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The Objective:

To assess whether the overall purpose and goal are likely to be achieved and
to assess progress in delivering:

      Output 1 – Parliament meets regularly and has the resources to fulfil its
      Output 2 - Strengthened electoral processes in place
      Output 3 – Government and civil societies are more responsive to
       gender and minority issues
      Output 4 – Balanced and more competent reporting by private and
       state media
      Output 5 – Better alignment of political governance support by
       development partners

Recipients: Canadian International Development agency (CIDA) and DFID.

The Scope

The review should address the following:

      What progress has been made on implementing recommendations
       from last year’s annual review
      What lessons, both positive and negative, have been learnt? In
       particular   lessons     learnt  in    working   with   others,  best
       practice/Innovations and programme management? How should these
       lessons be disseminated?
      What change or positive impact has the implementation of the
       programme brought about?
      What has limited the effectiveness of the programme?
      To what extent have external factors influenced the success of the
      Has the risk category changed since the last review? If so, Why?
       What new risks have been identified? To what extent have risks to the
       programme been managed?            Are changes needed to plan or
       management strategies in respect of project associated risks?
      Were work schedules and agreed timetables for the programme
       adhered to, and what were the effects of this on the overall
       performance of the programme?
      Are there any areas where DFID could increase its funding/support?


The logical framework acts as the basis for the assessment. Inputs will
include: a desk study review of all available documents, meetings and

consultations with CIDA (PEG and GESP components) and DFID staff and
key stakeholders, including the National Assembly (NA), Malawi Electoral
Commission (MEC) and UN Development Programme (UNDP). Specialist (s)
will be required to review work on under specific outputs such as parliament,
elections, civil societies, media and gender.


The review team will submit to the reference group a draft report (no more
than 20 pages, including executive summary) and draft OPR form by May 16.
On 9 May, the specialist (s) will present a summary of the review to the
reference group and submit the final report and review to Dennis Pain on or
before 9 May. Both will be submitted in electronic format.


The review will take place in Malawi from 28 April – 9 May. (10 days)

DFID (or other) Coordination – The specialist (s) will report to Dennis Pain
(overall responsible, Tikambirane and Stuart Forster (Team Leader,
Governance). The overall coordinator will be Jimmy Kawaye (Deputy
Programme Manager, Governance). He will:

      Ensure the review has an agreed programme and that the specialist is
       briefed about the purpose of the review
      Make available key documents including monitoring reports
      Consult with partners and produce an agreed ToR
      Manage the fixing up of appointments with key partners who will need
       to be interviewed during the review and arrange logistics
      Arrange for preliminary feedback of the review findings to stakeholders
       to receive comments before the review is finalised
      Participate in the review and provide input on programme and financial
       management issues when appropriate

The reference group is made up of:

Dennis Pain (DFID), Stuart Forster (DFID), Jimmy Kawaye (DFID), Nina
Ghambi (DFID), Michael Nyirenda (CIDA – PEG), Roman Malumelo and
Brenda Kacheche (CIDA -GESP), Rex Moyo (National Assembly), Dyton
Milanzi (Technical Assistance to the Clerk of Parliament), Justice Msosa,
Malawi Electoral Commission (MEC), Thoko Chisala (UNDP), Sam Alfandika
(UNDP), Lewis Kulisewa (Good Governance Fund).


The Tikambirane programme emerged from an awareness of the fragile
nature of democracy in Malawi. While there had been some progress in
democratic consolidation since the introduction of multi-party democracy a
decade before, it had been accompanied by deterioration in social and

economic conditions, and little progress in building the capacity of public
institutions. Most Malawians remained unaware of, or unable to exercise,
their rights as citizens. In the tense political environment (precipitated by
section 65, among others) which preceded the 2004 elections, there was
genuine concern that Malawi might slip back into autocracy.

Tikambirane was developed with the immediate goal of supporting the May
2004 elections, and building civil society capacity to monitor their integrity.
Over a longer timescale, it aimed to build the capacity of Malawians,
especially the poor and vulnerable, to engage in the policy decisions that
affected them. It sought to educate Malawians about their political, social,
economic and cultural rights, increase their access to information, and
strengthen their opportunities to engage in the formulation of pro-poor policy.
Tikambirane was intended to work with both state and non-state actors, and
to strengthen the links between them, thereby working simultaneously on the
supply and demand sides of the policy process.

Tikambirane was to work primarily by channelling funds through other donor
partners.   This decision was taken against a background of limited
coordination of governance activities among donors in Malawi, and DFID’s
broader agenda of advancing donor harmonisation, both at policy and
programme level.

DFIDM has sought out donor partners with established programmes and
delivery mechanisms in the area of voice and accountability. DFID identified
CIDA as having a local comparative advantage in the area, because of in-
country technical expertise, existing agreements with the local government of
Malawi (GoM) and established projects. DFIDM technical staff enjoy close
working relations with counterparts in other agencies.

The option of channelling Tikambirane funds through donor partners was
therefore seen both as consistent with the broader harmonisation agenda,
and as a pragmatic means of reducing political risk and transaction costs.
Tikambirane thus emerged as a series of discrete programme strands, based
on partners’ programmes, and loosely grouped around the common theme of
voice and accountability. Three main areas were prominent: (i) support to
elections; (ii) grants to civil society; (iii) support to parliamentary committees.

Following the 2006 annual review, DFID refocused the Tikambirane
programme by complementing work already being done by CIDA and the
British High commission by bringing into the programme institutional support
to Malawi’s Parliament and Electoral Commission.

Output 1 – Parliament meets regularly and has the resources to fulfil its
Parliament has been unable to deliver its constitutional mandate due to
inadequate resources, inaccurate expectations of MPs and ineffectual
separation of constitutional powers.

Its new strategic plan, which provides parliament with a platform, structures
and resources to carry out its constitutional obligations both to the executive
and the Malawian electorate, contains a reform agenda that includes the
following seven reform pillars :

1. Strengthen the capacity of the Parliamentary Service commission to
   enforce the provisions of the Parliamentary Service Act 1998
2. Strengthen the capacity of the Parliamentary Service to deliver its services
   efficiently and effectively
3. Provision of a protected budget for the National Assembly for effective
   execution of its constitutional mandate
4. Establish a settled and predictable Parliamentary sitting calendar
5. Enhancement of the status of the Office of the Speaker and other office
   bearers of the House
6. Enhancement of the role of the National Assembly to have more influence
   on government spending, national budget and taxation issues
7. Enhance the Representative role of the Member of Parliament in the

The National Assembly Strategic Plan was adopted by the Parliament
Reforms Committee and was launched by the president on 13 September
2007. Its aim is to make the Malawi Parliament a vibrant, dynamic, credible
and development-oriented democratic institution capable of delivering
services for which it was created. Development partners have agreed to base
its overall support on the National assembly’s SP and priorities. A donor
mapping document was produced which indicates financial support provided
by various donors. The National Assembly exercises effective leadership over
its SP and coordinates development partners’ support satisfactorily. Through
the donor committee on governance (COG) and the Parliamentary Task Force
DFID helps to ensure that development partner actions are more harmonised,
transparent and collectively effective. All stakeholders supporting NA have
signed up to the SP to strengthen Parliament in Malawi, including the
Government of Malawi and development partners. This FY DFID has
provided £500,000 towards implementation of the SP and AWP. Through
PEG support funds have been provided to fund meetings of the reforms
committee and parliamentary committees and for budget analysis to be
carried out

The CIDA Project on Economic Governance (PEG) also delivers outcomes in
this area: The CIDA project aims to increase public participation in the
budgetary process and support the development of parliamentary committees,
and enhance the capacity of civil society to respond on economic governance

Output 2 - Strengthened electoral processes in place
In June 2005, after many long delays, the independent audit of the elections
and the Trust fund was finally released. This raised many serious issues
about MEC’s management of the budget and the UNDP Trust fund. Heads of
mission (HOMs) and the COG decided that donors could not put any more

money through MEC unless they took serious action to address the problems
identified by the audit. However, donors in February 2006 agreed that MEC
had taken sufficient action (e.g. sacking two of their senior staff implicated in
financial irregularities in the audit report, getting in a secondee from the
Accountant General’s department to overhaul financial procedures) and
donors reopened discussions about long term support of MEC reform in line
with the Strategic Plan. DFID and other donors have been working with
UNDP in developing a PSD which was signed in March 2007 and this
document supports implementation of the Strategic Plan through the UNDP
Trust Fund. DFID has disbursed £450,000 during this FY out of £900,000
allocated for capacity building of the MEC. With general elections set for May
2009 (and a further possible commitment from DFID of up to £4m to support
elections), a second phase is envisaged focusing specifically on election
preparation and delivery.

Output 3 – Government and civil societies are more responsive to
gender and minority issues
The CIDA Gender Equality Support Project (GESP) is the principle vehicle
under Tikambirane to respond on gender and minority issues: The CIDA
grant mechanism supports civil society activities in the area of gender
equality, together with a number of public agencies.

Output 4 – Balanced and more competent reporting by private and state
The Good Governance Fund, run in conjunction with the British High
Commission focuses on this output. The fund is a relatively small and
responsive grant-making mechanism to support discrete activities in the
governance and media areas.

Output 5 – Better alignment of political governance support by
development partners
This low-spend output seeks to improve harmonisation and alignment across
the governance sector. DFID is an active participant in a number of co-
ordination mechanisms including the Committee of Governance and the main
budget support group CABS.

Background Documents
Tikambirane logframe
Project Header Sheet
Tikambirane Budget
Project Memorandum
DFID/CIDA Memorandum of Understanding
Output to Purpose Reviews of Tikambirane February 2005, 2006, 2007
GESP/PEG Quarterly Narrative Reports
GESP/PEG Annual workplans
GESP/PEG Advisory Committee meeting minutes

Baseline study of Parliament in Malawi
National Assembly Strategic Plan/AWP
Parliamentary Reform committee Minutes
Parliamentary Task Force Minutes
Annual Review of Progress 2007
DFID report on Parliamentary Strengthening
Malawi Electoral Commission (MEC) Strategic Plan
MEC Project support Document
Elections Task Force Minutes