during the finalization of the report, since late 2008 the country
office has recruited six new professional staff members and associates in the country programme team and one addi-
tional professional in the operations area.

36 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS

implementation under the current CPAP. This subsequent performance review and reporting.
will also lay the foundation for enhanced results-
based planning and implementation of the next UNDP Guyana will move soon to establish
CPD-CPAP cycle starting in 2011-2012. outcome boards for CPAP monitoring and
conduct outcome-level evaluations as recom-
In spite of these recent improvements, the mended corporately, combined with improved
ADR team found that in the past, lack of harmonization of partner reporting requirements
precision and clarity in results formulation at with corporate results oriented annual reports. The
both the programme and project level greatly ADR noted this indicated a more decisive move
affected measurability of results. For example, towards a proactive, problem-solving approach to
an expected outcome in the CPD-CPAP in the planning and implementation than in the past.
environment/energy thematic area was stated Eventually, the ADR learned there will be annual
as: Contribution of biodiversity and ecosystem CPAP outcome reviews to assess progress and
services to food security, health, livelihoods suggest corrective action towards outcomes jointly
and reduced vulnerability to natural disasters with lead partners, but these have not yet taken
factored into national planning for achieve- place. This means that up to now there has been an
ment of development goals, including safeguards important gap in the level and quality of informa-
to protect these resources. The ADR team tion available to guide the country programme as
found this type of statement to hold little value well as individual projects. However, on the plus
from a results-management perspective. But side, UNDP managers informed the ADR team
the increased training and orientation on RBM that quarterly meetings had recently started with
for the country office and its partners, which is the MoF to review progress in all active projects,
currently underway, should help create stronger sensitize partners around outcome and perfor-
results frameworks in the future. mance issues, and identify corrective actions
needed or any follow-up technical requirements,
Workplanning and reporting: The CPAP which will include UNCT representatives. This
process was introduced at a corporate level in the is intended to strengthen work planning and
mid-2000s and involved extensive stakeholder reporting processes, as well as broader results
consultation in the design and ongoing work management, at the strategic and policy review
planning, reporting and outcome review process between UNDP and government ministries, so
for the current UNDP country programme that dialogue with partners about programme
framework. The ADR found in the past, Annual efficiency and effectiveness is not just at the
Work Plans (AWPs) were not in place for all implementation level.
projects at the beginning of each year, and the
quality and scope of project reporting was weak. Monitoring and evaluation: The ADR learned
For example, in the early to mid-2000s, many UNDP Guyana recognized the need to provide
projects did not produce timely close-out reports greater monitoring and capacity building support
and reporting at the programme level tended to nationally implemented projects as well as to
to focus on activities or outputs rather than the programme overall, so the new monitoring and
outcomes. Starting in 2008, the country office evaluation officer is likely to be a strategic addition.
began to regularize this process, ensuring that Efforts have also been made in the last two years
AWPs with related results framework, targets by programme managers to improve monitoring
and budgets were jointly signed off by UNDP and evaluation according to corporate guidelines,
and implementing partners promptly at the although as previously noted so far no outcome-
start of each programme year to expedite timely level evaluations were conducted.50 However
budget disbursements and provide a structure for there was a CPAP mid-term review in 2008 that

50
UNDP evaluation policy requires the conduct of outcome evaluations during the programme cycle.

CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 37

 involved all the main national stakeholders and UNDP programme funds must be mobilized on
identified specific areas for improvement. The an annual basis from non-core resources, resource
findings from this were being actively used at the mobilization is a crucial aspect of the country
time of the ADR to implement specific improve- offices work. In the CPAP, specific resource
ments. There was a small number of third-party, mobilization targets were set for each thematic
independent evaluations of complex or risk-prone area and then further adjusted based on feedback
projects commissioned by UNDP Guyana over received from the CPAP mid-term review in
the past several years, but the quality of these 2008, but mobilization of non-core resources on
was highly variable. In the past there may have an annual basis has fluctuated a great deal over the
been insufficient specialized technical expertise in past several years for the country programme. In
monitoring and evaluation in the country office to some cases this relates to changing funding priori-
provide effective guidance for these evaluations. ties of agencies on which UNDP depends for
Neither was there a comprehensive programme funds, in others it is due to shortfalls in previous
monitoring and evaluation strategy in earlier funding commitments made. Fluctuations in
phases of the programme, which might have the amount of funds mobilized by UNDP from
formed the basis for critical, learning-oriented year to year greatly influenced the size and
dialogue with project implementing partners. This number of projects undertaken, and sometimes
gap will hopefully be addressed soon by the new project design consultations and implementation
monitoring and evaluation officer. timelines also had to be extended to take resource
shortfalls into account.
The ADR found the country office was also
aware of the need to increase quality assurance According to information provided by the
of projects through more regular performance Country Office, the amount of resources
monitoring. This was shown, for example, by mobilized by the programme has increased since
the assignment of two individuals within the 2007 when there was a noticeable dip in the level
project team to conduct ongoing quality assurance of programme expenditures, perhaps due to an
for the new EPTSI project. In the past, the apparent loss of momentum for fundraising in
high costs and complex logistics associated with the country office after the extreme demands
traveling to remote areas in the country prevented of both the 2005 floods and the 2006 elections.
regular visits to widely-scattered project locations. The 2008 CPAP review noted more resources
The ADR team identified numerous concerns were needed to meet programme targets, but
regarding lack of effective follow-up and perfor- the country office informed the ADR team that
mance monitoring of individual projects by it was quite confident that these will be met
UNDP Guyana. Under the NEX modality, the or exceeded. A detailed and well-researched
responsibility for performance monitoring lies resource mobilization strategy for the UNDP
primarily with the implementing partner, which is country programme, which is being continu-
very sound in theory but only if sufficient capacity ously updated, was initially developed by the
development and mentoring is provided. In the country office in early 2008. However there is
opinion of many project partners and beneficia- no doubt that resource mobilization continues to
ries, UNDP Guyana had not liaised to help with present ongoing challenges for the programme
problem-solving nor had it followed up sufficiently given that it takes considerable time and energy.
regarding implementation approaches, technical Most project funding commitments, both core
challenges, development problems encountered and non-core, are only made on an annual basis,
and the need for prompt remedial action where which severely limits the ability of the country
delays or problems were encountered. programme to plan and implement projects over
the long term. The relatively high dependence
Resource mobilization: As noted earlier in the of UNDP Guyana on GEF as its major source
report, given that approximately 70 percent of of financing for environment projects presents

38 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS

a high risk as well for the programme, which overheads from the project funders and it was
will need to be addressed in the future. Finally in fact subsidizing the unit to some extent, a
CIDA and DFID were two bilateral donors situation that creates a net drain on the country
who previously offered relatively strong and programme resources.
consistent support to UNDP Guyana, but they
are both now moving to a regional programme Corporate memory and record keeping: The
approach, which will lead to a decrease in the Guyana Country Office did not have a central
funds available at the country level. record keeping or data management system to
serve as both present and historical repository
Regional programming: The Guyana Country for project and programme-related informa-
Office has responsibilities related to regional tion. As a result, there were challenges with
programming, which both add to and draw documentation and corporate memory, which
on its limited administrative resources. In the meant the ADR team found it very difficult
case of CREDP, which is implemented by the to easily access information on past projects
CARICOM Secretariat, there is some responsi- and accomplishments in the programme and in
bility for development performance on the part individual projects, especially prior to 2004 when
of UNDP Guyana. However, the office also the ATLAS system was introduced by UNDP
receives a proportion of the regional manage- corporately. This applied not only to financial
ment overheads from GEF to compensate for data but to information on project design, results
its involvement. As noted elsewhere, UNDP achieved, products or deliverables, follow-up
Guyana also houses the management unit for done and lessons learned that all could be applied
the regional GSI project, but the ADR team by the country office and its partners in the
learned the country office received insufficient design of new projects.

CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 39

40 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS
Chapter 5

STRATEGIC POSITIONING OF UNDP

5.1 STRATEGIC RELEVANCE key areas as the negotiation of a multi-donor

MOU for electoral support in 2006, facilitation
Relevance against national development prior-
of government/donor meetings within various
ities: UNDP programme in Guyana since 2000
sectors, and discussions pertaining to both aid
has been closely linked to the countrys main
effectiveness and coordination. Not surprisingly,
development priorities as identified in the NDS,
the ADR found UNDP was regarded as having
the NCS, PRSP-I and, more recently, the
both diplomatic and developmental roles. These
LCDS. It has also been linked to evolving trends
different perspectives recognized the range of
in ODA and the ongoing UNDAF process
UNDP engagement, but there appeared to be
since 2000, as outlined in the previous sections.
some confusion at times among stakeholders (and
The country programme was also well-aligned
perhaps occasionally within the UNDP country
with the corporate priorities outlined in the
office itself) about the distinction between the
second UNDP Multi-Year Funding Framework
two roles.
for 2004-2007 and UNDP Strategic Plan for
2008-2011.
UNDP country programme objectives were
formulated to support national development aims.
UNDP was perceived by all stakeholders
One concrete example is that the PRSP-I outlined
interviewed for the ADR (government, non-state
the need for specific support to Regions 1 and 9,
actors and international agencies) as having
these were two regions of the country where
provided a unifying influence in the country
UNDP focused its attention through a combina-
given that it is an impartial, UN-affiliated
tion of both poverty reduction and environment/
agency. UNDP overall strategic relevance was
energy projects. UNDP Guyana supported a
linked not so much to the amount of resources
number of key initiatives to stimulate economic
it spent, which was small in comparison to other
growth and entrepreneurship (e.g. EMPRETEC),
lead international partners, but its ability to
improve community and social cohesion in support
negotiate a common ground between different
of better governance (e.g. SCP), enhance rural
viewpoints and serve as an honest broker or
electrification (e.g. hinterlands renewable energy
neutral mediator. This was also linked to its
project), and link economic growth to stronger
strong strategic partnership role, which will be
management of natural resources (e.g. umbrella
described in more detail. The ADR team learned
projects to develop frameworks for effective land
that UNDP was very influential and effective in
use management and to support Amerindian
the area of donor coordination, while at the same
communities in economic and social develop-
time maintaining its primary commitment to
ment). There was a very high level of consultation
country ownership of programs and projects. The
and dialogue with key development partners (an
government itself recognized the importance
important UNDP principle), which meant UNDP
of this role, for which it gave UNDP high
was able to adjust its approach to emerging needs
marks particularly in the more sensitive areas of
and to revise priorities as needed. For example,
electoral support and conflict resolution.
through foregrounding disaster relief and mitiga-
tion as a specific programme thematic area after
UNDP was frequently called upon by govern-
2005, as well as by the increasing emphasis placed
ment and international partners over the past
on the environment and energy sector.
several years to play a convener role in such

CHAPTER 5. STRATEGIC POSITIONING OF UNDP 41

 Leveraging the implementation of national leveraging dimension so it was easy for develop-
strategies and policies: To some extent, UNDP ment efforts to be deflected into small-scale,
helped to mobilize and coordinate funding from downstream work.
the international community for the PRSP-I
and to focus attention on the MDGs on a policy Corporate and comparative strengths of
level, It also supported country-wide consulta- UNDP: The ADR team found that UNDP work
tive processes in preparation for the PRSP-I in Guyana since the early 2000s was characterized
launch and ongoing reports. Another policy to some extent by a strong capacity development
dimension, which was a UNDP priority area, approach. This ranged from successful deploy-
was related to GECOM. UNDP attempted ment of a number of UNV in various agenciesa
to foster stronger private sector engagement more traditional mode of technical gap-filling,
in development in support of the NCS and which may not have been fully sustainable in some
PRSP-I. Several environmental projects strongly instancestowards a more coherent institutional
supported government policy objectives including strengthening approach such as that used with
support for formulation of the national biodiver- EPA. The ADR team found UNDP was consis-
sity action plan, preparation of the reports to the tently cited by government and international
UNCBD and UNFCCC (funded under UNDP/ partners as an agency known to support capacity
GEF), and work to phase-out CFCs (funded development, mainly via training, workshops
under the Montreal Protocol). Another key and conferences; national support for private
project for capacity building in environmental sector engagement with the MDG process was
management responded to a needed amendment catalyzed by a regional UNDP conference on
of mining regulations. Other work to develop a this topic held in Guyana in 2005. More recently,
national disaster management plan and related projects that were in the pipeline at the time
agency capacities following the 2005 floods was of the ADR to more fully develop govern-
also in response to GoG policy objectives. ment institutional capacities for aid effectiveness,
poverty monitoring, and performance-based
However, the main challenge identified by budgeting and MDG reporting appeared to
the ADR team was that the implied policy indicate strong capacity development approaches
dimensions of UNDP work were not always were being maintained and built on. It should be
fully defined. This area was not well-delineated noted that the use of UNV in Guyana was crucial
during the planning stage of projects in terms at earlier stages because of human resource
of the specific changes required by govern- shortages, but once these individuals left capacity
ment partners where international partners could or knowledge was unfortunately not retained.51
provide strategic inputs. Also, the immediate However where national UNV were used (e.g.
demands of relatively short-term, downstream SCP) the knowledge transfer seemed to be
development work appeared to take precedence greater. The ADR team also noted that there was
especially where emergencies arose such as recently an improved focus on UNV by UNDP,
prevention of violence during the 2006 elections which promised to align them more closely to the
and response to the 2005 floods. It appeared strategic thrust of the overall UNDP programme,
the PRSP-I support process (commendable as something which was not done consistently in
it was) did not incorporate a very strong policy the past.52
51
Unfortunately it was not possible within the timeframe and scope of this ADR to thoroughly evaluate the role of UNV
in Guyana. There is also a lack of corporate record-keeping regarding the role and effects of UNV. However, informa-
tion obtained from the country office indicated approximately 98 UNV were placed in Guyana since 2001, of which
80 were international volunteers. The largest number of volunteers was in the democratic governance area, followed by
health, cross-cutting areas and community development support and poverty reduction.
52
Issues now under consideration by the new UNV coordinator in the UNDP office include how to measure sustainabil-
ity of UNV efforts, ensure that UNV placements are closely linked to CPAP outcome achievement and integrate UNV
more fully into CPD-CPAP planning in future.

42 CHAPTER 5. STRATEGIC POSITIONING OF UNDP

However the ADR found that the overall poverty reduction areas. However, there appeared
approach to capacity development used by to be further unexploited potential for develop-
UNDP Guyana was sometimes not clearly ment of additional South-South exchanges along
spelled out. Capacity development was often these lines using a more systematic or planned
used as a catch-all concept in UNDP work, approach, both within the country and with the
for which no clear indicators were provided wider CARICOM region. There did not appear
to measure whether meaningful, sustainable to be a coherent strategy to guide South-South
institutional transformation at different levels exchanges.
(not just individual capacity) was achieved or
maintained. Examples of the discontinued efforts
to strengthen monitoring capacity for the MDG 5.2 RESPONSIVENESS
and PRSP-I were previously provided, as well as Responsiveness to changing development
the training and placement of statisticians under needs and priorities: The ADR learned from
the DISCC project. Another, more current key national stakeholders that UNDP was very
example was UNDP work with the Ministry of responsive to emerging trends and needs within
Local Government as an implementing partner Guyana. The continued growth of the environ-
for Replicable Local Poverty Linkages did include ment/energy thematic area and its evolution from
some transfer of project management capacity, the CCF era to the present was a demonstration
but the process appeared to be somewhat ad hoc. of this. UNDP was well-respected for responding
The ADR found no specific capacity develop- to immediate needs and fostering dialogue around
ment strategy in use by UNDP Guyana that was the 2006 electoral process. Another example
tailored to the countrys rapidly evolving needs of good responsiveness: UNDP was able to
and linked to specific programme interventions. address emerging human resource gaps around
Concerns were raised by some stakeholders that social-statistics capacity development support
UNDP routinely utilized international consul- in relation to a much larger IDB social statis-
tants to support its work in Guyana without tics programme with the Bureau of Statistics,
complementing this approach by building the although as previously noted, long-term sustain-
capacity of national players, thereby undermining ability was limited.
its stated intent to build national capacity.
However, the new project now being planned In the environment thematic area, there was
to build national capacity for natural disaster one very strong example found of a respon-
prevention and management appears to be taking sive project design, which appeared to provide
a more systematic and structured approach to an excellent model for ongoing support but
capacity development. Also, the new EPSTI unfortunately was not replicated. The umbrella
project is taking a more comprehensive approach project with the MoFA for capacity building
to capacity development with support from the in environmental management and sustainable
UNDP Capacity Development Group. use of natural resources was based on funding
various subprojects depending on emerging
Another aspect of UNDP comparative advantage needs and issues. The subprojects were identified
in Guyana, albeit more modest, was several not by UNDP but by the representatives of all
examples of South-South knowledge exchange, the government agencies dealing with environ-
including deployment of facilitators on entrepre- ment and natural resource management, who all
neurship development from Ghana and Brazil participated on the project steering committee
for EMPRETEC, recruitment of facilitators along with UNDP. This approach guaranteed
skilled in peace-building from South Africa the project was highly responsive to emerging
under the SCP, and limited, although successful, environment priorities. Although a second phase
use of in-country exchanges between Amerindian of the project is now being planned, the same
communities in both the environment and design was evidently not applied.

CHAPTER 5. STRATEGIC POSITIONING OF UNDP 43

 Mechanisms to respond to crisis and emergen- told earlier projects and initiatives, were, to some
cies: UNDP Guyana was able to leverage extent, UNDP-driven.
technical and financial resources from the
broader UN system quite rapidly in emergency Later projects and partnerships in the
situations. The best examples of good short- CPD-CPAP period were based on closer engage-
term responsiveness included the FTI in 2008 ment at all stages with country stakeholders
and the 2005 flood emergency response. Other and the gradual transfer of full responsibility
examples of rapid response to emerging issues for progress and results to implementing
in the country included the rapid deployment of partners. GoG partners admitted this did not
the framework team from UN Headquarters, take place without challenges due to chronic
which provided sound technical advice on conflict human resource shortages and gaps in managerial
resolution in the early 2000s, analytical support expertise in some partner agencies. For example,
on an as-needed basis for the RR and the country at the local government level, the ADR team
programme personnel in the run-up to the 2006 found UNDP emphasized inclusion of regional
elections, and the special human rights advisors and district councils in many projects, especially
mobilized under the UN Office of the High those focused on empowerment for hinterland
Commissioner for Human Rights. On another areas. However, some local beneficiaries in the
level of responsiveness, there was some flexibility hinterland areas stated that they wanted to see
built into many interventions, and some planned more of UNDP at the field level so that they
aspects were either modified or eliminated as the could provide direct feedback to the funder about
timing dictated. For example, the SCP geared the strengths and weaknesses of projects.
up to include more high-level dialogue between
political parties as the 2006 election drew closer. The governments current commitment to the
Beyond SCP, the planning of EPTSI in follow-up Paris Declaration principles, which UNDP
was a response to similar changing priorities. Guyana strongly supports, illustrated another
evolving dimension of UNDP partnership
approach. Partnership issues with the donor
5.3 STRATEGIC PARTNERSHIPS community as a whole were identified by key
Use of partnerships for development results: government partners as linked to the need
The ADR team observed UNDP succeeded in for much greater synchronization of donor
forging a highly cooperative and active partner- support with government planning and funding
ship with the GoG for the most part. For example, cycles, government ownership of priorities and
UNDP established several commendable ongoing programmes, and progress towards more direct
partnerships for government-level institutional budgetary support and/or more pooled funding
development and/or project implementation arrangements for specific sectors or ministries.
with the Office of the President, Ministry of They stated, in their opinion, UNDP was
Amerindian Affairs, EPA, Ministry of Local well-positioned to play a key role in brokering
Government and CDC. Partners cited these and/or modeling new partnership arrangements
relationships were mostly well-managed by in these areas. The ADR found the structures and
UNDP. The ADR found that partnerships with mechanisms for donor coordination and consul-
government evolved over time when the shift tation were not always formalized, however, so
took place from the MoFA as the focal ministry it was difficult to obtain a precise description of
for UNDP to the MoF in the early 2000s, and how these worked (see the following section).
UNDP partnership approach has continued to
evolve in recent years. In the earlier CCF phase, Donor coordination: The ADR observed
there was a conscious shift towards increased UNDP had strong strategic partnerships with the
country ownership and leadership in UNDP international development community in Guyana.
programming at this time, as the ADR team was The mechanisms UNDP was involved in for

44 CHAPTER 5. STRATEGIC POSITIONING OF UNDP

donor coordination included: 1. informal coordi- initiative to build CDC capacity evidently builds
nation/facilitation among donors themselves on expertise and interest of other agencies such as
(both inside and outside the UN family) in IDB and the EU, with UNDP playing the role
terms of how to deal with emerging challenges, of catalyst and overseer. Likewise, in the environ-
reduce duplication and create synergies among ment sector UNDP has focused on mobilizing
their respective programmes of support through GEF resources, which is complimentary to
semi-regular or ad hoc meetings; 2. coordination broader support offered by other lead agencies
of donor dialogue with government to coherently such as IDB and the World Bank in natural
present opinions of the donor community and to resource management to strengthen institutional
discuss strategies and options, which was both and regulatory frameworks in a targeted way.
structured and unstructured; and 3. ongoing
consultations with government and sometimes The majority of UNDP partners both in and
other international partners, through regular outside the government indicated to the ADR
working groups and ad hoc meetings, to focus team that the strategic partnership role of UNDP
on how to strengthen the governments own in Guyana in the past was closely connected to
aid coordination capabilities. In addition, the the credibility and leadership of the RR at key
ADR found numerous examples of co-financing junctures. During periods since the early 2000s,
and leveraging arrangements between UNDP when there was no RR in the position or the RR
and a large number of international partners in was unable to respond adequately to the heavy
Guyana. The latter covered all thematic areas and demands of the role, the ADR team learned
ranged from collaboration with the EU to fund that partnerships between UNDP and its lead
the Region 10 development plan under SCP, to stakeholders in government and among interna-
co-financing of SCP, EPTSI, elections support tional partners were strained or less productive
and the capacity building of the CDC with due to lack of continuous dialogue.
CIDA, DFID and IDB respectively. As noted
elsewhere in the report, the amount of resources Working with non-state partners: The ADR
mobilized by UNDP was highly dependent on learned UNDP took a principled and balanced
forging of strong strategic partnerships with a approach to working with non-governmental
range of donors. groups, based on the analysis that much of
grassroots development work is dependent on the
Another dimension of strategic partnerships was involvement of an autonomous, motivated civil
the extent to which UNDP sought to dovetail society. A number of UNDP projects over the
with other international partners and donors. past several years under both poverty reduction
For example, in the democratic governance area, and democratic governance involved a strong
coordination of electoral assistance was done civil society component, even when the lead
in such a way that it built on the compara- implementing partner was a government agency,
tive strengths and priorities of the key bilateral as well as consistent outreach to the private
partners with the process of support brokered by sector. The SCP in particular, because it was a
UNDP as a neutral party. UNDP did not seek DEX project, directly engaged a large cluster
to duplicate what other key agencies were doing, of new and nascent civil society and community
but played a coordination role that capitalized on organizations in underdeveloped regions, as well
each agencys strengths. Efforts to support peace- as more established and longer-standing faith-
building were divided between UNDP, with its based organizations from the major religious
focus on softer reforms and the community- groups. Overall, UNDP did not appear to be
based dimension, and bilateral agencies such as as effective as it could have been in promoting
DFID, which took a more assertive and contro- community ownership of environment issues
versial approach to security sector reform. In the when it came to liaising with civil society groups
area of disaster relief and mitigation, the current in the environment sector.

CHAPTER 5. STRATEGIC POSITIONING OF UNDP 45

 Regarding partnerships with the private sector, to play a role in brokering expertise, knowledge
UNDP worked hard to integrate them into consul- exchange and linkages between Guyana and
tations and key initiatives over the past several so-called non-traditional donors outside the
years. Under the PRSP-I, the private sector was OECD-DAC like China and India in the future.
recognized as a key driver for economic develop-
ment in Guyana, so UNDP-funded projects
sought to engage the private sector at different 5.4 CONTRIBUTION TO UN VALUES
levels. For example, the EMPRETEC project Assisting in the attainment of MDG: Over
was linked with the Guyana Manufacturers the past several years UNDP provided consistent
Association and there was a more recent project support for the attainment of MDG in Guyana,
to encourage private sector investment in small- such as the production of MDG reports in the
scale community-based development in support early 2000s as well as in 2007. As noted in previous
of the MDG. There was also a strong short-term sections of the ADR, most of this support took
linkage with Amazon Caribbean Limited to the form of helping the lead government agencies
undertake the palm plantations project in Region establish statistical benchmarks for monitoring
1. However, some private sector representa- the MDG and training statisticians, as well
tives interviewed for the ADR requested more as undertaking broadly-based consultations to
proactive and consistent UNDP engagement, engage society as a whole in tracking effects of
as they believed that UNDP-supported initia- development investments. This included funding
tives would benefit more from supporting the some of the key personnel in the monitoring and
public sector to become actively involved in evaluation unit in the Office of the President,
development efforts particularly in support of the which initially had overall responsibility for this
National Competitiveness Strategy. task. One critique of investments made in MDG
monitoring, however, was that not enough was
Assisting government to use external partner- done to ensure sound institutionalization of these
ships and South-South cooperation: In terms systems. Also there were delays in producing the
of South-South partnerships and cooperation, reports themselves and in ensuring data timeli-
several examples were documented earlier in the ness and quality, although most observers noted
report, including the extensive use of UNV from that both availability and accuracy of MDG data
developing countries. The CREDP regional in Guyana had improved somewhat over time.
project with CARICOM has incorporated some
cooperative mechanisms for knowledge exchange Contribution to gender equality: In general
among Caribbean countries, and UNDP Guyana UNDP Guyana displayed a moderate degree of
contributed financially to the Rio Group meeting commitment to integration and mainstreaming
of heads of state held in Guyana in 2008, which of gender issues, but the ADR found this to
facilitated some South-South knowledge sharing. be a major area of weakness in the country
UNDP also helped facilitate a one-time exchange programme. The need to address the specific
between Amerindian communities in Regions 1 needs of women and develop womens leader-
and 9 related to natural resource management ship and economic opportunities was mentioned
and income generating activities, which some in the UNDP CCF for Guyana as an aspect of
stakeholders noted could be fruitfully expanded poverty reduction. This was obviously cross-
and replicated as knowledge exchange exercises. linked to governance issues. As noted previously
The current GSI regional environmental in the report, specific work at this time with the
initiative also has the potential for ongoing Womens Affairs Bureau did have some positive
South-South cooperation between Guyana and and sustainable effects. Women were significantly
other countries in the Amazon Cooperation involved in the EMPRETEC project and small
Treaty Organization. Some GoG stakeholders business/livelihood ventures (e.g. FTIs) towards
noted there was potential for UNDP Guyana economic empowerment and development. For

46 CHAPTER 5. STRATEGIC POSITIONING OF UNDP

example, EMPRETEC trained more than 200 early UNDP-supported poverty reduction effort
entrepreneurs, 55 percent of whom are women, in North Rupununi; not one woman accessed
and one of whom was among the 10 finalists any of the micro-credit funds available. As it
in the United Nations Conference on Trade turned out this was because they needed their
and Development (UNCTAD) business awards husbands permission to do so, so changes were
program for the Caribbean. eventually made in the criteria for accessing the
micro-credit scheme. These examples all illustrate
In the 2006 CPD gender equality, which the inconsistencies and weaknesses of UNDP
evolved from the earlier focus on women, Guyanas gender mainstreaming approach.
was mentioned as a cross-cutting theme but
no details were provided regarding how this Addressing the needs of the vulnerable and
would be implemented. The CPAP document disadvantaged: Stakeholders at all levels
further stated gender would be mainstreamed cited UNDP as an important partner for the
throughout the programme but it did not appear Amerindian population, with some significant
that specific resources were dedicated to this. contributions such as work to build local organi-
Some gender mainstreaming work was done zational capacity for Amerindian groups both at
with UNCT in 2005 according to country office the community level and within local govern-
documents but it is unclear if this was followed ment structures in District 9 dating back to
up on or not. Neither was there attention to how the late 1990s. As noted elsewhere, UNDP
the effects of mainstreaming would be measured. had strong partnerships with the Ministry of
The CPAP review conducted in 2008 noted the Amerindian Affairs and with district councils in
absence of a gender focal person in the UNDP areas with high Amerindian populations. Several
country office, which was clearly an indication ongoing and planned environment and energy
that gender equality work had been neglected up projects targeted Amerindian communities.
to that stage. No gender mainstreaming strategy,
which showed how to incorporate both mens In spite of the good work done to date, the ADR
and womens concerns from the planning stage of team identified several key gaps in terms of UNDP
each project, was produced for the programme. work with Amerindians. There was no evidence
of an overall strategy by UNDP to address the
The ADR team noted that some recent projects needs of Amerindian communities or understand
continued to include a focus on women as a key their priorities. Neither was there an overall
target group although it was clear that this fell strategy for development agencies including
short of a gender mainstreaming approach. For UNDP to use as a reference point in working
example, the work on renewable energy develop- with Amerindian groups and the government to
ment in hinterland areas was cited as having had support work on land titling for these communi-
short-term immediate benefits on the lives of ties. It was unclear how international partners
rural women in pilot communities. Amerindian coordinated their approaches and sought to share
women were involved as workers and harvesters lessons or achieve synergies with these communi-
in the Heart of Palm pilot project in Region ties. The ADR team was concerned that many
1, as well as in other environment initiatives small-scale or pilot efforts supported by UNDP
to manage natural resources more effectively. (commendable as they were) had a limited effect
Under another recent project in the poverty on enhancing the capacity of Amerindian groups
reduction thematic area, one womens group to either reduce their dependence on external
in Region 1 also received technical support to expertise or to directly address the poverty rates
set up a small food processing enterprise. One in their communities. The ADR found that at
clear example of an unintended negative aspect the community implementation level there was
of inadequate project design regarding gender sometimes a lack of in-depth consultation at the
equality was during the first three years of an planning stage and little direct follow-up and

CHAPTER 5. STRATEGIC POSITIONING OF UNDP 47

 monitoring by UNDP to ensure that Amerindian was filled, played an important role in facilitating
communities were not being exploited in any way and coordinating the CCA/UNDAF planning
and that bottlenecks and technical challenges process. The ADR learned that the functioning
were promptly addressed. of UNCT had improved over the last several
years and that in general UNDP country office,
The ADR team noted that there were other as a whole, contributed to greater UN system-
vulnerable or disadvantaged groups in Guyana, as wide coherence and programme coordination.
documented in UN CCAs from both 2001 and Even when the RR was not in place, UNDP
2005, such as the rural Afro-Guyanese communi- country office endeavored to support and promote
ties with more than 40 percent living below the UN system-wide coherence and coordination in
poverty line and the rural Indo-Guyanese with programming, and to support other UN agency
more than 30 percent. However, these were not heads as acting RC. However, the role of UNDP
directly identified by UNDP in its programming RR as RC for UNCT (supported by a UN
documents as specific target groups. Both the FTI coordination analyst housed in the UNDP office)
and Replicable Local Poverty Linkages projects was viewed by UNCT members as absolutely
appeared to target the rural poor, but it was not crucial to the overall strategic positioning of the
explicitly stated in the project design who this UN in Guyana.
group was possibly due to political sensitivities.
As in other areas, the ADR team learned
Both the 2001 and 2006 UNDAF documents continued turnover and vacancies in the RC/
(as well as the CCAs on which they were based) RR position over the past several years had some
explicitly mentioned human rights as important negative effects on UNDAF implementation and
UN values and emphasized that rights-based the strategic role of UNCT, given that UNCT
development approaches based on dignity, access members looked to the RC to present a unified
and inclusion were core principles for the UN voice for UN agencies in Guyana. However, the
family. Many initiatives supported by UNDP in recent UNDAF mid-term review in 2008 was
the past two programme cycles were aimed to one generally positive regarding specific contribution
degree or another at strengthening rights-based of UNDP as an agency towards planned UN
approaches to development, whether in the form results, and the development outcomes stated in
of social cohesion training for youth groups in the CPD-CPAP were clearly nested within the
poor communities on the East Coast of Demerara, current UNDAF.
supporting increased economic opportunities for
rural farmers, or helping Amerindian communi- UNDP also responded well to evolving program-
ties create their own bylaws for improved natural ming issues within UNCT. For example, the
resource management. Even though it is quite ADR team learned UNICEF had proposed an
clear that it is not the role of UNDP to focus environmental education project to the GoG
on normative issues, the rights-based develop- but the assistance was declined because the size
ment dimension of UNDP work, which is clearly of the project was too small. In order to ensure
stated in the corporate strategic plan, has not the project went ahead, UNDP agreed to include
always been made as explicit as possible in its the proposed UNICEF initiative as a subproject
programming documents. within its existing umbrella project on building
natural resource management capacity to ensure
that this strategic input was not lost.
5.5 CONTRIBUTION TO
UN COORDINATION Inter-organizational collaboration: The ADR
Support for the CCA/UNDAF process: Since learned of only one concrete example of a so-called
the early 2000s, UNDP Guyana Country Office joint UN initiative that was implemented by
as a whole, and particularly when the RR position UNICEF with combined UNDP and UNICEF

48 CHAPTER 5. STRATEGIC POSITIONING OF UNDP

funding; it was related to human rights strength- cycles are harmonized by the time the next
ening in 2006, under the umbrella of the SCP. UNDAF is launched in 2012, there will have
To date there were no examples of projects been some concrete progress on this front.
implemented with pooled resources, although
there were several examples provided of parallel A final aspect of UN coordination that was noted
or collaborative ventures between UNDP and by the ADR team was the role played by UNDP
both UNICEF and UNFPA. One specific area Guyana in facilitating and/or providing an
where UN family coordination has worked well oversight role for regional UNDP programmes
so far was the promotion of the DevInfo statistical implemented by CARICOM. However, it was
data base by UNICEF to capture MDG data, not clear whether more concrete synergies were
which appeared to be relatively well-integrated needed between the UNDP Guyana programme
with wider support to the Bureau of Statistics and broader UNDP-sponsored regional initia-
undertaken in parallel by UNDP and IDB. The tives such as those to build support disaster
re-establishment of an FAO office in Guyana response capabilities, social statistics expertise and
after a hiatus of several years also provides key fiscal management capacities in the Caribbean
opportunities for further inter-agency coopera- region as a whole.53
tion in the environment thematic area.
UNDP as a window to other UN agencies
UN agencies told the ADR team that there and assistance: There were several concrete
were still considerable barriers to complete joint examples of UNDP brokering expertise from
programme or project implementation because within the UN system, especially in the area
UN agencies still had different budgetary, of conflict resolution and prevention as well as
planning and reporting mechanisms. There was the environment and natural disaster recovery
also the continued perception that they needed and risk reduction thematic areas. Examples
to retain some control over their specific areas of included deployment of an energy specialist
expertise, so that they could properly account for from UNDP headquarters to assist in design
their contributions to Guyanas overall develop- for a new project to be launched in 2009, a
ment. However, it was mentioned by both UN process that was evidently deemed to be very
and government partners that in the future they useful by government. Another example was the
want to see closer UN family coordination and placement of human rights advisors at different
strategies developed for joint UN programming times in the UNDP Guyana Country Office
in areas such as youth economic development, by the Office of the UN High Commission for
reduction of economic disparities for Amerindians Human Rights. These advisors offered training,
and the rural poor, prevention of HIV/AIDS sensitization and capacity development input for
among vulnerable groups such as men who have both UN agencies and other key stakeholders
sex with men, PRSP monitoring, social policy (both governmental and non-governmental) in
support and improved government budgeting. the country on how to increase the national
They all acknowledged the need for UNCT to focus on rights and inclusion, thereby decreasing
move towards joint implementation of UNDAF, political tensions. However, these placements
but they said it was also up to UNDP as the were deemed to be only moderately successful, as
lead UN agency in Guyana to begin to propose they evidently did not receive sufficient institu-
different mechanisms. UNCT members were tional support to establish an effective space for
generally hopeful that once all agency funding addressing sensitive rights-based issues within
the country.

53
Two concrete examples of such UNDP-funded regional projects are the Caribbean Regional Technical Assistance
Centre and the Support for Poverty Assessment and Reduction in the Caribbean, both based in Barbados.

CHAPTER 5. STRATEGIC POSITIONING OF UNDP 49

50 CHAPTER 5. STRATEGIC POSITIONING OF UNDP
Chapter 6

CONCLUSIONS AND
RECOMMENDATIONS
6.1 CONCLUSIONS these efforts on upstream policy issues. However,
UNDP offered highly commendable and quite
6.1.1 UNDP CONTRIBUTION TO consistent support for Amerindian peoples, youth
DEVELOPMENT RESULTS IN
GUYANA and the rural poor as key target groups.

In terms of overall development effective- The ADR concluded that one of the main
ness, UNDP Guyana made progress towards challenges for its current involvement in poverty
its planned objectives and outcomes in all four reduction in Guyana is that UNDP is viewed
thematic areas in the programme since 2001.54 by most stakeholders as a source of funds for
This contributed to achievement of Guyanas small-scale, community based work by a range
overall development priorities and aims. The of government, non-state and international
UNDP country programme was character- partners. This view unfortunately runs counter
ized by very positive synergies among all the to the current corporate strategic direction of
thematic areas, which enhanced its effective- UNDP, which is to focus mainly at the broader,
ness and was a sensible approach for a country strategic level. Therefore, the country programme
programme of this size. The main cross-cutting in Guyana must continue to reorient its approach
effectiveness challenges consisted of finding to poverty reduction work more in line with
the appropriate mix of policy-oriented and this new strategic direction and also ensure
community-based interventions, ensuring that its partners and other national stakeholders
that useful linkages were forged between the (including civil society and the private sector)
two levels on an ongoing basis, and choosing are more clearly informed about this shift and
the right combination of initiatives so that why it is taking place. The demand for funding
outcomes could be demonstrated clearly. of small-scale, downstream micro-interventions
by UNDP at the community level in income
UNDP made some measurable progress towards generation and employment will likely continue
the objectives and outcomes identified for poverty in Guyana given endemic needs. Nonetheless, it
reduction. During the earlier programme period, is essential to look critically at whether UNDP
the ADR concluded that UNDP had contributed Guyana can realistically contribute much at the
to national capacity strengthening for poverty grassroots level in the long-term due to its limited
eradication in line with the main goals of PRSP-I, resources and the pressing need to address the
but these effects were difficult to measure given underlying policy and structural issues.
that the area of work was so broadly defined.
Under CPD-CPAP, UNDP Guyana continued Results were also achieved in the democratic
its support for strengthening institutional systems governance thematic area. During the first
in support of both MDG and PRSP monitoring. programme cycle, UNDP offered consistent,
Under both programme cycles, there was continued albeit somewhat limited, support towards
support for local poverty initiatives which had building an inclusive democracy in Guyana.
some limited, short-term effects, but there were Most of this work continued into the subsequent
few if any observable changes as a result of

54
See Annex 3 which provides an overview of progress towards planned objectives and outcomes for the UNDP Guyana
country programme for the period 2001-2008.

CHAPTER 6. CONCLUSIONS AND RECOMMENDATIONS 51

 CPD-CPAP period. The ADR concluded that essential human resources from the country,
UNDP made a sound contribution to the peaceful which UNDP may be able to help the govern-
conduct of the 2006 elections and was successful ment and its partners address.
in promoting new paradigms of social inclusion
in the country, although many other extraneous The environment and energy thematic area also
and internal factors influenced the situation as made some contributions towards country-led
well and it is very difficult to judge whether objectives and outcomes, and the scope of work was
any of this work produced deep or long-lasting gradually expanded over the past two programme
effects. However, very little was done so far in cycles. During the CCF period, UNDP contrib-
public administration reform in order to enhance uted to human resource development as well as
the institutional or policy frameworks related to broader institutional capacity development in
to accountability and transparency of the public the environment sector by helping sensitize and
service, which was another planned outcome train key individuals and agencies around the
under the CPD-CPAP. New initiatives are need to focus more attention on natural resource
being planned to strengthen aid coordination and management issues. It also helped Guyana meet
poverty monitoring during the remainder of the its international reporting obligations on climate
programme cycle may address these gaps. change and biodiversity. UNDP Guyana contrib-
uted to the governments emerging priorities and
Both national and international stakeholders, needs in renewable energy, and it supported
who participated in the ADR, expressed several capacity development initiatives related
concerns that ongoing challenges in public to enhancing community-based involvement and
sector policies, organization and management engagement in environmental work. Under the
still impede the countrys future social and CPD-CPAP, the scope of work on environ-
economic development, including crucial new ment and energy continued to increase and
initiatives like the PRSP-II and the LCDS. it became more focused on natural resource
UNDP Guyanas constructive interventions at management systems and access to alternative
the individual and community level have led to energy sources in under-serviced rural areas.
greater understanding and interpersonal dialogue Commendable progress was also made towards
within the broader governance context in Guyana strengthening the linkages between manage-
and should definitely continue. However, these ment and protection of natural resources by both
grassroots, bottom-up interventions need to be central and local government in partnership with
reinforced in some way by parallel efforts at a local communities, and on economic as well as
broader level so that Guyana can assume its full social empowerment of Amerindian communi-
potential as an emerging middle-income country. ties in the hinterlands.
It is obviously not the role of UNDP to initiate
work on these issues, given that the space has to Due to the these accomplishments, the ADR
be created by government; but because of UNDP concluded that environment and energy work
Guyanas generally sound reputation as an honest had emerged successfully over the past eight
broker and trustworthy development partner years as a core area of work and UNDP Guyana
and its access to global technical resources on has the strong potential to play a highly strategic
peace-building, public sector strengthening and role in these sectors in the future. This is based
democratic reform, there is no reason it could on the assumption that UNDP can define an
not play a more constructive role on this front appropriate niche that is commensurate with
if invited to do so by government. As well, at a its corporate mandate to focus on upstream
more functional level there are important gaps work as well as with its available human and
and needs that remain in the area of public monetary resources. UNDP is in an excellent
sector strengthening, including finding strategic position to offer policy-level around emerging
ways to ameliorate the current brain drain of national environmental priorities, including

52 CHAPTER 6. CONCLUSIONS AND RECOMMENDATIONS

implementation of the new LCDS and access stakeholders that there is a need to move from
to and effective use of any new global funds a focus on relief and recovery, to one based on
related to combating climate change such as proactive prevention and management. This is
UN-REDD. The ADR identified numerous closely cross-linked to democratic governance
options for future UNDP Guyana support for issues as it depends on the enhanced coordi-
the LCDS, such as strengthening structures nation, communication, planning and policy
for regulatory enforcement, decision-making, implementation capacity of responsible national
policy formulation, planning, implementation, bodies. There are also strong interconnections
quality assurance and accountability from local with environmental issues such as solid waste
to national levels and vice versa. However, rather management in urban areas, drainage and water
than get involved in too many areas, UNDP management, effective enforcement of building
Guyana would need to focus its approach very codes and land use planning. UNDP is currently
carefully in order to build effectively on the well-positioned to play a stronger leadership role
work done to datefor example, evolving from in this area, again if requested by government.
the development of environmental regulations However, disaster risk reduction is a complex
to increasing institutional capacity for their area due to its technical, cross-disciplinary nature
consistent enforcement. UNDP may also be in and to the challenges involved in identifying
a position, if invited to do so, to help govern- the most effective entry points. Many practical
ment to ensure greater community participation challenges remain for UNDP Guyana in terms
in planning, so that the benefits of sustain- of resource mobilization, creation of effective
able, low-carbon development accrue to those international/regional linkages and brokering of
most affected by forest conservation and carbon appropriate technical support (either from within
off-setting strategies. the UN system or elsewhere).

Results were also achieved for natural disaster Efficiency was judged to be mixed for the UNDP
recovery and risk reduction in Guyana by Guyana programme. There were many recent
working with the government in the early 2000s examples of good managerial efficiencies, which
to begin to develop a country-owned strategy included strong synergies among thematic
in response to emerging needs. Following the areas, leveraging of resources, acceptable
devastating floods of 2005, UNDP took a financial disbursement rates and administrative
more prominent role not only in coordinating expense ratios according to UNDP corporate
the immediate response to the humanitarian benchmarks. However, one main challenge to
crisis but in strengthening institutional capaci- programme efficiency was that many projects
ties for more sustained disaster prevention and had to be extended due to implementation
risk management. However, early joint initia- delays and that some of the small-scale invest-
tives between UNDP Guyana and government ments made were possibly too short-term or
probably required more persistence in order limited in scope to assure lasting change.
to quickly help the country make the shift to
disaster prevention. In general the ADR team concluded that
efficiency challenges in the programme,
The ADR concluded that UNDP contributed especially in earlier phases, were cross-linked to
to creating an enabling environment for better several broader programme management issues
long-term enforcement of existing standards including weak oversight/monitoring on the
that govern coastal development and land use part of UNDP Guyana and its partners to
planning, as well as community involvement in identify and rectify blockages in a timely fashion.
disaster planning and response. UNDP Guyana Other efficiency challenges encountered were
also contributed to the growing realization in ensuring that projects stayed on schedule,
among key government and non-governmental extracting lessons learned from so-called pilot

CHAPTER 6. CONCLUSIONS AND RECOMMENDATIONS 53

 or demonstration projects, and in launching has already acknowledged the need to continue
new phases of continuing projects. The country to improve in these areas, given that the
programme has already begun to initiate some programme context is becoming increasingly
improvements in overall management efficiency, demanding.
such as more rigorous attention to AWP approval
and to outcome review. Challenges to develop- The ADR concluded that the country programme
mental efficiency are starting to be addressed was in the process of overcoming a number of
through more frequent consultation with the ongoing management, leadership and resource
MoF to discuss and resolve project implemen- mobilization challenges that existed since the
tation delays and address the capacity needs of early to mid-2000s. In earlier phases of the
implementing partners in a rapid and construc- period under review, there were weaknesses in
tive fashion while not undermining continued results formulation and outcome level evalua-
support for increased government leadership and tion and reporting, as well as delays in project
ownership. planning, approval and implementation, leading
to numerous extensions. There were also
Sustainability of the results and benefits from challenges with ongoing follow-up, monitoring
UNDP-supported work in Guyana was mixed and quality assurance by the country office with
for the period under review. Positive examples project partners and beneficiaries to ensure that
of sustainability arising from UNDP work in problems were identified and corrective action
Guyana were mainly in terms of individual taken in a timely fashion. These issues are now
capacity building, but there were fewer examples being diagnosed and addressed by an increasingly
found of sustained, deeper change at the policy proactive and systematic management approach
and institutional levels. in the country office, but they will continue to
require sustained effort in the future.
There were ongoing challenges with several
small-scale or pilot economic development
6.1.2 STRATEGIC POSITIONING OF UNDP
initiatives in terms of both their ongoing financial
or organizational viability and their ability to UNDP has largely maintained its strategic
produce lasting development benefits for partici- relevance in Guyana since the early 2000s,
pants. Lessons learned from pilot initiatives due to its alignment with country priorities
were not always extracted so that long-term within its four thematic areas and its consis-
adjustments could be made to support ongoing tent scanning of the country context in order
sustainability. There was little advance planning, to adapt to evolving needs. Overall, UNDP
direct field monitoring or follow-up conducted comparative advantage corresponds not just
by UNDP Guyana to examine sustainability to the amount of funding it provided, which
challenges. The ADR concluded that there was was relatively modest in comparison to major
a need to increase the focus on sustainability international donors, but also the degree to
at the project design stage, including mapping which its strategic inputs in capacity develop-
out how projects fit within the broader policy ment, small-scale demonstration projects and
and/or institutional context so that the enabling peace-building, as well as its flexibility and
conditions for long-term sustainability were put adaptability, were and are highly valued by
in place from the start. partners at all levels.

In programme management of the UNDP In the future UNDP strategic relevance is likely
country programme, strong efforts were made to mainly rely on the quality and precision of
in the past two years to enhance resource its upstream policy work as well as technical or
mobilization, RBM, performance review and capacity development inputs within and across all
planning. Country office senior management four thematic areas. This may include some very

54 CHAPTER 6. CONCLUSIONS AND RECOMMENDATIONS

carefully and strategically selected downstream planned projects was virtually empty by 2007
initiatives but the country programme office and had to be rebuilt over the last two years.
should resist the natural tendency to get drawn External resource mobilization was also quite
into grassroots work that meets immediate needs low during this time period. Given the small size
but ultimately has little potential for long-term of the country office, the ADR team conclued
lasting effects. In order to maintain its relevance that an intensive focus on emergency respon-
in the future, it will be very important for UNDP siveness (while extremely important and an
Guyana to quickly identify its precise niche acknowledged part of UNDP mandate) could
from a wide range of options within rapidly compromise overall programme effectiveness and
emerging frameworks such as the LCDS and sustainability, as well as undermine continuity of
PRSP-II. Continuing and emerging niche areas policy dialogue and longer-term capacity needs
could potentially include addressing the needs of assessments.
the most vulnerable populations and promoting
South-South knowledge sharing, but of course UNDP Guyana forged strategic partner-
the exact nature of support would also depend ships at many different levels. There has been
on the specific requests received from govern- continuous positive evolution and constructive
ment. UNDP Guyana also has the possibility dialogue with all key national and interna-
to maintain its strategic focus on responding to tional partners. Challenges include the need to
requests from government for support around deepen partnerships with civil society and the
key institutional reforms, which will strengthen private sector, and with non-OECD donors.
the countrys future successful development as
an emerging middle-income country, as well as In maintaining a strong strategic partnership
continuing to engage constructively with govern- approach, UNDP has had to continuously
ment about governance issues. maintain a very sensitive balance between its
lead or priority partnership with the GoG and
UNDP demonstrated its responsiveness in its relationships with a range of other develop-
Guyana and it reacted quickly and effectively ment actors including NGOs, the private
to emerging needs, for example, the 2008 FTI, sector, opposition parties and local govern-
support for the 2006 elections and the 2005 ment officials. The primary role of UNDP is to
floods response. UNDP Guyana responded work with government as its lead implementing
well to the increasing focus on environment partner, but of course its corporate mandate also
and energy issues in the country by mobilizing demands that it foster an inclusive approach
more resources and technical support. to development by paying close attention to
the views and needs of all sections of society,
Overall, the ADR found that UNDP was especially those facing challenges due to poverty
able to maintain an adequate balance between or discrimination. Strong inter-agency coordi-
short-term responsiveness and longer-term nation in Guyana will need to effectively
development objectives. However, it was noted coalesce around support for the LCDS, for
that the high demands placed on the country example, where coordination with agencies such
office during 2005 and 2006 due to the floods as the World Bank will be highly desirable.
and elections did create some challenges in terms Other possibilities include the continuation of
of maintaining the country programme focus constructive leveraging of external partnerships
on longer-term work. These events took up so to obtain additional technical inputs required
much time and energy over a two-year period by the country from across the UN system and
that it was hard for programming staff to focus within the UN secretariat. There also is the
adequate attention on regular programming and potential for future strategic alliances to obtain
to ensure good strategic direction-setting in additional funding in the environment sector
the longer term. For example, the pipeline of with FAO and UN-REDD. The ADR noted,

CHAPTER 6. CONCLUSIONS AND RECOMMENDATIONS 55

 however, that there could possibly be more UNDP Guyana maintained consistent support
opportunities in the future to collaborate with for Amerindians as the single ethnic group most
non OECD-DAC countries, such as China, affected by poverty in the country, especially via its
Russia, India, Brazil, Cuba and Venezuela. poverty reduction and environment/energy work
in Regions 1 and 9. The country programme also
UNDP Guyana has consistently reached out focused to a lesser extent on poor, rural inhabit-
to involve civil society and the private sector, ants, especially in Regions 5, 6 and 10, and on
when possible, with more pronounced and women and youth via several poverty reduction
sustained partnerships in the poverty reduction and democratic governance initatives. The ADR
and democratic governance thematic areas and team concluded that initiatives with the vulner-
to some extent in environment and energy. A able and poor could be further strengthened if
number of initiatives have provided the collec- there were clear action plans or strategies for the
tive basis for further constructive opening for country programme outlining both the proposed
non-state participation and development on a coverage of this work and its scope and rationale.
non-partisan basis, which is highly commend- The country programmes weaknesses in gender
able and consistent with broader UN values. mainstreaming also demonstrated the need to
However, some civil society members expressed ensure that gender equality analysis is integrated
confusion about the exact role of UNDP in into the design of every UNDP-funded project
working with them and whether there were ways in the future.
of receiving more direct support from UNDP.
There still remain considerable challenges in The ADR team concluded there may be more
developing an autonomous and independent scope for UNDP to proactively address the
civil society in Guyana and it is fully consis- needs of the rural poor in the context of the
tent with UNDP corporate mandate of working LCDS. Several emerging issues, including the
with government as the lead partner to continue paving of the Georgetown-Lethem road, will
to find strategic ways to engage with non-state present critical environmental, social, cultural
actors, such as increasing partnerships with and other challenges for rural populations,
NGOs in the environment and energy thematic including Amerindian communities. This would
area, with trade unions and with the Guyanese be an opportunity to strengthen cross-thematic
diaspora as a key source of technical expertise integration between democratic governance,
and/or financial support for national develop- poverty reduction and environment and energy
ment initiatives. as well as critical dialogue with government and
other stakeholders.
UNDP Guyana made a strong and consistent
contribution to UN values and coordination. In terms of UN coordination, it appeared
Support for the MDG led to improved govern- that more practical steps need to be taken by
ment commitment and stronger systems for UNDP as the lead UNCT agency in Guyana
tracking the countrys progress on global to help support greater project-level collabora-
development indicators. UNDP Guyana tion between the resident UN agencies. This
maintained consistent engagement with vulner- could include piloting joint project planning
able groups but there were some gaps. It also and implementation, further experimentation
played a positive leadership role in UNDAF with co-funding arrangements, and promotion
planning but there has been weak implementa- of inter-agency staff exchanges. Furthermore,
tion of joint programmes so far. greater UN agency coordination around environ-
ment programming in particular may be needed
given that FAO has now recently reopened a
full-time office in Guyana.

56 CHAPTER 6. CONCLUSIONS AND RECOMMENDATIONS

6.2 RECOMMENDATIONS 3. Capacity development
1. Policy/upstream orientation UNDP Guyana should develop a detailed
strategy for capacity development that is
UNDP Guyana should continue to reorient
focused on deep institutional change rather
its programming towards higher-level
than on individual training or one-off
policy change and strategic upstream work
knowledge transfer.
in support of the new PRSP-II and LCDS.
UNDP Guyana in close consultation with
UNDP Guyana should continue to
government should develop a longer-term
strengthen its recent shift towards a policy-
strategy or specialized plan for capacity
oriented or upstream approach as stipulated
development that makes an explicit shift to
in the UNDP corporate strategic plan to
development of strong, sustainable institu-
match the emerging lower-middle income
tional systems commensurate with Guyanas
status of Guyana and in close alignment
emerging middle-income status. This
with the strategic directions set in the new
strategy should take into account chronic
PRSP-II and LCDS. Eventually, given the
human resource shortages in government
shrinking resource base for this type of work,
and attempt to go beyond superficial, one-off
UNDP should seriously consider the feasi-
approaches that simply enhance indi-
bility of gradually and consciously moving
vidual awareness or skills. Other potential
the strong focus towards a more strategic
examples that would require further discus-
upstream approach from small-scale, down-
sion with government to reach agreement
stream community-based work over the next
on include support for more public sector
five years. During this transition, UNDP
human resource development, the develop-
should also take into account the unique
ment of institutional incentives to reduce the
circumstances of the Guyana development
brain-drain of skilled personnel, and mobi-
context and the need to respond to key
lization of expertise from the diaspora to
national priorities, and also ensure a clear
contribute more systematically to Guyanas
interconnectedness between downstream and
economic and political developmentall of
upstream work.
which were raised during the ADR research
by various partners.
2. Inclusion and consultation
Consistent with the overall UNDP human The continued focus on national ownership
development approach, UNDP Guyana is a very positive aspect of the UNDP pro-
should continue to strengthen its stra- gramme, including emphasis on the NEX/
tegic approach to working with vulnerable NIM modality. However, UNDP should
groups and communities. do more to develop managerial capacities
and systems of partner agencies via explicitly
The strategic partnerships with targeted vul- building institutional capacity development
nerable groups such as Amerindians and the processes into ongoing implementation
rural poor should be based on clearer criteria, processes.
more in-depth planning, consultations and
needs assessments, and systematic analysis 4. Sustainability
of the types of upstream, not just down-
stream, interventions needed with different UNDP Guyana should improve sustain-
subgroups. These processes should be carried ability by working with implementing
out jointly with the lead government imple- partners and beneficiaries to create realistic
menting agencies. exit strategies for projects, extract and apply
lessons, and replicate project effects.

CHAPTER 6. CONCLUSIONS AND RECOMMENDATIONS 57

 UNDP should ensure that initial strategies empowerment, as these partnerships have
are built into all project designs up-front been shown in many countries to be the
so that explicit sustainability aims are set most effective means to increase local own-
and progress towards sustainability can be ership and sustainability. In order to guide
monitored on a regular basis. Strategies its own work and establish more meaningful
could include explicit cost-sharing arrange- strategic and programmatic relationships
ments with lead partners, precise descriptions with non-state actors, UNDP Guyana may
of how work initiated under UNDP- also consider establishing a programme
supported projects will be institutionalized advisory committee for itself that regularly
in the long-term, and identification of meets with representation from a wide range
specific benchmarks against which to assess of non-state actors. The purpose would be to
progress towards sustainability and linked to provide UNDP Guyana with an opportunity
results-based frameworks shown in AWPs. to have more sustained strategic dialogue
Such approaches would enable both UNDP with these groups and ensure that they
and its implementing partners to understand clearly understand the role of UNDP and
whether results are likely to be sustained its mandate.
over time, as well as what interventions
are needed to ensure this does occur as 6. Facilitation and coordination
planned. UNDP Guyana should continue to facilitate
For so-called pilot projects, UNDP should strong dialogue and relationships between
place greater effort on researching and lead development partners including the
learning lessons from similar initiatives government and the UN system when
undertaken by UNDP and others elsewhere requested and appropriate.
before planning and initiation. While pilot UNDP should continue to play a role in
projects are actually being implemented, leading and/or facilitating dialogue between
greater efforts should be made to learn from government and international partners when
and share lessons to improve the effective- requested and/or as appropriate, as well as
ness and chances for long-term replication of in proactively coordinating donor support
these efforts. within specific sectors when key gaps or
opportunities appear. The exact nature of
5. Strategic partnerships this coordination role may of course vary
UNDP Guyana should improve its part- between programme areas depending on the
nership approach with non-state actors, as context and the needs within each sector as
well as help strengthen the level of dialogue well as the role of international partners.
between these groups and government.
7. South-South cooperation
UNDP should continue to work closely with
government to find ways of strengthening UNDP Guyana should develop a strategy
the meaningful and consistent engagement and action plan for fostering South-South
of non-state actorsthat is, the private cooperation in-country, regionally and
sector and civil societyin development internationally on a range of key develop-
programming. This should include assis- ment issues.
tance for strengthening the partnerships
South-South cooperation requires a more
forged by the government with the private
explicit plan and strategy in the context
sector and civil society groups to implement
of the country programme as well as the
specific capacity development projects in
regional development context, that is,
natural resource management and economic
in relation to CARICOM and larger

58 CHAPTER 6. CONCLUSIONS AND RECOMMENDATIONS

 movements for economic and social inte- 9. Support for the RR role
gration across the Caribbean such as the UNDP headquarters should improve its cor-
CSME. UNDP should continue to be as porate support for the RR role in Guyana.
proactive and strategic in brokering more
South-South exchanges and information- Due to the key role of the RR in establishing
sharing on behalf of Guyana and in response and maintaining UNDP strategic posi-
to emerging country needs, in areas such as tioning in Guyana, there should be increased
respect for diversity, peace-building, climate analytical and strategic support from UNDP
change and environmental protection, headquarters for the RR position in Guyana
alternate energy, small enterprise develop- in order to decrease turnover and ensure
ment, information technology, investment leadership continuity.
and manufacturing, public sector reform,
human resource development, disaster man- 10. Programme management and oversight
agement, and mobilization of investment/ UNDP Guyana should continue to improve
development resources from non-tradi- its mechanisms and systems to manage for
tional development and investment partners development results.
such as emerging economies in Asia and the
Middle East. This would include fostering UNDP Guyana has made substantial
strategic exchanges both regionally and progress in improving its management
within Guyana itself. systems in the past two years, but the
momentum should be maintained to ensure
8. Gender equality that these initial measures are built on and
expanded. This should include such areas
UNDP Guyana should develop a strategy as: continued support to enhancing results
and action plan for mainstreaming of management and formulation of realistic
gender equality issues. and measurable results statements, design of
Given that there has been no gender main- more realistic project timeframes to prevent
streaming strategy in place over the past implementation delays, improved corporate
several years and no explicit commitment record-keeping for the country programme,
of resources for working on gender main- continued updating of the new resource
streaming issues in the country programme, mobilization strategy and close attention
UNDP should develop such a strategy to options and opportunities for funding,
and ensure that gender issues are fully increase in staffing levels commensurate
integrated within each of the thematic with the programmes evolving needs, and
areas and outcomes in the next CPD- enhanced focus on outcome monitoring and
CPAP. This should, at a minimum, involve evaluation. There is also a need to continue
allocation of specialized resources towards to inform partners of RBM system require-
gender mainstreaming work, as well as ments for effective project implementation,
development of measurable aims and indi- and to integrate partner capacity develop-
cators to gauge progress towards gender ment and knowledge-sharing as much as
mainstreaming. possible into routine project implementation.

CHAPTER 6. CONCLUSIONS AND RECOMMENDATIONS 59

60 CHAPTER 6. CONCLUSIONS AND RECOMMENDATIONS
Annex 1

ADR TERMS OF REFERENCE

1. INTRODUCTION economic potential, Guyana is a lower-middle

income economy57 with an estimated gross
The Evaluation Office of the United Nations
national income per capita of $1,111 in 2007.
Development Program (UNDP) conducts
It ranked 97 out of 177 countries in the 2007/8
a country-level programme evaluations called
UNDP Human Development Index. Migration
Assessments of Development Results (ADRs) to
out of the country has been on average two percent
capture and demonstrate evaluative evidence of
of its entire population per year. The majority of
UNDP contributions to development results at
university graduates have migrated to work for
the country level. ADRs are carried out within
the Organisation for Economic Co-operation
the overall provisions contained in the UNDP
and Development (OECD), the Caribbean
Evaluation Policy.55 The overall goals of an ADR
Community (CARICOM) and Common Market
are to:
countries. Partly due to the perceived political
Provide substantive support to the UNDP and social instability in the country, investment
Administrators accountability function in to private sector development has been limited.
reporting to the Executive Board; Official development assistance (ODA) has also
been declining. An enabling investment climate
Support greater UNDP accountability to and economic development will require a stable
national stakeholders and partners in the political environment, efficient bureaucracy, and
programme country; law and order.
Serve as a means of quality assurance for
UNDP interventions at the country level; The strategy of the Government of Guyana
and (GoG) to attain the Millennium Development
Goals (MDG) has been articulated in its Poverty
Contribute to learning at corporate, regional Reduction Strategy Paper (PRSRP), produced in
and country levels. 2001. Lessons from the National Development
In particular, the Evaluation Office plans to Strategy (NDS), developed in 1993 and
conduct an ADR in Guyana during 2009. The subsequently revised in 1998, and the constraints
ADR will contribute to a new country programme identified at the Business Summit in promoting
which will be prepared by the Guyana Country private sector development in 1999 informed
Office and national stakeholders. the design of the PRSP. The strategy has the
following as its main seven pillars: (i) broad-based
job-generating economic growth; (ii) environ-
2. BACKGROUND FOR THE ADR mental protection; (iii) stronger institutions and
better governance; (iv) investment in human
Guyana is a natural resource wealthy country,
capital, with emphasis on basic education and
with a population of about 763,000 inhabit-
primary health; (v) investment in physical capital,
ants.56 Despite wealth in resources and enormous

55
http://www.undp.org/evaluation/documents/Evaluation-Policy.pdf
56
2007 estimates, World Bank Country Brief
57
http://web.worldbank.org/WBSITE/EXTERNAL/DATASTATISTICS/0,,contentMDK:20421402~pagePK:641331
50~piPK:64133175~theSitePK:239419,00.html

ANNEX 1. ADR TERMS OF REFERENCE 61

 with emphasis on better and broader provision through strengthening national capacity to develop
of safe water and sanitation services, farm-to- evidence-based policies; improve monitoring and
market roads, drainage and irrigation systems, evaluation, hence improve strategic institutions
and housing; (vi) improved safety nets; and of governance; enhance peoples involvement in
(vii) special intervention programs to address determining development directions; and enhance
regional pockets of poverty. national capacities to respond to disasters and
to stimulate emergency recovery initiatives. The
With an aim to support national developmental Country Programme Document (CPD) indicates a
challenges and priorities as outlined in the national number of cross-cutting themes, including human
strategy, UNDP Country Programme 2001-2005 rights, conflict prevention, disaster management,
was developed, primarily focusing on three gender and HIV/AIDS. A mid-term review on
practice areas: governance, poverty and environ- the current Country Programme Action Plan
ment and energy. UNDP supported, in particular, (CPAP) was conducted in October 2008 with
coordinating donor inputs to strengthen the government counterparts and the participation of
Elections Commission, constitutional reforms, national stakeholders.
political dialogue and building social cohesion
and peace, as well as the preparation of national A new five year PRSP (2008-2012) was endorsed
reports under the human rights conventions. by cabinet members in 2008 and is due to be
reviewed and approved by parliament during
The national elections in 2006 presented an the second quarter of 2009. The completion of
opportunity for a new, less divisive political the 2006-2010 Country Programme in Guyana
era that is conducive to sustainable economic presents an opportunity to evaluate UNDP
growth. In support of the government effort contributions and short comings over the last
to attain the MDG and realize a more peaceful programme cycle and before. The findings will
and secure place for all humanity and contribute be used as inputs to the 2011-2015 CPD within
to the PRSP, the UN Country Team (UNCT) the context of the UNDAF and provide an
organized, in its UN Development Assistance opportunity to enhance relevance and strategic
Framework (UNDAF) 2006-2010, Guyanas key positioning of UNDP intervention in light of the
challenges into three themes: expansion of human new national strategy.
capabilities, enrichment and widening of choices/
opportunities, and the fulfilment of freedoms and
human rights through empowerment. 3. OBJECTIVES
The assessment of the development outcomes
The current UNDP Country Programme will entail a comprehensive review of the UNDP
2006-2010 identified the following as inhibiting programme portfolio of the previous and ongoing
factors to the achievement of the MDG: programme cycles (2001-2005 and 2006-2010).
(i) constraints on peoples choices and interven- The evaluation has two main components: the
tions; (ii) prevailing political culture; and analysis of UNDP contribution to development
(iii) vulnerability to economic, environmental and results and the strategic positioning of UNDP.
social hazards. HIV/AIDS prevalence, floods, low
activity rates and unemployment, and fluctuating
DEVELOPMENT RESULTS
trade agreements with the European Union on
sugar also add further challenges to the achieve- The assessment of the development outcomes
ment of the MDG. Building on the lessons will entail a comprehensive review of the UNDP
gained from the previous Country Programme, programme portfolio of the previous and ongoing
the programme was developed and focused on programme cycles. This includes an assessment of
the same practice areas, but with fewer outcome development results achieved and the contribution
areas, with an intention to: catalyze development of UNDP in terms of key interventions; progress

62 ANNEX 1. ADR TERMS OF REFERENCE

in achieving outcomes for the ongoing country STRATEGIC POSITIONING
programme; factors influencing results (UNDP The evaluation will assess the strategic positioning
positioning and capacities, partnerships, policy of UNDP both from the perspective of organi-
support); achievements, progress and contribution zation and the development priorities in the
of UNDP in practice areas (both in policy and country. This will entail (i) a systematic analysis of
advocacy); and analysing the crosscutting linkages UNDP place and niche within the development
and their relationship to MDG and UNDAF. and policy space in Guyana; (ii) the strategies
The analysis of development results will identify used by UNDP in Guyana to strengthen the
challenges and strategies for future interventions. position of UNDP in the development space
The following core set of criteria will be applied and create a position for the organization in the
in assessing the results, and the indicative evalua- core practice areas; and (iii) from the perspective
tion questions identified will be finalized with the of the development results for the country, the
evaluation team: assessment will evaluate the policy support and
Relevance of UNDP programmes: How advocacy initiatives of the UNDP programme
relevant are UNDP programmes to the vis--vis other stakeholders. The evaluation will
priority needs of the country? Did UNDP analyze the following core set of criteria related
apply the right strategy within the specific to the strategic positioning of UNDP, and the
political, economic and social context of indicative evaluation questions identified will be
the region? To what extent are long-term finalized with the evaluation team:
development needs likely to be met across Responsiveness: How did UNDP antici-
the practice areas? What were critical gaps in pate and respond to significant changes
UNDP programming? in the national development context? How
Effectiveness: Did the UNDP programme did UNDP respond to national long-term
accomplish its intended objectives and development needs? What were the missed
planned results? What are the strengths and opportunities in UNDP programming?
weaknesses of the programme? What are Contribution to UN values: How did UNDP
the unexpected results it yielded? Should it assist national efforts in the attainment of
continue in the same direction or should its MDG? To what extent did the UNDP
main tenets be reviewed for the new cycle? programme address and contribute to the
Efficiency: How well did UNDP use its issues of social and gender equity? To what
resources (human and financial) in achieving extent did the UNDP programme address
its contribution? What could be done to the needs of vulnerable and disadvantaged?
ensure a more efficient use of resources in the Strategic partnerships: How has UNDP
specific country/subregional context? leveraged partnerships within the UN system
Sustainability: Did the UNDP programme as well as with international development
incorporate adequate exit strategies and partners, national civil society and private
capacity development measures to ensure sector?
sustainability of the results? Are the benefits Contribution to UN coordination58: Has
of UNDP interventions sustained and owned UNDP effectively supported the develop-
by national stakeholders after the interven- ment of a more effective, efficient, and
tion is completed? coherent UN system at the country level?
58
This criterion assesses the role of UNDP in UN coordination, as stated in the UNDP Strategic Plan (2008-2011).
UNDP has been requested to strengthen its role in supporting the promotion of coordination, efficiency and effectiveness of the
United Nations system as a whole at the country level. In its resolutions 59/250 and 62/208, the General Assembly reiterated
that the management of the resident coordinator system continue[d] to be firmly anchored in the United Nations Development
Programme.

ANNEX 1. ADR TERMS OF REFERENCE 63

 How has UNDP been effectively working STAKEHOLDER INVOLVEMENT
together with other UN partners and using An inclusive approach, involving a broad range
expert resources elsewhere in the UN system of partners and stakeholders, will be taken. The
wherever appropriate? ADR will have a process of stakeholder mapping
that would identify both UNDP direct partners
Further elaboration of the criteria and the subcri- as well as stakeholders who do not work directly
teria will be provided in the ADR Manual with UNDP, but play a key role in a relevant
2009. The manual will be finalized in early to outcome or thematic area in a national context.
mid-2009 and provided by the Evaluation Office These stakeholders will include representatives
task manager when it becomes available. from the government, civil-society organizations,
the private-sector, UN agencies, other multilat-
Further, the evaluation will also consider the eral organizations, bilateral donors, and most
influence of administrative constraints affecting importantly, the beneficiaries of the programme.
the programme and specifically UNDP contri-
bution, including issues related to the relevance
and effectiveness of the monitoring and eavlua- 5. EVALUATION PROCESS
tion system. If during initial analysis these are
The ADR process will also follow the ADR
considered important, they will be included
Guidelines, according to which the process
in the scope of the evaluation. Within the
can be divided in three phases, each including
context of partnerships with the UN system and
several steps.
overall UN coordination, the specific issue of
the development of Joint Programmes will be
highlighted. PHASE 1: PREPARATION

Desk reviewBased on the preparatory

4. EVALUATION METHODS AND work by the Evaluation Office (identifica-
APPROACHES tion, collection and mapping of relevant
documentation and other data), the evalua-
DATA COLLECTION
tion team will analyze, inter alia, national
In terms of data collection, the evaluation documents and documents related to UNDP
will use a multiple method approach that programmes and projects over the period
could include document reviews, group and being examined.
individual interviews (at both Headquarters
Stakeholder mappingThe evaluation
and the country office), project/field visits,
and surveys or questionnaires, as appropriate. team will prepare a basic mapping of
The set of methods would vary depending on stakeholders relevant to the evaluation in the
country context and the precise nature would country carried out at the country level. The
be determined during the scoping mission and mapping exercise will include state and civil-
detailed in an inception report.59 society stakeholders and go beyond UNDP
partners and will also indicate the relation-
ships between different sets of stakeholders.
VALIDATION
Scoping missionA scoping mission to the
The evaluation team will use a variety of methods
country will be undertaken to:
to ensure that the data is valid, including triangu-
lation. Precise methods of validation will be Ensure the country office and key stake-
detailed in the inception report. holders understand the ADR objectives,
methodology and process
59
The scoping mission and inception report on the evaluation process are described in Section 5.

64 ANNEX 1. ADR TERMS OF REFERENCE

 Clarify the understanding of development inception report. The team will visit signifi-
challenges of the country with the govern- cant project/field sites as identified in the
ment and other key stakeholders in the scoping mission. At the exit meeting of the
country mission with key stakeholders, the evalua-
tion team will provide a debriefing of the
Understand the perspective of key stake-
preliminary findings to the country office
holders on the role of UNDP in addressing
and key stakeholders, take initial comments
development challenges with a view to for-
and validate the preliminary thoughts.
mulating focused evaluation questions
Analysis and reportingThe information
Deepen the understanding of UNDP pro-
collected will be analyzed and the draft ADR
gramme, projects and activities with the
report will be prepared by the evaluation
country office staff
team within three weeks after the departure
Develop a concrete plan in conducting of the team from the country. The draft
this evaluation in consultation with the report will be submitted by the team leader
country officee staff, including selection to the task manager, who will review the
of data collection methods, selection of report to ensure that the report complies
projects for field visits and addressing with the Terms of Reference, the Inception
logistical issues Report and the professionally acknowledge
quality standards and guidelines.60
Identify and collect further documenta-
tion, as required ReviewOnce the draft report is accepted
by the task manager based on its satisfac-
Address management issues related to the tory quality, it will be subject to a formal
rest of the evaluation process including review process. This process entails: (i) a
division of labour among the team members technical review by the Evaluation Office; (ii)
The scoping mission will be undertaken by a review by UNDP country office, Regional
the team leader and the task manager (and the Bureau for Latin America and the Caribbean
national consultant if available. (RBLAC) and the government focusing
on factual errors and omissions and errors
Inception ReportA short inception in interpretation; and (iii) a review by two
report will be prepared by the team leader, external experts. The team leader in consul-
following the scoping mission. The report tation with the task manager will prepare an
will present the evaluation design, which audit trail to show how these comments are
encompasses the stakeholder mapping, taken in to account in the revision process.
evaluation questions and methods to be used, The team leader has the overall responsibility
information sources and plan for data collec- to address these comments in the finalization
tion, including selection of project/field sites of the ADR report.
for visits, and design for data analysis.
Stakeholder meetingA meeting with the
national stakeholders will be organized in the
PHASE 2: CONDUCTING ADR AND country to present the results of the evalua-
DRAFTING EVALUATION REPORT tion and examine ways forward. The purpose
of the meeting is: to facilitate greater buy-in
Main ADR missionA mission of two to
by national stakeholders for taking forward
three weeks to Guyana will be undertaken
the lessons and recommendations from
by the evaluation team in line with the

60
This includes United Nations Evaluation Group Norms and Standards (2005) and ADR guidelines and draft methods
manual.

ANNEX 1. ADR TERMS OF REFERENCE 65

 the report; and to strengthen the national approving a new CPD. It will be widely
ownership of development process and the distributed to stakeholders in the country and
necessary accountability of UNDP interven- at UNDP headquarters, to evaluation outfits
tions at country level. of other international organizations, and to
evaluation societies and research institutions
in the region. The report and the management
PHASE 3: FOLLOW-UP response will be published on the UNDP
website62 and the ERC. Its availability will be
Management responseUNDP Associate
announced on UNDP and external networks.
Administrator will request the country office
to prepare a management response to the
ADR. As a unit exercising oversight, RBLAC QUALITY ASSURANCE
will be responsible for monitoring and The Evaluation Office task manager is respon-
overseeing the implementation of follow-up sible for enhancing the quality of the process
actions in UNDP publicly available on-line and products. There will be at least two external
database, the Evaluation Resource Centre evaluation experts identified to review the
(ERC).61 inception report, as well as the draft evalua-
Communication and disseminationThe tion report. The Evaluation Office is ultimately
ADR report and brief will be widely distrib- responsible for assuring the evaluation quality.
uted in both hard and electronic versions.
The evaluation report will be made available The timeframe and responsibilities for the evalua-
to UNDP Executive Board by the time of tion process are tentatively as follows:

Estimated Date (to be discussed further

Activity with the CO and RBLAC and will depend on
the schedule of the evaluators)
Collection and mapping of documentation by the
Mid-AprilMay 2009
Research Assistant
Desk review by the Evaluation Team MayJune 2009
Scoping mission to Guyana 39 June 2009
Evaluation Team meeting in UNDP New York 1012 June 2009
Inception report and full ADR ToR End June 2009

The following are tentative and will be firmed during the scoping mission in consultation with the CO and the
government:
Main ADR mission to Guyana 723 July 2009
Submission of first draft report End August 2009
Comments from Evaluation Office and Advisory Panel September 2009
Submission of second draft report End September 2009
Factual corrections from country office, RBLAC, and the
October 2009April 2010
government
Stakeholder workshop April 2010
Issuance of final report May 2010

61
erc.undp.org
62
www.undp.org/evaluation/

66 ANNEX 1. ADR TERMS OF REFERENCE

6. MANAGEMENT ARRANGEMENTS The work of the evaluation team will be guided
by UNDP evaluation policy (2006), the Norms
UNDP EVALUATION OFFICE and Standards established by the United Nations
The Evaluation Office task manager will manage Evaluation Group (UNEG). The members must
the evaluation process. She will support the team adhere to the ethical guidelines for evaluators
in designing the evaluation; ensure coordina- in the UN system and the Code of Conduct63
tion and liaison with UNDP Guyana Country established by UNEG. The evaluators will be
Office, RBLAC, and other concerned units at its requested to sign the Code of Conduct prior to
headquarters; supervise the work of the Research engaging in the ADR exercise.
Assistant; participate in the missions; provide
ongoing advice and feedback for quality enhance- UNDP COUNTRY OFFICE IN GUYANA
ment,; manage the review process; and assist the
team leader, as appropriate, in finalizing the The country office will support the evaluation team
report. in liaising with key partners and other stakeholders,
making available to the team all necessary informa-
The evaluation team will be supported by the tion regarding UNDP programmes, projects and
Research Assistant based in the Evaluation activities in the country, and taking a lead role in
Office at the initial stage of the process to collect organizing dialogue and stakeholder meetings on
and organize necessary information, and by the the findings and recommendations. The office will
Programme Assistant throughout the process on also be requested to provide additional logistical
logistical and administrative matters. support to the evaluation team as required. The
country office will contribute support in kind for
The Evaluation Office will meet all costs directly example, office space for the evaluation team, but
related to the conduct of the ADR. These will the Evaluation Office will cover local transporta-
include costs related to participation of the tion costs.
team leader and Team Specialists, as well as the
preliminary research and the issuance of the final 7. EXPECTED OUTPUTS
ADR report. Evaluation Office will also cover
costs of any stakeholder workshops as part of the The expected outputs from the evaluation team
evaluation. are:
The inception report (maximum 20 pages)
THE EVALUATION TEAM
The final report Assessment of Development
The team will be constituted of three members: ResultsGuyana (maximum 50 pages plus
Team leader (international consultant), with annexes), which is in line with the ADR
overall responsibility for providing guidance 2009 manual and meets the quality standards
and leadership, and in coordinating the draft outlined in the UNEG and UNDP guidelines.
and final report An evaluation brief (maximum two pages)
Two Team Specialist(s), international or A presentation at the stakeholder meeting
national consultant(s), who will support the
team leader and provide the expertise in the All drafts will be provided in English.
core subject areas of the evaluation, and be In producing written materials, the evalua-
responsible for drafting relevant parts of tion team is expected to apply guidance in
the report the UNDP Evaluation Office publications
manual.

63
All documents available at www.uneval.org

ANNEX 1. ADR TERMS OF REFERENCE 67

 8. QUALIFICATIONS OF countries in the region, advanced degree in the
TEAM MEMBERS social sciences or related fields, proven drafting
skills and leadership skills, and familiarity with
The team leader must have: demonstrated
UNDP or UN operations will be a plus.
capacity in strategic thinking and policy advice
and leading an evaluation of complex programmes
The Team Specialists should have substantive
in the field, substantive knowledge of two or
knowledge of one or two programmatic areas
more of the programmatic areas of UNDP work
of UNDP work in Guyana or in the region and
in Guyana or in the region, in-depth knowledge
in-depth knowledge of development issues in
of development issues in Guyana and/or other
Guyana and/or other countries in the region.

68 ANNEX 1. ADR TERMS OF REFERENCE

Annex 2

EVALUATION FRAMEWORK
D1. Effectiveness
Main questions to Data sources and
Criteria/ collection methods
be answered by What to look for
Subcriteria
the ADR Sources Methods
D1.1 Progress Did the project a. Primary research: Examples CCA (2005) Document
towards implementation of results or effects (both CCF (2001-2003, review/analysis
achievement (as well as any expected and unexpected) extended to 2005) Open-ended
of outcomes non-project achieved for selected projects CPD (2006-2010) interviews
activities) contribute (as well as for non-project (individual and
to progress activities if examples are CPAP (2006-2011)
group)
towards the stated available) under each of the CPAP Mid-term
review (2008) Observations
outcome? thematic areas in the Guyana made during
country programme UNDAF Mid-term
project site
(i.e. the main thematic review (2008)
visits in Guyana
areas are poverty reduction, UNDP Strategic Plan
plus: Team
democratic governance, (2008-2011)
synthesis/
environment/energy and GoG PRSP Progress analysis of
crisis prevention and Reports (2004, 2005, information
recoverynote that HIV/AIDS 2007?) received from
is subsumed under poverty Selected programme the above
reduction) documents sources
b. Synthesis/analysis: linkages (workplans, budgets,
between the cluster of reports, evaluations,
project-level results achieved programme meeting
and overall progress towards minutes, etc.)
programme-level results (as ROARS 2004-2008
outlined in the CCF/CDF/
RC annual reports
CPAP), based on the above
(2003-2008)
examplessee also D1.2
GoG implementation
c. Synthesis/analysis:
partners and benefi-
Overall performance
ciaries
analysis of UNDP Guyanas
programmewhy results Non-state implemen-
were or were not achieved for tation partners and
individual projects and for the beneficiaries
programme overall (explana- UN agencies (UNCT
tion of mitigating factors) members) involved
plus analysis of possible in any UNDP-funded
future implications for the activities
programme Bilateral and
(NOTE: linked to S1.1) multilateral agencies
involved in any
UNDP-funded activi-
ties
CO managers and
staff

ANNEX 2. EVALUATION FRAMEWORK 69

 D1. Effectiveness (continued)
Main questions to Data sources and
Criteria/ collection methods
be answered by What to look for
Subcriteria
the ADR Sources Methods
D1.2 How do these a. Primary research: Review how As above As above
Alignment projects relate projects are grouped or clustered
with and to the stated under each thematic areas, how
relevance to outcomes? well they were matched with
outcomes How did the corresponding programme
implementation of outcomes, and examples of linkages
different projects or between different projects and
the mix of project among multiple thematic areas
and non-project (if applicable)
intervention b. Primary research: Examples of
contribute to any relevant non-project activi-
maximizing the ties related to UNDP networking,
results? information-brokering, coordina-
tion, facilitation, etc., and how
these contributed to programme
outcomes
c. Synthesis/analysis: Extent of
coherence and synergies/conver-
gence among projects and activities
under each thematic area, evolving
mix or type of projects, which
projects or activities made greater
or lesser contributions to overall
programmatic results and why
(explanation of mitigating factors),
based on the above examples plus
analysis of possible future implica-
tions for the programme
D1.3 Reaching Did the implemen- a. Primary research: Examples of As above plus: As above
poor and tation of the projects that had a direct or indirect Any available
disadvan- projects have effect on women, youth, Amerindian secondary
taged groups positive impact on groups, or any other marginalized or data showing
poor and disadvan- disadvantaged groups in Guyana overall poverty
taged groups? b. Primary research: Specific rates and
How was that examples of any innovative methods geographic or
impact achieved? or strategies that were used to reach social distribu-
or involve these groups tion of poverty
c. Synthesis/analysis: Overall effects incidence in the
of the UNDP Guyana programme country (e.g.
on poor and disadvantaged groups, CDB, Bureau
consistency of focus on poor and of Statistics,
disadvantaged groups, any best UNICEF, etc.)
practices, implications for the
programme in the future, etc., based
on the above examples plus analysis
of possible ways to focus UNDP
strategy with these groups

70 ANNEX 2. EVALUATION FRAMEWORK

D2. Efficiency
Main questions Data sources and
Criteria/ collection methods
to be answered What to look for
Subcriteria
by the ADR Sources Methods
D2.1 Have the UNDP a. Primary research: Examples UNDP ATLAS Document
Managerial programmes been of timely and/or cost-efficient database review/analysis
efficiency implemented delivery of projects, and including CO Open-ended
within deadlines, examples of leveraging or Scorecards, interviews
costs estimates? resource mobilization for combined with (individual and
Have UNDP and specific projects that multiplied EO compilation group)
its partners taken UNDP resources of programme Observations
prompt actions to b. Primary research: Examples financial data on made during
solve implementa- of projects that encountered thematic expendi- project site visits
tion issues? problems in AWP prepara- tures, resource in Guyana
tion or approval from UNDP flows and delivery
plus: Team
or government, other delays, rates, etc.
synthesis/analysis
cost over-runs, disbursement Country office of information
challenges, etc., and examples programme received from the
of what was done about this documents: CCF/ above sources
(see also D3.2) CPD, CPAP, AWPs
c. Primary research: for projects,
Observations, examples and reports and/or
information related to specific evaluations
management issues such as CO CO Resource
organization, human resource Mobilization
issues, HQ guidance and Strategy
support, M&E systems, supervi- 2008-2010 (2008)
sion, knowledge management, CO RBM Plan of
communications (both external Action (2009)
and internal), etc. CPAP Mid-term
d. Synthesis/analysis: General review (2008)
patterns or trends that can RBLAC managers
be derived from the above ands staff
examples in relation to manage- (optional)
rial efficiency, including timeli-
CO managers and
ness, responsiveness, adaptabil-
programme staff
ity and appropriateness of UNDP
managerial systems, etc. and GoG implementa-
implications for the programme, tion partners and
based on the above examples beneficiaries
plus analysis of possible future Non-state
implications for the programme implementation
partners and
beneficiaries

ANNEX 2. EVALUATION FRAMEWORK 71

 D2. Efficiency (continued)
Main questions to Data sources and
Criteria/ collection methods
be answered by What to look for
Subcriteria
the ADR Sources Methods
D2.2 Were the UNDP a. Primary research: Information on As above As above
Programmatic resources focused rate and scope of programme expendi-
efficiency on the set of tures based on ATLAS data available
activities that since 2004 (e.g. how resources are
were expected to spread across programme interven-
produce significant tions, mechanisms to improve budget
results? planning and forecasting, financial
Were resources delivery rates for the programme,
combined among expenditure patterns per thematic
any UNDP interven- area, comparison of programme/
tions that contrib- admin expenditure ratios, etc.)
uted to reducing b. Primary research: Examples of any
costs while support- cost savings or efficiencies in resource
ing results? expenditures under the programme,
such as (1) combining technical or
training inputs across projects, (2)
using inputs prudently to support
multiple activities or projects, etc.
c. Synthesis/analysis: General patterns
or trends that can be derived from the
above in relation to programmatic
efficiency, including scope of results
obtained at the programme level in
comparison to amount and type of
resources invested over time, based
on the above examples plus analysis
of possible future implications for
the programme
D2.3 Avoiding Did the a. Primary research: Examples of how As above As above
over-burden- programme current projects report on results
ing of other implementation to UNDP, frequency and depth of
partners place an undue reporting, type of reporting require-
burden on some ments, and whether these require-
partners? ments met partner needs
If so, what were b. Primary research: Examples of
the consequences? projects where implementation
partners had to provide additional
or unplanned reports, or where the
duplication in reporting processes
occurred (within or outside the
UN system)
c. Synthesis/analysis: Any issues or
concerns related to requirements
or demands placed on implemen-
tation partners, corrective actions
taken or needed, implications for the
programme, etc., based on the above
examples plus analysis of possible
future implications for the programme

72 ANNEX 2. EVALUATION FRAMEWORK

D3. Sustainability
Main questions Data sources and
Criteria/ collection methods
to be answered What to look for
Subcriteria
by the ADR Sources Methods
D3.1 Were interven- a. Primary research: Specific Selected programme Document
Design for tions designed examples of projects or background documents: review/analysis
Sustainability to have sustain- interventions (e.g. use CCA, CCF/CPD, CPAP, Open-ended
able results of UNV personnel) with/ project proposals, reports, interviews
given the identi- without a clear sustainability evaluations, etc. (individual and
fiable risks and or exit strategy built into Any exit/sustainability group)
did they include their design plans within programme/ Observations
an exit strategy? b. Synthesis/analysis: project documentation made during
Potential for continua- (see above) project site
tion or replication of any ROARS 2004-2008 visits in Guyana
results or benefits that have CO managers and staff plus: Team
accrued from UNDP projects synthesis/
GoG implementation
or activities and from the analysis of
partners and beneficiaries
programme overall, based information
on the above examples Non-state implementa-
tion partners and received from
plus analysis of possible the above
future implications for beneficiaries
sources
the programme Co-funding agencies
(UN and non-UN) for
UNDP-supported projects
D3.2 Issues What issues a. Primary research: Specific As above As above
at implemen- emerged during examples of where external/
tation and implementation internal issues or threats
corrective as a threat to emerged that affected
measures sustainability? sustainability of project
What were results, and what was done
the corrective to address these challenges
measures that b. Synthesis/analysis: Trends
were adopted? in UNDP response to threats
or risks to sustainability in
the country programme,
based on the above
examples plus analysis of
possible future implications
for the programme
D3.3 If there was a. Primary research: Specific As above As above
Upscaling of testing of pilot examples of where so-called
pilot initia- initiatives, pilot projects did or did not
tives was a plan for lead to scaling up or contin-
scaling up initia- uation, and implications or
tives prepared effects of this
and how did b. Synthesis/analysis:
upscaling Trends related to piloting
proceed? of any initiatives and their
actual success or continu-
ation, based on the above
examples plus analysis of
possible future implications
for the programme

ANNEX 2. EVALUATION FRAMEWORK 73

 S1. Strategic Relevance
Main questions Data sources and
Criteria/ collection methods
to be answered What to look for
Subcriteria
by the ADR Sources Methods
S1.1 Did UNDP a. Primary research: same as CCA (2005) Document
Relevance address the D1.1examples of project-level CCF (2001-2003, review/analysis
against the development results and non-project results/ extended to 2005) Open-ended
national challenges effects CPD (2006-2010) interviews
development and priorities b. Synthesis/analysis: same as (individual and
CPAP (2006-2011)
challenges and support D1.1logical linkages between group)
and priorities the national CPAP Mid-term
the cluster of project-level results Observations
strategies and review (2008)
achieved and overall progress made during
priorities, while towards programme-level results UNDAF
project site visits
operating within (as embodied in the CPAP, for (2006-2011)
in Guyana
its mandate as example) see also D1.2 UNDAF Mid-term
plus: Team
outlined in the c. Synthesis/analysis: same as review (2008)
synthesis/
current Strategic D1.1why results were or were GoG NDS analysis of
Plan 2008-2011? not achieved (mitigating factors), (2001-2010) information
based on the above examples GoG PRSP (2002) received from
d. Synthesis/analysis: Contribution GoG PRSP the above
of UNDP (and by extension, progress reports sources
UNDAF) programme results (as (2005, 2007)
embodied in CPAP) and progress Selected
towards goals of GoG as embodied programme
in the PRSP (2002) or any updates documents:
of that document, based on the project proposals,
above examples plus analysis of reports, evalua-
possible future implications tions, etc.
GoG implementa-
tion partners and
beneficiaries
Non-state
implementation
partners and
beneficiaries
UN agencies
(UNCT members)
involved in any
UNDP-funded
activities
Bilateral and
multilateral
agencies
involved in any
UNDP-funded
activities
CO managers
and staff

74 ANNEX 2. EVALUATION FRAMEWORK

S1. Strategic Relevance (continued)
Main questions Data sources and
Criteria/ collection methods
to be answered What to look for
Subcriteria
by the ADR Sources Methods
S1.2 Did the UNDP a. Primary research: Specific As above As above
Leveraging programme examples of projects or initia-
the facilitate the tives under the Guyana country
implemen- implementation programme that supported GoG
tation of of the national policy objectives under the four
national development thematic areas
strategies strategies and b. Synthesis/analysis: UNDP level
and policies policies and play of contribution to implementation
a complemen- of national policy objectives under
tary role to the different thematic areas, based on
Government? the above examples plus analysis
of possible future implications for
the programme
S1.3 Was the UNDP a. Primary research: Specific As above, plus As above
Corporate strategy designed examples of UNDP-supported BDP/BCPR in
and to maximize projects or initiatives where the UNDP HQ, consul-
comparative the use of its main comparative strengths (e.g. tants, etc.
strengths corporate and government ownership, capacity
comparative development e.g. via UNV,
strengths as knowledge brokering, policy/
outlined in the advocacy dimensions of develop-
current Strategic ment, South-South cooperation
Plan (2008-2011)? and exchange, donor/government
coordination) have been displayed
b. Primary research: Specific
examples of what agencies may
be doing in any of these areas
c. Synthesis/analysis: Comparison
between what UNDP and other
partners are doing in these areas
to identify UNDP best niche,
evolving trends or patterns in the
nature of UNDP support over time,
in terms of the types of implemen-
tation or partnership modali-
ties used, the degree to which
ownership and capacity was
transferred to the GoG, whether
UNDP was able to utilize or
broker different types of capacity
development or knowledge
sharing from among UN or
South-based resources based on
the above examples, plus analysis
of possible future implications for
the programme

ANNEX 2. EVALUATION FRAMEWORK 75

 S2. Responsiveness
Main questions Data sources and
Criteria/ collection methods
to be answered What to look for
Subcriteria
by the ADR Sources Methods
S2.1 Was UNDP a. Primary research: Specific CCF (2001-2003, Document
Responsive- responsive to the examples of where UNDP changed extended to 2005) review/analysis
ness to evolution over the nature of its support (project CPD (2006-2010) Open-ended
evolution time of develop- or non-project) to respond to CPAP (2006-2011) interviews
and changes ment challenges changing GoG priorities or needs, (individual and
CPAP Mid-term
in develop- and the priori- in a way that reflected its compar- group)
review (2008)
ment needs ties in national ative strengths and mandate, and/ Observations
and priorities strategies, or or where it was able to provide UNDAF
(2006-2011) made during
significant shifts additional resources (e.g. UNV project site visits
due to external technical inputs) in a timely UNDAF Mid-term
in Guyana
conditions, fashion review (2008)
plus: Team
commensurate c. Synthesis/analysis: Overall GoG NDS
synthesis/
with its mandate degree of responsiveness of the (2001-2010)
analysis of
and compara- UNDP programme in Guyana GoG PRSP (2002) information
tive strengths i.e. ability to meet changing GoG PRSP received from
as outlined situations and priorities, ability progress reports the above
in the Multi to respond to rapid requests for (2004, 2005, sources
Year Funding assistance in a timely fashion, 2007?)
Framework ability to adapt the programme
(2004-2007) and ROARS
directions to changing priorities
the Strategic Plan (2004-2008)
and needs, etc.but in a way that
(2008-2011)? made sense given its compara- RC annual reports
tive strengths and mandate plus (2003-2008)
analysis of possible future implica- Country office
tions for the programme documents:
project proposals,
AWPs, reports,
evaluations, etc.
GoG implementa-
tion partners and
beneficiaries
Non-state
implementation
partners and
beneficiaries
UN agencies
(UNCT members)
involved in any
UNDP-funded
activities
Bilateral and
multilateral
agencies
involved in any
UNDP-funded
activities
CO managers
and staff

76 ANNEX 2. EVALUATION FRAMEWORK

S2. Responsiveness (continued)
Main questions Data sources and
Criteria/ collection methods
to be answered What to look for
Subcriteria
by the ADR Sources Methods
S2.2 Did UNDP have a. Primary research: Specific As above, plus As above
Mechanisms an adequate examples of where UNDP Guyana BDP/BCPR in
to respond mechanism to was able to respond rapidly to UNDP HQ, consul-
to crisis and respond to signifi- crises such as the 2005 floods, tants, etc.
emergencies cant changes ethnic violence, etc.
in the country b. Primary research: Specific
situation, in examples of role played and
particular in crisis mechanisms used (including
and emergencies? the availability of human and
financial resources) in rapid
response by UNDP, timeliness of
the response, how UNDP adapted
its role and response to meet the
requirements of the post-crisis
situation, etc. plus analysis of
possible future implications for
the programme
b. Synthesis/analysis: Trends or
patterns in UNDP response to past
crisis events in Guyana quality
of response systems, adaptations
or improvements needed plus
analysis of possible future implica-
tions for the programme
S2.3 Balance How are the a. Primary research: Specific As above, plus As above
between short-term examples of short-term, gap-filling Rapid scan of
short-term requests for or fast-track activities undertaken recent newspaper
responsive- assistance by by UNDP in all four thematic articles and
ness and the Government areas, and their effects or media reports in
long-term balanced against implications on the programme Guyana concern-
development long-term overall (related to degree of ing government
objectives development broader outcome alignment priorities and
needs? see also D1.2) emerging issues
b. Primary research: Examples
of criteria or processes used
to determine what level/type
of support to provide under
immediate or short-term requests
from GoG
b. Synthesis/analysis: Trends or
patterns in response to short-term
requests, and implications for the
UNDP programme of focusing on
short-term vs long-term initiatives,
based on the above examples
plus analysis of possible future
implications for the programme

ANNEX 2. EVALUATION FRAMEWORK 77

 S3. Contribution to UN Values
Main questions Data sources and
Criteria/ collection methods
to be answered What to look for
Subcriteria
by the ADR Sources Methods
S3.1 Assisting Is the UN a. Primary research: Specific CCF (2001-2003, Document
in the attain- system, and examples of projects or initiatives extended to 2005) review/analysis
ment of MDG UNDP in particu- where UNDP has advocated for or CPD (2006-2010) Open-ended
lar, effectively championed MDG implementation CPAP (2006-2011) interviews
supporting the and/or follow-up/monitoring in (individual and
CPAP Mid-term
Government Guyana (either alone or in partner- group)
review (2008)
towards the ship with other UN agencies under Observations
achievement UNDAF) UNDAF
(2006-2011) made during
of the MDG in b. Synthesis/analysis: Implications project site visits
general? of this support for GoG progress UNDAF Mid-term
in Guyana
towards the MDGUN and review (2008)
plus: Team
UNDP contribution towards GoG NDS
synthesis/
any MDG-related targets, and (2001-2010)
analysis of
degree of transfer of ownership GoG PRSP (2002) information
to the GoG for MDG implementa- GoG PRSP received from
tion and tracking, based on the progress reports the above
above examples plus analysis of (2004, 2005, sources
possible future implications for the 2007?)
programme
GoG MDG
progress reports
(need dates)
Country office
documents:
project proposals,
reports, evalua-
tions, etc.
GoG implementa-
tion partners and
beneficiaries
Non-state
implementation
partners and
beneficiaries
UN agencies
(UNCT members)
Bilateral and
multilateral
agencies
CO managers
and staff

78 ANNEX 2. EVALUATION FRAMEWORK

S3. Contribution to UN Values (continued)
Main questions Data sources and
Criteria/ collection methods
to be answered What to look for
Subcriteria
by the ADR Sources Methods
S3.2 Is the UNDP a. Primary research: Specific As above, plus As above
Contribution programme examples of where gender strate- UNDP background
to gender designed to gies or action plans have been documenta-
equality appropriately developed for the UNDP country tion on gender
incorporate in programme, and/or where gender mainstreaming
each practice area has been mainstreamed into Gender special-
contributions to UNDP-supported projects or initia- ists/advisors in
the attainment of tives, and any effects of this, and/or various partner
gender equality? where CO resources or capacities agencies
have been deployed in support
of gender equality work (both
internally and externally to UNDP)
b. Primary research: Specific
examples of gender-related
coordination, management,
training and capacity building
carried out by the UNDP CO either
internally or externally, and effects
of this to date
c. Synthesis/analysis: Status
of gender mainstreaming and
commitment to gender issues
within the UNDP Guyana Country
Officestrengths, weaknesses,
areas of achievement and areas
for improvement, based on the
above examples plus analysis of
possible future implications for
the programme
S3.3 Did the UNDP a. Primary research: Examples of As above As above
Addressing programme any strategies or plans prepared
the needs of target the needs by the CO related to how to target
the vulner- of vulnerable or the needs of these groups, as the
able and disadvantaged basis for UNDP engagement
disadvan- segments of b. Synthesis/analysis: Analysis of
taged society so as to UNDP commitment and intention-
advance towards ality regarding addressing the
social equity? needs of the vulnerable and
disadvantaged in Guyana, based
on above examples as well as
specific examples of work carried
out as found under S1.3

ANNEX 2. EVALUATION FRAMEWORK 79

 S4. Strategic Partnerships
Main questions Data sources and
Criteria/ collection methods
to be answered What to look for
Subcriteria
by the ADR Sources Methods
S4.1 Effective Has UNDP a. Primary research: Specific CCF (2001-2003, Document
use of leveraged its examples of where partnerships extended to 2005) review/analysis
partnerships interventions have been created by UNDP to CPD (2006-2010) Open-ended
for develop- through a series create benefits for projects and CPAP (2006-2011) interviews
ment results of partnerships elsewherethis may also include (individual and
CPAP Mid-term
to enhance their examples of where UNDP Guyana group)
review (2008)
effectiveness? helped create innovative partner- Observations
ship arrangements between UNDAF
Have there been made during
different stakeholders including (2006-2011)
cases of missed project site visits
opportunities for the GoG, private sector, other UNDAF Mid-term
in Guyana
using partner- non-state organizations, UNV (as review (2008)
plus: Team
ships more a linked agency to UNDP), other Country office
synthesis/
effectively? development agencies (UN and documents:
analysis of
non-UN), etc. in order to support project proposals,
information
achievement of development reports, evalua-
received from
results at either the project or tions, etc.
the above
programme level GoG implementa- sources
b. Primary research: Specific tion partners and
examples of where UNDP may beneficiaries
have missed key partnership Non-state
opportunities within its mandate, implementation
either with government or with partners and
other key actors such as non-state beneficiaries
actors, UN agencies, UNV, multilat-
UN agencies
eral or bilateral agencies, etc.
(UNCT members)
c. Synthesis/analysis: Trends or involved in any
patterns related to partnership UNDP-funded
arrangements by UNDP Guyana, activities
including any major changes
Bilateral and
in types of partnerships with
multilateral
government and others, based on
agencies
the above examples plus analysis
involved in any
of possible future implications for
UNDP-funded
the programme
activities
CO managers
and staff

80 ANNEX 2. EVALUATION FRAMEWORK

S4. Strategic Partnerships (continued)
Main questions Data sources and
Criteria/ collection methods
to be answered What to look for
Subcriteria
by the ADR Sources Methods
S4.2 Working Has UNDP a. Primary research: Specific As above with As above
with worked in examples of where UNDP Guyana specific emphasis
non-state partnership with has worked with NGO or other on non-state
partners non-governmen- voluntary sector partners, and implementation
tal and/or private results or effects achieved partners and
sector actors to b. Primary research: Specific beneficiaries
maximize the examples of where UNDP Guyana
impact of its has worked with private sector
projects? partners, and results or effects
achieved
c. Primary research: Examples
of how UNDP has developed
strategies or plans to work with
non-state actors, and how these
plans (if any) have provided
guidance for development
programming decisions
d. Synthesis/analysis: Trends or
patterns in partnership arrange-
ments with between UNDP and
non-state actors, how and why
UNDP has made these strategic
choices, and effects of these
partnerships on project-level
and programme-level results
achievement, based on the
above examples plus analysis of
possible future implications for
the programme

ANNEX 2. EVALUATION FRAMEWORK 81

 S4. Strategic Partnerships (continued)
Main questions Data sources and collection
Criteria/ methods
to be answered What to look for
Subcriteria
by the ADR Sources Methods
S4.3 Assisting Has UNDP a. Primary research: Specific As above, plus As above
govern- been effective examples of projects or activi- BDP/BCPR in
ment to use in assisting the ties which have incorporated the UNDP HQ,
external government use of South-South cooperation consultants, etc.
partner- to partner with and/or leveraging strategies, e.g.
ships and external develop- training, exchanges, technology
South-South ment partners? transfers, information-sharing,
cooperation Has UNDP strategic advice, etc.
sought to b. Primary research: Specific
maximize the examples of where UNDP Guyana
opportunity of has assisted the GoG to engage
using South-South with or obtain benefits from other
cooperation as development partners (both UN
a mechanism to and non-UN), via direct referrals
enhance develop- or other coordination or consulta-
ment effective- tion mechanisms, as requested by
ness? the government
c. Synthesis/analysis: Trends
or patterns in promoting
South-South cooperation
mechanisms, and in engaging
with GoG and others to ensure
maximum advantages are
obtained from partnerships,
based on the above examples
plus analysis of possible future
implications for the programme

82 ANNEX 2. EVALUATION FRAMEWORK

S5. Contribution to UN Coordination
Main questions Data sources and collection
Criteria/ methods
to be answered What to look for
Subcriteria
by the ADR Sources Methods
S5.1 Was the CCA/ a. Primary research: Examples of CCA (2005)
Undertaking UNDAF process UNDP facilitation role in UNDAF UNDAF
the CCA/ logical and and UNCT, including process for (2006-2011)
UNDAF coherent and assistance with conducting the CCA, UNDAF Mid-term
process undertaken in for developing and reviewing the review (2008)
full partnership UNDAF strategy, etc.
Available
with UNCT and b. Synthesis/analysis: Overview documentation
non-resident of UNDP Guyana facilitation (PCG minutes,
agencies role in UNDAF/UNCT, based on other presenta-
and national above examples plus analysis of tions, notes or
stakeholders? possible future implications for the reports related
programme to UNDP role in
UNDAF)
UNCT agencies/
PCG representa-
tives
S5.2 Other Has UNDP facili- a. Primary research: Examples of As above, plus As above
Inter- organi- tated greater UNDP Guyana participation, contribu- GoG implementa-
zational collaboration tions and facilitation role in theme tion partners and
collaboration among UN and groups, donor/country harmonization beneficiaries
other interna- efforts and planning or implementa- Bilateral and
tional agencies tion of any joint UN programmes multilateral
working in the b. Synthesis/analysis: Overview of development
country? UNDP Guyana role in inter-agency agencies
collaboration, in relation to changing
trends in donor assistance and
engagement in Guyana, based on
the above examples plus analysis of
possible future implications for the
programme
S5.3 UNDP Has UNDP been a. Primary research: Examples of As above, plus As above
as a window able to facili- where UNDP Guyana has been able GoG implementa-
to other UN tate a national to act as a broker between the GoG tion partners and
agencies and process of and various national stakeholders beneficiaries
assistance appropriation of and other sources of knowledge,
the UN systems funding or expertise in the UN
knowledge, system (i.e. resident and non-resident
expertise and UN agencies), both inside and
other resources? outside Guyana (note: this may
include GEF, BDP, BCPR, etc.)
b. Synthesis/analysis: Overview
of UNDP Guyana contributions
to greater scope and range of
assistance options for the GoG and
other national and local develop-
ment stakeholders, based on the
above examples plus analysis of
possible future implications for the
programme

ANNEX 2. EVALUATION FRAMEWORK 83

84 ANNEX 2. EVALUATION FRAMEWORK
Annex 3

RESULTS OVERVIEW FOR THE UNDP

GUYANA COUNTRY PROGRAMME
2001-2008
Country Cooperation Framework 2001-2005
Planned Objectives/Results Summary of progress towards results
Poverty reduction: Limited capacity building and strengthening of government IT
To provide catalytic and synergistic systems related to PRSP monitoring and tracking of progress
support for achieving the goals of the towards the MDG.
national capacity-strengthening for Limited strengthening and upgrading of the statistical system
poverty eradication. within the Bureau of Statistics (in relation to the above) through
(see planned outputs, Table 10) funding of statistician posts in key ministries.
Pilot initiatives to enhance productive employment, income
generation and leadership skills for Amerindians and women via
EMPRETEC, Heart of Palm and Womens Leadership Institute as well
as via environment projects in North Rupununi and Region 1 (see
below). Mixed or incomplete results achieved in terms of lasting
change in economic conditions for affected populations.

Democratic governance: To continue No specific support provided to strengthen constitutional commis-

to provide support for efforts to build an sions, Race Relations Commission, foster inter-party dialogue and
inclusive democracy. consultation at the political level in line with national constitutional
(see planned outputs, Table 10) reform aims. Some support for consensus-building and dialogue
activities at the community/individual level via SCP. Limited or no
strengthening of local, municipal, regional and national institutions
and organs of government.
Some positive support offered to strengthen electoral process and
enhance technical capacities of GECOM.
Limited efforts to support gender equality and womens leadership
via the Womens Leadership Institute (see above).
Non-project: Co-chaired joint governance committee with Office of
the President.

Environment: Human resource develop- Partial or limited training conducted to sensitize government
ment for environmental stability. officials in key agencies (e.g. EPA, Forestry Commission, Ministry of
(see planned outputs, Table 10) Agriculture) on how to address environmental issues.
Some work done to increase level of community involvement and
engagement in rural, hinterland communities on environment
issues, especially for Amerindians.
Capacity development conducted of the EPA as lead government
stakeholder, leading to increased planning and project manage-
ment skills among key staff members.
Improved access to GEF resources/funding.

ANNEX 3. RESULTS OVERVIEW FOR THE UNDP 85

GUYANA COUNTRY PROGRAMME 2001-2008
 Country Programme Document/Country Programme Action Plan 20062010
Planned Objectives/Results Summary of progress towards results
Poverty reduction Partial improvements in PRSP-I and MDG monitoring capacities
PRS/PRSP prepared to ensure participa- (continued from CCF period). Some improvements in design and
tory process with civil society in policy use of indicators, as well as availability and accuracy of data to
formulation and programming, and measure progress towards key national development aims. Main
taking into consideration clear linkages beneficiary was a unit which is now disbanded, so long-term institu-
with human development and the MDG tional capacity not yet assured.
(CPAP outcome 1.2). Some short-term effects achieved in decentralized participation for
(see planned outputs, Table 10) monitoring and tracking of key poverty and development indica-
tors. Moderate participation achieved for beneficiary groups in
input/planning for PRSP-II. Long-term effectiveness of decentraliza-
tion compromised by lack of institutionalization.
Continued support for the Bureau of Statistics. Limited institutional
effects, as support for new statistician positions did not continue
when project ended.

Broad-based, multi-sectoral and multi- At the request of government, no specific projects were funded to
level response generated, integrating integrate HIV/AIDS into national development plans or mainstream
HIV/AIDS into national development HIV/AIDS into key sectors/ministries.
plans and mainstreaming HIV/AIDS into Non-project: UNDP participated actively in UNCT working groups
key sectors and ministries. and committees, provided limited administrative support for use of
Programme Acceleration Funds from UNAIDS.

Local poverty initiative(s) linked to policy Limited/partial capacity built to develop decentralized poverty
change undertaken (CPAP Outcome 1.3). reduction strategies. Unclear what the extent is of lasting institu-
(see planned outputs, Table 10) tionalization of these efforts (as noted under CCF above).
Limited capacity built of private sector towards achievement
of the MDG, through support for the National Working Group
(NWG) project. Pilot or trial support offered to small-scale poverty
reduction efforts, unclear what lasting effects will be as yet.

Community and regional development No projects completed.

strategies will take into consideration
national, sectoral and external trade
policies.

Democratic governance Partial support for electoral process to meet international standards:
Institutional/legal/policy frameworks negotiation of 2005 joint government-donor MOU, logistical and
established to promote and enforce technical support for flow-through of elections funding by interna-
accountability, transparency and tional partners, technical support for GECOM (IT and MMU). Unclear
integrity in the public service (CPAP what support offered to institutional reform of the electoral system
Outcome 2.7). (in terms of transparency, accountability, etc.).
(see planned outputs, Table 10) Limited support offered to governments promotion human rights
via OHCHR advisor 2005-2007. Level of institutionalization or lasting
change not clear.
No support offered to improve access to or quality of justice as
originally planned in CPD-CPAP.

86 ANNEX 3. RESULTS OVERVIEW FOR THE UNDP

GUYANA COUNTRY PROGRAMME 2001-2008
Country Programme Document/Country Programme Action Plan 20062010 (continued)
Planned Objectives/Results Summary of progress towards results
Social cohesion and peace-building Some capacity built in institutions, civil society organizations and
approaches factored into national political parties in social cohesion and peace-building activities
development frameworks, and via SCP (continued from CCF period). Some individual, small-scale
integrated into programmes designed effects noted in terms of peaceful dialogue, response to conflict in
and implemented at the national and selected communities through SCP as well as 2008 Fast Track initia-
local level (with due regard paid to tive. Limited support offered to political dialogue and inclusiveness
the promotion of human rights) (CPAP at an institutional level.
Outcome 4.1).
(see planned outputs, Table 10)

Environment and energy Limited/partial capacity built in hinterland communities for genera-
Access to energy services, electricity or tion and use of renewable energy, on a pilot basis only. Some
cleaner fuels in rural areas increased capacity built in the use of renewable energy technologies for social
(CPAP Outcome 3.3). and economic development e.g. some improved access to electrifi-
(see planned outputs, Table 10) cation to support heath/education, foster productive enterprises in
hinterland areas in Regions 1 and 9.

Value of biodiversity factored into Limited/partial capacity built in hinterland Amerindian communities
national planning, and government and to management community natural resources through develop-
local communities empowered to better ment of local bylaws. Unclear what efforts made to scale up or
manage biodiversity and the ecosystem replicate these models more widely.
(CPAP Outcome 3.5). Some capacity built at national level with key environment agencies
(see planned outputs, Table 10) for planning and management of natural resources, as well as
land use management (continued from CCF). UNDP contributed
to formulation of environmental regulations and international
reporting. Limited institutionalization and enforcement of regula-
tions to date.

Natural disaster recovery and risk Limited capacity built so far with CDC and other government
reduction agencies to reduce and manage environmental risk from natural
Sector-specific national and local disasters as follow-up to 2005 floods. New project launched as of
expertise developed, covering disaster- 2008/2009, therefore too early to assess results.
preparedness planning and mitigation
of risks and vulnerabilities with specific
attention to gender (CPAP Outcome
4.5).
(see planned outputs, Table 10)

ANNEX 3. RESULTS OVERVIEW FOR THE UNDP 87

GUYANA COUNTRY PROGRAMME 2001-2008
88 ANNEX 3. RESULTS OVERVIEW FOR THE UNDP
GUYANA COUNTRY PROGRAMME 2001-2008
Annex 4

LIST OF INDIVIDUALS CONSULTED

GOVERNMENT OF GUYANA Roger Luncheon, Head of the Presidential

Secretariat, Office of the President
Tarachand Balgobin, Head of Project Cycle
Andrea Mahammad, Senior Land Use Planner,
Management Division, Ministry of Finance
Guyana Lands and Surveys Commission
Lennox Benjamin, Chief Statistician, Bureau of
Mortimer Mingo, Regional Chairman,
Statistics
Region 10
Pradeepa Bholanath, Head of Planning
Audrey Nedd-Johnson, Economic and Financial
and Development, Guyana Forestry
Analyst, Bilateral Department, Ministry of
Commission
Finance
Carl Brandon, Director, Youth Division,
Shyam Nokta, Chair, National Climate Change
Ministry of Culture, Youth and Sport
Committee, Office of the President
Gitanjali Chandarpal, Climate Change Office,
Bal Persaud, former Executive Director,
Office of the President
Environmental Protection Agency
Rudolph Collins, Policy Advisor, Multilateral
Annie Pitamber, Project Coordinator, Second
Unit, Ministry of Foreign Affairs
National Communication on Climate
Collin Croal, Permanent Secretary, Ministry of Change, Ministry of Agriculture
Legal Affairs
Vanessa Profitt, Statistician & Deputy Census
Elsie Croal, former Consultant, former Head of Officer, Bureau of Statistics
Monitoring Unit, Office of the President
Zainool Rahaman, Project Coordinator,
Rovin Deodat, former Director of Education Hydrometereological Department, Ministry
Information and Training, Environmental of Agriculture
Protection Agency
Indarjeet Ramdass, Executive Director,
David Fredericks, Research Scientist, National Environmental Protection Agency
Agricultural Research Institute
Sharifa Razack, Director of Information and
Coby Frimpong, former Head of Monitoring Training, Environmental Protection Agency
Unit, Office of the President
Leon Roberts, Information Officer, Region 10
Elizabeth Harper, Director General, Ministry of
Carolyn Rodrigues-Burkett, Honourable
Foreign Affairs
Minister, Ministry of Foreign Affairs
Ivelaw Henry, Senior Statistician, Ministry of
Deolall Rooplall, Project Coordinator, Ministry
Human Service and Social Security
of Local Government and Regional
Sudha Joshi, Research Officer, Ministry of Development
Home Affairs
Patricia Roopnarine, Statistician, Ministry of
Sasha Layne, Statistician, Ministry of Housing Education
and Water
Dominque Saheed, Senior Environmental
Donna Levi, Head of Bilateral, Ministry of Officer, Natural Resources Management
Finance Division, Environmental Protection Agency

ANNEX 4. LIST OF INDIVIDUALS CONSULTED 89

 Dharam Seehochan, Statistician, Bureau of Jainarine Deonauth, Project Manager, Media
Statistics Monitoring Unit, Guyana Elections
Seewchan, Permanent Secretary, Ministry Commission
of Local Government and Regional Shaun Dey, Youth Leader, Peoples Progress
Development Party-Civic
Bhaleka Seulall, Chief Hydrometereological Remington Eastman, Manager, Media
Officer, Ministry of Agriculture Monitoring Unit, Guyana Elections
Odessa Shako, National Ozone Officer, Commission
Hydrometereological Department, Ministry Bishop Juan Edghill, Chairman, Ethnic
of Agriculture Relations Commission
Mahenda Sharma, Chief Executive Officer, Winston Felix, former Commissioner, Guyana
Guyana Energy Agency Police Force
Yvonne Stephenson, Information Resources Sheila Holder, Member of Parliament, Alliance
Manager, Ministry of Human Services and for Change Party
Social Security Christine King, Chief Executive Officer, Ethnic
Gail Teixeira, Governance Advisor, Office of Relations Commission
the President Adel Lilly, Policy Development Officer,
Trevor Thomas, Permanent Secretary, Ministry Guyana Youth and Student Movement
of Human Services and Social Security Allan Moore, Central Executive Committee,
Sheila Veerasammy, Coordinator, Guyana Peoples National Congress Party
Womens Leadership Institute, Ministry of Colonel Chabilal Ramsarup, Director General,
Human Services and Social Security Civil Defence Commission
Horace Williams, Electrical Engineer, Office of Clarissa Riehl, Member of Parliament, Peoples
the Prime Minister National Congress Party
Ovid Williams, Principal Regional Africo Selman, Member of Parliament, Peoples
Development Officer, Ministry of National Congress Party
Amerindian Affairs
Steve Surujbally, Chairman, Guyana Elections
Commission
NATIONAL COMMISSIONS, POLITICAL
Rafael Trotman, Member of Parliament,
PARTIES AND PARLIMENTARIANS
Alliance for Change Party
Colonel Francis Abraham, Commissioner, Civil John Willems, Commissioner, Ethnic Relations
Defence Commission Commission
G. C. Boodoo, Chief Election Officer, Guyana
Elections Commission NON-STATE ACTORS (NGOS/CIVIL
Gavin Campbell, IT Consultant, Guyana SOCIETY/PRIVATE SECTOR)
Elections Commission
Elizabeth Alleyne, Senior Technical Officer,
Oscar Clarke, General Secretary, Peoples Private Sector Commission
National Congress Party
EMPRETEC trainees: Eric Benjamin, Owner/
Captain Kester Craig, Commissioner, Civil Managing Director, Design Perspectives;
Defence Commission Shawn Benn, Owner/Manager, Professional
Auto Bodywork Ltd.; Irene Bauhus-Holder,

90 ANNEX 4. LIST OF INDIVIDUALS CONSULTED

 Owner/Manager, Irenes Creative Judy Semple-Joseph, Managing Director,
Handicraft; Patricia Helwig, Director, EMPRETEC Guyana
Despats Creative Craft, Nicholas Young, David Singh, Director, Conservation
Owner/Manager, Rainforest Pottery; International Guyana
Denys Bourque, Chief Executive Officer, Major General (retd) Joe Singh, Chief
Amazon Caribbean (Guyana) Ltd Executive Officer, Guyana Telephone and
Denis Chabrol, Guyana Press Association Telegraph Company
Ramesh Dookhoo, Vice Chairman, Private Patrick Williams, Director, World Wildlife
Sector Commission Fund Guyana
Dorothy Fraser, Director, Guyana Red Cross Patrick Zephyr, President, Guyana Small
Society Business Association
Eugene Gilbert, Director, EMPRETEC
Guyana STAKEHOLDERS AND PARTNERS MET
Gerald Gouveia, Chairman, Private Sector DURING FIELD VISITS
Commission
GEORGETOWN
Zaheeda Hack, Peer Educator/Volunteer,
Central Islamic Organization Representatives of various faith-based orga-
nizations via a focus group organized
Hazel Halley-Burnett, Social Worker/
by the Ethnic Relations Commission
Consultant, Guyana Professional Social
(Iamei Aowmathi, Mansoor Baksh, Derek
Workers Association
Collymore, Onesi La Fleur, Mr. Deodatt
Avril Jackson, former Technical Coordinator, Lellack, Joyce Nauth, Raheena Rahaman,
Skills Training Project and Roopnarain Persaud,)
Ryan Kirton, Technical Officer, Private Sector
Commission REGION 1
Norwell Hinds, Programme Director, Bartica
Liston Augustus, Arnold Benjamin, and Audley
Cooperative Association
James, Wardens/Community Members,
Jean La Rose, Programme Administrador, Almond Beach (Guyana Marine Turtle
Amerindian Peoples Association Conservation Society)
Mike McCormack, Co-President, Guyana Nigel Fisher, Deputy Regional Executive
Human Rights Association Officer
Ivor Melville, Executive Director, Bartica Christina James, Juanita Mendonca, and Mary
Cooperative Association Richards (Blue Flame Womens Group)
Roxanne Myers, Consultant Peter Saywack, Businessman, Wauna
Eric Phillips, Executive Director, African Fermin Singh, Chair, Regional Development
Cultural and Development Association Council (Mabaruma)
Xavier Richard, former Project Manager, Mary Williams, Regional Executive Officer
Amazon Caribbean (Guyana) Ltd
Leslie Wilson, Agricultural Technician,
Pryia Roy, Consultant, Guyana Red Cross National Agricultural Research Institute
Cleonel Samuels, Coordinator, Women Across
Differences

ANNEX 4. LIST OF INDIVIDUALS CONSULTED 91

 Representatives from various villages via focus REGION 9
groups organized by the regional govern-
ment, including Wauna, Black Water/ Sydney Allicock, Chair, North Rupununi
Barima, Amika River, Aruka River, Unity District Development Board
Square, St. Anselms, Lower Kaituma Michael James, Finance Officer, North
River, Koriabo/Arukamai, Hobodeia, Rupununi District Development Board
Hotoquai, Three Brothers, Toshao, etc.
Richard Persaud, Pilot Site Coordinator, GSI
(Isabella Alberts, Edwin Ali, Jeanita Ali,
Project
Richard Anthony, Patrick Antonio, William
Aternawds, Reginald Bitonico, Bonny Claire Singh, Vice Chair, Regional
Boyer, Emran Canwais, Dianne Caravaio, Development Council (Letham)
Neil Chu, Abraham Daniels, Maurice Representatives from villages via focus groups
Daniels, Ronald Daniels, Gregory da Silva, organized by the regional government,
Neville Debdeem, Franklyn Edwards, including Annai, Katika, Yupukaii, St.
Marcellus Gonsalves, Maurice Harvey, Ignatius, Rupertel, Swiama, Aranaputa
Stanley Herape, Magdalen Hutson, Perlyn Valley, etc. (Griselda Adams, Emily
Mentore, Doreen Nazier, Peter Nazier, Allicock, Suzette Andries, Alberta Brasche,
Ryan Nazier, Brian Nazin, Elise Osekmo, Terrence Brasche, Brenda Browne, Noel
Yvonne Persaud, Eula Raphael, Denise Caiten, Abiora Dookram, Alphonse Foule,
Roberts, Cy Rodrigues, Ellory San, Owen Mark George, Hatley Jacobs, Margaret
Singh, Eugene Tachideen, John Wang, Jacobs, Yvonne Jacobus, Lionel Joffen,
Lawrence Williams, Leonie Williams, and Wilson Lorentino, Desmond Michael,
Julian Webber) Desmond Moses, Justina Moses, Richard
Moses, Rudolph Roberts, Nerina Sandy,
REGION 5 Evan Saipio, Elio Singh, Pamela Wash,
Derek Williams, Michael Williams, and
Conrad Charles, Chair Neighbourhood Norbert Williams)
Development Committee, Central
Mahaicony
REGIONAL ORGANIZATIONS
Alex Foster, Executive Director, St. Francis
Community Developers Clement Humes, Senior Project Officer,
Hyacinth Holder, Cane Grove Community Resource Mobilization and Technical
Craft Production Centre Assistance Unit, Caribbean Community
Secretariat
Representatives from Calcutta/Central
Mahaicony via focus group organized by St. Sandy Griffith, Project Officer, Caribbean
Francis Community Developers (Medella Community Secretariat
Bobb-Blackman, Michella Bob-Blackman, Percival Marie, Executive Director, Resource
Haniyfa Calder, Nikisho Crawford, Mobilization and Technical Assistance
Ruben DAguia, Paul Dasilica, Sherlock Unit, Caribbean Community Secretariat
Dorchester, Hasence Downer, Shaquille
Alexis Murray, Project Officer, Resource
Downer, Tyrone English, Daneil Fordyce,
Mobilization and Technical Assistance
Emmanuel Klass, Kenny Klass, Loren
Unit, Caribbean Community Secretariat
Halley, Jemaicy Inniss, Jermainy Lambert,
Lansley Lindo, Damion Moore, Tiffayne Leighton Waterman, Senior Project Officer
Pyle, Vuvanand Ramdiel, Akeem Smith, Energy, Caribbean Community Secretariat
Almond Smith, Haniyya Webster, Cesil Joseph Williams, Programme Manager Energy,
Wolfe, and Gloria Wolfe) Caribbean Community Secretariat

92 ANNEX 4. LIST OF INDIVIDUALS CONSULTED

BILATERAL AND MULTILATERAL Dhanmattie Sohai-Welch, Democracy and
ORGANIZATIONS BASED IN GUYANA Governance Advisor, United States Agency
for International Development
Simone Banister, Regional Climate Change
Giorgio Valenti, Country Representative, The
Advisor, Department for International
World Bank
Development (UK)
Rigo Belpaire, Economic Officer, European
Union, Delegation of the European UN SECRETARIAT
Commission
Elizabeth Solomon, Human Rights Advisor,
Johanna Cooke, Deputy Head, Department for Department of Political Affairs, UN
International Development (UK)
Charles Court, High Commissioner of Canada
UNITED NATIONS COUNTRY TEAM
to Guyana
IN GUYANA
Raymond Drouin, Counsellor (Development),
Canadian International Development Reuben Del Prado, Country Coordinator,
Agency UNAIDS
William Gelman, General Development Lystra M. Fletcher-Paul, Country
Officer, United States Agency for Representative, Food and Agriculture
International Development Organization
Winston Harlequin, Programme Management Geoffrey Ijumba, acting Country
Specialist, United States Agency for Representative, UNICEF
International Development Kathleen Israel, Country Representative, Pan-
Anna Iles, Programme Officer, Canadian American Health Organization/World
International Development Agency Health Organization
Nicola Jenns, Head, Department for Patrice Lafleur, Assistant Representative,
International Development (UK) UNFPA
Brett Maitland, Head of Aid, Canadian Cairan OToole, M&E and Social Policy
International Development Agency Consultant, UNICEF
Mark Montgomery, Governance and Security Audrey Michele Rodrigues, Programme Officer
Advisor, Department for International Education, UNICEF
Development (UK) Luis Seoane, Family and Community
Giampiero Muci, Project Officer, Economic Health Advisor, Pan-American Health
Section, European Union, Delegation of the Organization/World Health Organization
European Commission Ottila St. Charles, Monitoring & Evaluation
Sybille Nuenninghoff, Sector Specialist, Inter- Officer, UNAIDS
American Development Bank Johannes Wedenig, Country Representative,
Marco C. Nicola, Representative, Inter- UNICEF
American Development Bank Sean Wilson, National Project Coordinator,
David Noble, Acting Mission Director, ILO/USDOL HIV/AIDS Workplace
United States Agency for International Education Programme
Development

ANNEX 4. LIST OF INDIVIDUALS CONSULTED 93

 UNDP HEADQUARTERS, NEW YORK UNDP GUYANA COUNTRY OFFICE

Niky Fabiancic, Deputy Assistant Trevor Benn, Analyst, Goverance and Poverty
Administrator, Regional Bureau for Latin Marlon Bristol, Analyst, Poverty
America and the Caribbean
Patrick Chesney, Project Manager, Guiana
Carla Khammar, Senior Programme Advisor, Shield Initiative
Regional Bureau for Latin America and the
Caribbean Trevor Clark, Project Manager, EPTSI
Chetan Kumar, Senior Conflict Prevention Patrick John, former Finance Associate,
Advisory, Conflict Prevention and Recovery Elections Support Project
Team, Bureau for Crisis Prevention and Amaly Kowlessar, Programme Assistant,
Recovery Governance and Poverty
Raquel Lagunas, Institutional Development M. Kiari Liman-Tinguiri, Resident
Advisor, UINDP Gender Team, Bureau for Representative
Development Policy
Nadine Livan, Programme Assistant,
Jeffrey OMalley, Director, HIV/AIDS Group, Environment and Energy
Bureau for Development Policy
Juanita Mangal, former Programme Assistant,
Gay Rosenblum-Kumar, UN Interagency Disaster Response Project
Framework Team for Preventive Action,
Patsy Ross, Analyst, Environment and Energy
Bureau for Crisis Prevention and Recovery
Margo Singh, UN Coordination Analyst
Gregory Wordsworth, Energy Policy Advisor,
Environmental and Energy Group, Bureau Didier Trebucq, Deputy Resident
for Development Policy Representative

94 ANNEX 4. LIST OF INDIVIDUALS CONSULTED

Annex 5

LIST OF DOCUMENTS CONSULTED

Caribbean Community (CARICOM) European Commission, Project Monitoring

Secretariat, Caribbean Community Mission Report: Guiana Shield Initiative, June
to Guyana: Herdmanston Accords, 2009.
Georgetown 17 January 1998. Guyana Bureau of Statistics, Household
Caribbean Community (CARICOM) Income and Expenditure Survey, 2006.
Secretariat, St. Lucia Statement Guyana Bureau of Statistics, Population and
Georgetown 2 July 1998. Housing Census 2002, October 2005.
Caribbean Renewable Energy Development Guyana Bureau of Statistics/UNICEF, Guyana:
Programme (CREDP), Draft Memoran- Monitoring the Situation of Women and
dum of Understanding Governing the Children Multiple Indicator Cluster
Implementation of the Project: Grid Survey 2006.
Stability and Soil Test Studies for the
Hope Beach Wind Park, Guyana between Guyana Elections Commission, Media
CARICOM and the Government of Monitoring Unit: Consolidated Monitoring
Guyana (no date). Report 1st January 2008-31st December
2008, with appendices.
Caribbean Renewable Energy Development
Programme (CREDP), Draft Guyana Elections Commission, Media
Memorandum of Understanding Governing Monitoring Unit: Monitoring Report
the Implementation of the Project: 1st January 2009-30th June 2009, with
Hydropower Feasibility Studies on the appendices.
Chuing River between CARICOM and the Government of Guyana, The Amerindian Act
Government of Guyana (no date). Amended, 2006.
Civil Defence Commission Guyana/UNDP, Government of Guyana, Budget 2002:
Building Guyana Together: National Promoting Economic Growth, Accelerating
Disaster Risk Reduction and Management Social Gains.
Workshop, Final Report, December 2005.
Government of Guyana, Budget 2003:
Department for International Development Confronting the Challenges, Staying the
UK (DFID), Ready to Grow: Helping the Course for a Prosperous Guyana.
Caribbean Emerge as a Global Partner
Government of Guyana, Budget 2005:
The UK Governments Regional Develop-
Confronting Challenges, Sustaining
ment Strategy for the Caribbean, 2008.
Growth and Development.
Environmental Protection Agency of Guyana,
Government of Guyana, Budget 2006:
Guyana National Capacity Self-Assessment
Transforming Guyana Through
Report, February 2007.
Modernization and Partnership.
Environmental Protection Agency of Guyana,
Government of Guyana, Budget 2007: Building
Strategic Plan 2006-2010, 2005.
a Modern and Prosperous Guyana.
European Commission, Guyana Country
Strategy Paper and National Indicative
Programme 2008-2013, 2008.

ANNEX 5. LIST OF DOCUMENTS CONSULTED 95

 Government of Guyana, Budget 2008 Staying Government of Guyana/UNDP, Assessment
the Course, Advancing the Transformation of Land Degradation Study: Report of
Agenda. Assessment of Land Degradation in Pilot
Government of Guyana, Budget 2009: Area (undated).
Reinforcing Resilience. Government of Guyana/UNDP, Country
Government of Guyana, Energy Policy of Programme Action Plan 2006-2010 (no
Guyana, 1994. date).

Government of Guyana, Guyana Climate Government of Guyana/UNDP, Final Report

Change Action Plan, 2001. Mid-Term Review, Country Programme
Action Plan 2006-2010, November 2008.
Government of Guyana, Guyana Millenium
Development Goals 2007. Guyana Forestry Commission/United Nations
Development Programme, Guyana Forestry
Government of Guyana, Guyana Poverty Commission Action Plan, 2006.
Reduction Strategy Paper (no date).
Government of Guyana/UNDP, Resource
Government of Guyana, Interim Poverty Valuation in Guyana: Case Study Report,
Reduction Strategy Paper, October 2000. June, 2009.
Government of Guyana, National Biodiversity Government of Guyana/UNDP, Strategic and
Action Plan II 2007-2011, 2006. Results Based Framework for Disaster and
Government of Guyana, National Biodiversity Loss Reduction, July 2003.
Action Plan, 1999. Herdmanston Accord, 17 January 1998.
Government of Guyana, National Development International Monetary Fund, Guyana Poverty
Strategy 2000-2010 (no date). Reduction Strategy Paper Progress Report
Government of Guyana, National 2004, December 2004.
Environmental Action Plan, 1994. International Monetary Fund, Guyana Poverty
Government of Guyana, Workshop Report: Reduction Strategy Paper Progress Report
National Consultation on Disaster 2005, October 2006.
Management and Presentation on Inter-American Development Bank, Country
Comprehensive Disaster Management in Strategy with Guyana 2008-2012, February
the Caribbean, October 2002. 2009.
Government of Guyana/Region 10 RDC/ Inter-American Development Bank, Debt
European Commission/UNDP, Region Sustainability in Guyana, October 2007.
10 Development Strategy 2008-2012, July
2007. Inter-American Development Bank/
Conservation International, Avoiding
Government of Guyana / UNICEF, Country Deforestation while Promoting Sustainable
Programme Action Plan (no date). Development: South American Regional
Government of Guyana/United Nations Infrastructure Development, Forests and
Country Team, Mid-Term Review of REDDImplications for Guyana, July
UNDAF 2006-2010 of the United Nations, 2009.
November 2008. Inter-American Development Bank/DFID/
Government of Guyana/United Nations CIDA/UNDP, Guyana Democratic
Country Team, United Nations Governance and Institutional Assessment:
Development Assistance Framework for Volume IExecutive Summary and Action
the Republic of Guyana 2006-2010, April Plan, August 2008.
2005.

96 ANNEX 5. LIST OF DOCUMENTS CONSULTED

Inter-American Development Bank/DFID/ Simmons, Terrance and Roxanne Myers,
CIDA/UNDP, Guyana Democratic From Violent to Peaceful Elections:
Governance and Institutional Assessment: A Preliminary Look at Peace-Building
Volume IIFull Report, August 2008. Initiatives in Guyana (no date).
Memorandum of Understanding for the Spatial Systems Caribbean Ltd, Watershed
Support of the Next General Elections in Analysis and Assessment Report, May
Guyana between Government of Guyana, 2009.
Guyana Elections Commission and UNAIDS, Guidance Notes for Programme
Donors, 20 July 2005. Acceleration Funds (PAF) 2004-2005.
Ministry of Foreign Affairs Guyana, Final UNDG, Guyana: Resident Coordinators
Report to UNDP Guyana: Capacity Annual Report 2003.
Building Project for Management of
Natural Resources and the Environment, UNDG, 2002 Report of the UN Resident
March 2009. Coordination System in Guyana (letter to
the Secretary General of the UN), February
Office of the President, Government of 2003.
Guyana, A Low Carbon Development
Strategy: Transforming Guyanas Economy UNDG, Guyana: Resident Coordinators
While Combating Climate Change (draft Annual Report 2004.
for consultation), May 2009. UNDG, Guyana: Resident Coordinators
Office of the Prime Minister, Evaluation Annual Report 2006.
Report of the Hinterland Electrification by UNDG, Guyana Workplan 2006: Country
Renewable Energy Pilot Project, February Coordination Profile.
2009.
UNECLAC, Statistical Yearbook for Latin
Office of the Prime Minister, Post Project America and the Caribbean, 2008.
Evaluation Report to UNDP Guyana:
UNICEF, Draft Report of the Programme
Capacity Building and Demonstration
Performance Assessment of UNICEF in
Projects for the Electrification of
Guyana, September 2008.
Hinterland Unserved Areas Utilizing
Renewable Energy, October 2006. UNICEF, Report of the Mid Term Review:
Government of Guyana-UNICEF
Orozco, Manuel, Distant but Close: Guyanese
Programme of Cooperation 2006-2010 (no
Transnational Communities and Their
date).
Remittances from the United States (draft
report), USAID, January 2004. United Nations, Common Country Assessment
and United Nations Development
Orozco, Manuel, Remittances Back Home
Assistance Framework: Guidelines for UN
to Guyana: Issues and Options, Inter-
Country Teams on Preparing CCA and
American Dialogue, 7 November 2002.
UNDAF, February 2007.
Peoples Progressive Party of Guyana, Towards
United Nations, The Millennium Development
Greater Inclusive Governance: Building
Goals Report 2005.
Trust to Achieve Genuine Political
Cooperation, presented by the PPP/C United Nations, The Millennium Development
Government, State House: Georgetown, Goals Report 2006.
February 2003. United Nations, The Millennium Development
Goals Report 2008.

ANNEX 5. LIST OF DOCUMENTS CONSULTED 97

 United Nations Conference on Trade and UNDP Evaluation Office, Evaluation of
Development (UNCTAD), World the Role and Contribution of UNDP in
Investment Report 2008: Country Fact Environment and Energy, August 2008.
Sheet for Guyana. UNDP/Global Environment Facility, Mid-
United Nations Country Team, United term Evaluation of the Caribbean
Nations Common Country Assessment of Renewable Energy Development
Development Challenges in Guyana, 2000. Programme 2004-2008 (no date).
United Nations Country Team, United UNDP/Global Environment Facility, Project
Nations Common Country Assessment of Document: Caribbean Renewable Energy
Development Challenges in Guyana, May Development Programme, April 2004.
2005. UNDP/Global Environment Facility, Report of
United Nations Country Team, United Nations the Final Project Evaluation Mission: GEF
Development Assistance Framework for Assistance to the Iwokrama Rainforest
Guyana 2001-2003, February 2001. Programme (no date).
United Nations Country Team, UN UNDP/Global Environment Facility, Report
Programme Coordination Group Guyana: on a Proposed Reformulation of CREDP,
Draft Terms of Reference (no date). May 2008.
UNDP, Human Development Report 2003. UNDP Guyana, Addendum to the
UNDP, Human Development Report 2009. EMPRETEC Guyana Project, September
2002.
UNDP, Second Multi-Year Funding
Framework 2004-2007, 2003. UNDP Guyana, Annual Workplan 2006:
Building Capacity for Gender Equity in
UNDP, Strategic Plan 2008-2011, 2007. Guyana.
UNDP, Strategic Plan 2008-2011: Addendum UNDP Guyana, Annual Workplan 2009:
I, Development and institutional results Capacity Building and Piloting the Use
frameworks, 2008. of Renewable Energy in Rural Hinterland
UNDP Bureau for Development Policy, Communities.
Empowered and Equal: Gender Equality UNDP Guyana, Annual Workplan 2009:
Strategy 2008-2011, 2008. Capacity Building for the Management of
UNDP/Caribbean Community (CARICOM) Natural Resources and the Environment.
Secretariat, Consultations on the UNDP Guyana, Annual Workplan
Procedures and Systems on the Case in 2009: Community Youth Governance
Support of the CSME (no date). Enhancement Programme.
UNDP Department of Political Affairs, Draft UNDP Guyana, Annual Workplan 2009:
Terms of Reference: Framework for Guyana Elections Commission.
Coordination of Interagency Collaboration
in Support of Preventive Action and Peace UNDP Guyana, Annual Workplan 2009:
and Development Advisors (no date). National Capacity Self-Assessment Project.

UNDP El Salvador/Bureau for Development UNDP Guyana, Annual Workplan 2009:

Policy, How to Prepare a Gender Strategy National Working Group.
for a Country Office, 2004. UNDP Guyana, Annual Workplan 2009:
UNDP Evaluation Office, ADR Method Terminal Phase-Out Management Plan.
Manual, July 2009.

98 ANNEX 5. LIST OF DOCUMENTS CONSULTED

UNDP Guyana, Can Fostering a Culture of UNDP Guyana, Guyana Country Review
Dialogue Change the Course of a Nation?: Report on the First Country Cooperation
An Evaluation of the Social Cohesion Framework, February 2001.
ProgrammeKey Findings and Summary UNDP Guyana, Intensifying the Use of
of Recommendations (full report), August the RBM Framework for Improved
2007. Development Assistance: Plan of Action for
UNDP Guyana, Can Fostering a Culture of the Guyana Country Office, April 2009.
Dialogue Change the Course of a Nation?: UNDP Guyana, Preparatory Assistance
Final Report of the Evaluation of the Social Document: Development of a
Cohesion Programme, June 2007. Comprehensive Disaster Management
UNDP Guyana, Country Office Workplan for Strategy in Guyana, October 2002.
Guyana 2008. UNDP Guyana, Project Cooperation
UNDP Guyana, Country programme Agreement between UNDP, Ministry of
document for Guyana (2006-2010), Foreign Affairs and Guyana Manufacturing
October 2005. Association for EMPRETEC Guyana,
UNDP Guyana, Draft Project Document: Aid September 2002.
Effectiveness Support Plan (no date). UNDP Guyana, Project Document:
UNDP Guyana, Draft Project Document: Benchmarks to Monitor and Evaluate
Enhanced Budget Planning Support Plan Poverty Reduction Strategies (no date).
(no date). UNDP Guyana, Project Document: Capacity
UNDP Guyana, Draft Project Document: Building in Gender Equity in Goverance
MDG Support Plan (no date). (no date).

UNDP Guyana, Draft Project Evaluation UNDP Guyana, Project Document: Ecological
Report: Building Local Capacity for the and Financial Sustainable Management of
Management of Natural Resources and the the Guiana Shield Eco-Region (no date).
Environment 2003-2007, January 2008. UNDP Guyana, Project Document: Electoral
UNDP, Extensions of country cooperation Process Project, 2008.
frameworks (including Guyana), December UNDP Guyana, Project Document:
2003. EMPRETEC GuyanaCapacity-building
UNDP Guyana, Final Report: EMPRETEC Programme to Foster Entrepreneurial
Guyana ProjectCapacity Building to Small and Medium Scale Enterprises and
Foster Entrepreneurial Small and Medium Regional Business Linkages (no date).
Scale Enterprises and Regional Business UNDP Guyana, Project Document: Enhanced
Linkages, March 2003-August 2006, Public Trust, Security and Inclusion
August 2006. (EPTSI), August 2008.
UNDP Guyana, Final Revised Report: UNDP Guyana, Project Document:
EMPRETEC Evaluation, March 2006. Enhancing Inclusiveness, Sustainability and
UNDP Guyana, Final Status Report on the Effectiveness in Development Assistance
Building Trust Fast Track Initiative: Through Gender Mainstreaming, July 2005.
Reducing the Impact of the Violence and UNDP Guyana, Project Document: Reducing
CrimeA Response to the Lusignan and Vulnerability and Risk to Disasters
Bartica Killings, 2008. Implementation of the Comprehensive
Disaster Management Strategy in Guyana
2003-2005 (no date).

ANNEX 5. LIST OF DOCUMENTS CONSULTED 99

 UNDP Guyana, Project Document: UNDP Guyana/Ministry of Ameridian Affairs,
Strengthening National and Local Project Document: Creating Economic
Capacities for Disaster Response and Risk Opportunities in the Hinterland Regions
Reduction, July 2009. Strengthening National Capacity for
UNDP Guyana, Project Document: Income Generation and Poverty Eradication
Support to the Post Flood Recovery and by Creating a Pilot Public/Private
Reconstruction Process in Guyana, May Partnership to Establish a Heart of Palm
2005. Plantation, September 2002.

UNDP Guyana, Project Document: UNDP Guyana/Ministry of Foreign Affairs,

UNDP-GEF Enabling Activities Project End Term Evaluation: EMPRETEC
Assessment of Capacity Building Needs, Project, April 2006.
Preparation of Second and Third National UNDP Guyana/UNCT, Project Document:
Reports (CBD) and the Clearing House Strengthening Human-Rights Related UN
Mechanism (no date). Action, 2006.
UNDP Guyana, Project Initiation Plan: UNDP Guyana/UNECLAC, Guyana: Socio-
Strengthening National and Local Economic Assessment of the Damages and
Capacities for Disaster Response and Risk Losses Caused by the January-February
Reduction, 2008. 2005 Flooding, March 2005.
UNDP Guyana, 2004 Results Report for UNDP HIV/AIDS Group, Essential Actions
Guyana. on Gender and AIDS, 2008.
UNDP Guyana, 2005 Results Report for United Nations Human Rights Council, Report
Guyana. of an Independent Expert on Minority
UNDP Guyana, 2006 Results Report for Rights: Mission to Guyana, August 2008.
Guyana. United Nations Office of the High Commission
UNDP Guyana, 2007 Results Report for for Human Rights, End of Mission Report,
Guyana. Human Rights Advisor Guyana 2007-
2008, June 2008.
UNDP Guyana, 2008 Results Oriented Annual
Report for Guyana. World Bank, A Time to Choose: Caribbean
Development in the 21st Century, April
UNDP Guyana, Report on the Caribbean 2005.
MDG Business Initiative 2005: Regional
Workshop in Guyana, June 2005. World Bank, International Development
Association Country Assistance Strategy for
UNDP Guyana, Second Country Cooperation Guyana, FY 2009-2012, April 2009.
Framework for Guyana 2001-2003,
November 2001. World Bank, Memorandum and
Recommendation of the President of
UNDP Guyana, UNDP Guyana Resource the IDA to the Executive Directors on
Mobilization Strategy 2008-2010, May Assistance to the Cooperative Republic of
2008. Guyana under the Enhanced HIPC Debt
UNDP Guyana/Government of Guyana, Initiative, November 2003.
Project Document: Capacity Building and World Bank Group, Country Assistance
Demonstration Projects for Electrification Strategy of the World Bank Group for the
of Hinterland and Underserved Areas, Cooperative Republic of Guyana, May
Utilising Renewable Energy (no date). 2002.

100 ANNEX 5. LIST OF DOCUMENTS CONSULTED

WEBSITES Organisation for Economic Cooperation and
Development (aid statistics for Guyana),
(Note: all websites were accessed at least once between
http://www.oecd.org/dac/stats/
May 1st and September 14th, 2009)
United Nations Collaborative Programme on
Bank of Guyana, http://www.bankofguyana.
Reducing Emissions from Deforestation
org.gy/
and Forest Degradation in Developing
BBC News Guyana country profile, http:// Countries (UN-REDD), http://www.
news.bbc.co.uk/2/hi/americas/country_ un-redd.org/
profiles/1211325.stm
United Nations Commission on Trade and
Caribbean Development Bank Guyana profile, Development (UNCTAD) background on
http://www.caribank.org/titanweb/cdb/ EMPRETEC, http://www.unctadxi.org/
webcms.nsf/AllDoc/6AB2CC8E599FC5C templates/Startpage____7428.aspx
E87257338006919C4?OpenDocument
UNDP Guyana Country Programme, http://
Central Intelligence Agency World Factbook www.undp.org.gy/
Guyana profile, https://www.cia.gov/library/
United Nations Economic Commission for
publications/the-world-factbook/geos/
Latin America and the Caribbean, http://
gy.html
www.eclac.org/
CIDA Caribbean Regional Programme, http://
United Nations Volunteers (UNV), http://www.
www.acdi-cida.gc.ca/acdi-cida/ACDI-
unv.org/
CIDA.nsf/Eng/JUD-327123545-NMX
USAID Guyana country profile, http://www.
DFID, http://www.dfid.gov.uk/where-we-work/
usaid.gov/locations/latin_america_carib-
caribbean/guyana1/
bean/country/guyana/index.html
European Comnmission, http://ec.europa.eu/
World Bank Group Guyana country brief,
europeaid/where/acp/country-cooperation/
http://www.worldbank.org/WBSITE/
guyana/guyana_en.htm
EXTERNAL/COUNTRIES/LACEXT/
Guyana Bureau of Statistics, http://www. EXTGUYANA/0,,contentMDK:202206
statisticsguyana.gov.gy/ 11~pagePK:141137~piPK:141127~theSi
Global Environment Facility Guyana Country tePK:6320636,00.html
profile, http://www.gefonline.org/Country/ World Bank Group information on aid-per-
CountryDetails.cfm capita, http://ddp-ext.worldbank.org/ext/
Guyana Elections Commission, http://www. ddpreports/ViewSharedReport?REPORT_
gecom.org.gy/ ID=13164&REQUEST_TYPE=VIEW

Inter-American Development Bank (general

information on its Guyana programme),
http://www.iadb.org/countries/home.
cfm?id_country=GY&language=English

ANNEX 5. LIST OF DOCUMENTS CONSULTED 101

 ASSESSMENT OF DEVELOPMENT RESULTS
ASSESSMENT OF DEVELOPMENT RESULTS
E V A L U A T I ON OF UNDP CONT R I B UT I ON GUYANA

HUMAN DEVELOPMENTeffectiveness COORDINAT

GUYANA
efficiency COORDINATION ANDPARTNERSHIP sus
NATIONAL OWNERSHIP relevance MANAGINGFO
sustainability MANAGINGFOR RESULTS responsiven
AN DEVELOPMENTresponsiveness NATIONAL OWN
NATIONAL OWNERSHIP effectiveness COORDINAT
United Nations Development Programme
Evaluation Office
efficiency COORDINATION ANDPARTNERSHIP sus
One United Nations Plaza
New York, NY 10017, USA NATIONAL OWNERSHIP relevance MANAGINGFO
sustainability MANAGINGFOR RESULTS responsiven
Tel. (212) 906 5059, Fax (212) 906 6008
Internet: http://www.undp.org/evaluation

effectiveness