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					                         TERMS OF REFERENCE (lot 7)

  MID-TERM EVALUATIONS OF THE "NON-STATE ACTORS CAPACITY
BUILDING PROGRAMME (9 ACP BT 007)" AND THE "MINISTRY OF LOCAL
  GOVERNMENT CAPACITY BUILDING PROGRAMME (9 ACP BT 006)"
                       COMBINED WITH
   SUPPORT TO THE IDENTIFICATION OF THE 10TH EDF BOTSWANA
           PROGRAMME TO EMPOWER CIVIL SOCIETY



1.     SUMMARY

The EU/Botswana cooperation in the 9th and 10th EDF is characterised by EU support
to one focal sector, namely education, training and human resource development
through sector budget support. Beside this main intervention there are some projects
aiming to complement the macro support mentioned above with activities in favour of
non state actors (NSA) and the civil society (CS) at grass root level.

The 9th EDF programmes in favour of NSA/CS are successors to the 8th EDF micro-
projects programmes. They aim at building capacity among NSA enabling them to
engage more effectively with Government and donor agencies in development
processes and strengthening the Ministry of Local Government and Councils to
promote community development and self-reliance. Assuming that both programmes
will be successful and produce the expected results, the 10th EDF foresees to continue
EU support to empower civil society.

Thus far however, the two 9th EDF programmes have not progressed as foreseen and
it has been decided to launch the mid-term evaluation of both programmes at an early
stage and jointly in order to evaluate progress and recommend on the necessary
actions to be taken to improve project implementation. Based on the results of these
two evaluations, the experts are requested to assist the Government and the
Delegation in preparing possible future support (10th EDF) aiming at continuing EU
support to empower civil society.


This assignment will require the services of two category II experts for a total of 77
working days.

2.     BACKGROUND

NSA Capacity building Programme (9th EDF)
The Cotonou Agreement emphasises the participation of the Non-State Actors (NSA)
in the development process as a key principle of the ACP-EU cooperation,
underlining the potential for their contributions and their complementary role in
promoting the overall objective of the partnership. The agreement calls for the
enhancement of the capabilities of these actors, in particular as regards to their
organisational and representational skills. - The Country Strategy Papers (2002-2007
and 2008-2013) identifies such support as a possible area of intervention in the non-
focal sector.
Vision 2016, a strategic document which provides Botswana with a long term socio-
economic perspective, singles out the principle of partnership with civil society and
the private sector as a key factor to achieve the development targets: to become a
prosperous, just, open, democratic and accountable nation. The 9th National
Development Plan (2003/4 – 2008/9) recognizes that any development to be
sustainable has to be people-centred and encourages to explore more venues for
cooperation with the NSAs to achieve the goals of Vision 2016.
NSAs in Botswana cut across and are involved in a wide range of development
sectors, which could explain why a project support approach was chosen to support
NSAs under the 9th EDF NSA Programme. These sectors include among others trade
and enterprise development, environment, social welfare, human rights, (including
gender and children), education, health, including HIV/AIDS and agriculture.

NSAs in Botswana are not a homogenous entity. They include civil society
organisations (such as NGOs, CBOs and communities and church groups) and
economic focused organisations (such as employer and professional organisations and
trade unions), associated networking and umbrella organisations and research
institutions. There are a number of „grey‟ areas: Parastatals are mainly financed by
GoB; Brigade Development Trusts, formerly community based vocational training
centres, are in the process of being overtaken by GoB. The interaction between the
various categories and sub categories is limited. Most NGOs are based in Gaborone
and only a few have branches in the districts and outreach is limited. Their capacity to
interact with Government and participate in the formulation of policies and strategies
also varies considerably.

The Financing Agreement for the NSA programme was signed in January 2007. It
provides for a programme implementation unit of four experts to be provided through
externalised direct labour. It further provides for a capacity building component and a
grant facility.

The overall objective of the programme is to make the formulation and
implementation of GoB policies, strategies, and related programmes more responsive
to the needs of the population, including the marginalized and disadvantaged sections
of the population.

The project purpose is to enable NSAs to engage more effectively with Government
and donor agencies in development processes.

Five Project Results areas are envisaged:

i)   NSAs capacity to participate in policy planning and strategy development is
     improved.
ii) NSAs skills in relation to good governance are improved.
iii) NSAs skills related to project cycle are strengthened.
iv) Civil Society Organisations (CS) are enabled to formulate and implement
    strategies for financial sustainability.
v) Networking capacity of NSAs is strengthened.



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The programme has a budget of €6,528,000 (of which the GoB contribution amounts
to 528,000). It started in January 2008 with the fielding of the Project Implementation
Unit, followed by the implementation of the first PE (March 2008 to September
2008), and the signature of PE 2 (December 2008). The operational implementation
phase ends 31 December 2011.

A mid-term evaluation is foreseen in the Financing Agreement.

The present financial situation is the following:
 Original       Paid EDF       Unspent against
 FA budget      in €           original budget in
 in €                          €
 6,000,000      1,204,519      4,795,480

MLG Capacity building programme (9th EDF)

The ACP-EU Partnership Agreement signed in Cotonou in June 2000, and in
particular its Articles 1, 2 and 25, underlines the objective to eradicate poverty
through, among others, the promotion of social development, the equitable
distribution of the fruits of growth, building the capacity of the actors in development
and ensuring ownership of development strategies.

In order to strengthen its fight against poverty, GoB has recognized the need to review
current approaches to the delivery of community development services. There is
concern that the performance of the community development sector (and of extension
services) is falling short of expectations and that the sector is not guided by a clear
mandate/vision. There is also a widespread perception that the policy
context/objectives need to be clarified. A strategic framework, implementation
strategies and action plans need to be developed/reviewed to better respond to current
realities and development priorities. The relationship between community
development and social welfare1 needs clearer articulation, as the role for community
development in the achievement of GoB‟s National Strategy for Poverty Reduction.
Key programmes such as LG1109 and Remote Area Development Programme
(RADP) need to be reconsidered in order to respond better to community needs. GoB
is also concerned to revitalise extension services across government and Council
departments through the District and Village Extension Teams (DET and VET) and in
so doing to promote a more integrated approach to tackling development challenges.

Following a restructuring within the MLG, the Department of Social Services (DSS)
has received responsibility for guiding the community development sector, and will
receive the coordination of the RADP. These developments, aimed at rationalisation,
represent an opportunity to rethink and revitalise the sector, but also a challenge if the
DSS is not in a position to develop the necessary capacity to guide the sector. Equally,
Council‟s departments of Social and Community Development (S&CD), responsible
for implementation on the ground require support to meet the new challenges.




1
 Understood as any form of organized public or private social services provided for the assistance of
disadvantaged groups.


                                                                                                        3
The Financing Agreement of the MLG Programme was signed in September 2006. It
provides for two long-term technical advisors.
The overall objective of the programme is to reduce poverty and improve the
livelihoods of the poor and disadvantaged sections of the population, including youth
and women.

The project purpose is to strengthen the capacity of MLG (DSS) and Councils to
promote community development and self-reliance

Four project results areas are envisaged:

i)   The sector is guided by a clear mission, mandate and strategic framework, that is
     coherent with the wider policy context.
ii) Sector is supported by a set of reformulated, pilot tested, mainstreamed
    intervention strategies and programmes.
iii) Sector is supported by a long term HRD strategy aimed at professionalizing the
     community development function.
iv) Sector capacity is reinforced through “Horizontal Cooperation and Collaboration”
    and revitalisation of integrated extension services.
The programme has a budget of €3,060,000 (of which the GoB contribution amounts
to 60,000). It started in April 2008 with the fielding of the two TAs, followed by the
implementation of the first PE (July to November 2008), and the signature of PE 2
(December 2008). The operational implementation phase ends 31 December 2011.

A mid-term evaluation is foreseen in the Financing Agreement.

The present financial situation is the following:
 Original       Paid EDF       Unspent against
 FA budget      in €           original budget in
 in €                          €
 3,000,000      859,714        2,140,285

Empowerment of civil society (10th EDF)
In December 2007, the Country Strategy Paper (CSP) and the National Indicative
Programme (NIP) of the 10th European Development Fund (EDF) was signed at the
Africa Summit in Lisbon between the Government of Botswana and the European
Commission. In the 10th EDF it has been agreed to keep support to civil society as a
non-focal sector.
€8 million has been allocated for further empowering Civil Society with a view to
enabling it to become a meaningful partner in the development process. The CSP
foresees that the programme will build capacities in the broadest sense (including
training on cross-cutting issues) and provide financial assistance to CS-led projects
and that special attention will be paid to:
     √ grassroots organisations working with the most disadvantaged sections of the
       population (in particular poor, ethnic minorities, women, etc.);




                                                                                         4
     √ organisations active in the fields of gender, HIV, environmental protection,
       human rights, children‟s rights, good governance;
     √ professional, trade and consumer organisations.

Support for Non-State Actors covers Non-State Actors eligible for funding as defined
in Article 6 of the Cotonou Agreement and Article 4(1)(d) of Annexe IV to the
revised Agreement. Depending on their mandate, support to Non-State Actors may
cover activities including capacity-building, advocacy, research, awareness-raising,
monitoring and delivery of services to the population. The CSP also foresees that in
supporting Non-State Actors during the 10th EDF, the Commission may make use of
Article 15(4), which allows it to be the Contracting Authority.

3.      DESCRIPTION OF THE ASSIGNMENT

       3.1.    Global objectives
The global objectives of the assignment are to provide the Government of Botswana
(GoB) and the European Commission with sufficient information to make an
informed judgment about the performance and impact of the 9th EDF NSA and MLG
capacity building programmes, and take decisions about any required changes to
project scopes (such as objectives, duration, financing, TAs, management
arrangements, etc). Furthermore it aims at providing support to GoB to the successful
preparation of the 10th EDF programme "Empowering of Civil Society".

        3.2.    Specific objective
The specific objective is to evaluate the programmes' design and on-going
implementation using the key evaluation criteria (relevance, efficiency, effectiveness,
potential impact and sustainability), and to recommend appropriate corrective
practical measures if applicable. Particular attention should be paid to the impact of
the programmes based on their proposed objectives. Based on that evaluation the team
will assist in the identification (in 2009) and the formulation (in 2010) of the 10th
EDF programme "Empowering of Civil Society".

         3.3. Requested services
Mid-term evaluations
The evaluation studies will follow the structure outlined below. Please refer to the EC
guide for evaluations
 (http://ec.europa.eu/europeaid/evaluation/methodology/guidelines/gbb_det_en.htm)

Relevance of the Programme
Relevance refers to the appropriateness of the actions and capacity building (including
the input of the technical assistance) for the beneficiaries. Analysis should focus on:
- Needs assessment at the level of intended beneficiaries.
- Verification of relevant beneficiaries and stakeholders and their capacity to interact
with the current programme.
- Relevance of the activities of the programme in the overall context of identified
needs.
- Coherence with related activities undertaken by other EU programmes and
initiatives at other levels such as private sector or through other donors.




                                                                                      5
Efficiency
Efficiency refers to whether the same goal could have been achieved through other
means at the same cost or at a lower cost (including the input of the technical
assistance).
- Were the different activities proposed under the programme the best to achieve the
stated objectives?
- Level of achievement of results within the set time frame?
- How did coordination, consultation and participation arrangements work within the
programme and between the latter and stakeholders such as local authorities,
organisations, beneficiaries, private sector, communities and donors?
- Were there any challenges in the management of the programme?

It should be noted that efficiency also depends to a large extent on the absorptive
capacity of the beneficiaries. The EDF and GoB effective disbursements to the
programmes should be compared to the budget lines indicated in the Financing
Agreement.

Effectiveness
This is the analysis of whether the set objectives have been achieved as intended by
the MFDP, MLG, NSA, the EC and possible other stakeholders.
- Were the intervention points correctly selected to meet the set objectives?
- Were the set objectives realistic and implementable?
- Were these objectives adapted, where necessary, during the course of the
programme implementation?
- Were there unanticipated results (positive/negative) yielded by the programme and
what were the consequences on the achievement of the purpose?
- What was the extent to which beneficiaries actually benefit from the programme?

Impact
This criterion examines the extent to which the benefits received by the intended
beneficiaries brought about change in their performance.
- What impact has the implementation of the programme brought about in terms of
strengthening of institutional and human resources capacity of the MLG and NSAs?
- What is the contribution of the programme to the overall objective?
- What is the programme's impact, both anticipated and unanticipated?
- Are there data available to measure this impact?
- Did indicators to measure impact exist, and if so, were they appropriate?

Overall quality; sustainability
This criterion refers to the ability and capacity of beneficiaries to implement the
outcome of an activity once the core support is stopped and verifies whether the
design and orientation of programme activities are based on the principle of building
sustained capacities in beneficiaries. The analysis should focus on:
- Ownership of the objectives and achievements (e.g. how far stakeholders were
involved in the design and implementation of activities, whether their feedback was
sought and whether they remain in agreement with the programme objectives; as well
as the political and financial commitment of MFDP and MLG).
- Institutional capacity of the MFDP, MLG and NSAs as beneficiary organisations
(financial and administrative).



                                                                                   6
- What happens to the knowledge attained and the capacity build at different levels of
the MLG structure (including management) and the SCO?

Conclusions, recommendations and lessons learnt
In particular (in summary form) successes and failures, and causes; cost-efficiency;
adequacy of means and time to achieve the purpose; and sustainability. Lessons learnt
should cover policy, organizational and operational lessons, pre-conditions that should
have been required, and general development lessons.

The conclusion should be a summary of the overall results of the programme and
should outline recommendations. Focus should be on outlining current achievements,
constraints and suggested remedies.

Identification and formulation of the 10th EDF Empowering Civil Society Programme
For the 10th EDF, the Commission has elaborated a new instrument for programme
formulation called Annual Action Plan (AAP) consisting of an Action Fiche (AF) and
a draft Financing Agreement (FA) to be presented to a Quality Support Group (QSG)
at HQ and for inter-service consultation (ISC). A draft Project Identification Fiche
(PIF) will be finalised in August and sent to the HQ.
Once the PIF is approved by HQ, the Delegation together with the GoB will start the
formulation phase and draft the AF and the FA. These documents will have to be sent
to HQ for approval by the QSG and ISC around June 2010.
Identification of the 10th EDF Empowering Civil Society Programme
The expert is expected to draw on the experience to date of the European Commission
in Botswana‟s support to civil society and:
     Review all relevant documents (relevant GoB development plans, policies and
        action plans, EC guidelines for programme identification, etc.) and start
        defining possible activities for the programme
     Assist GoB and the Delegation in the organisation of consultations with
        stakeholders such as Ministries, Civil Society, umbrella organisations, private
        sector, development partners, etc (this could include visits up-country to local
        NGOs).
     Consult with relevant institutions to receive feedback on possible activities
        and implementation modalities for the programme
     Conduct a workshop to present and discuss the programme
     Produce an Aide-mémoire highlighting the key issues and findings to be taken
        into account for the programme, to be presented at a debriefing meeting the
        last day of the field mission
     Present elements of each chapter of the Project Identification Fiche and
        relevant annexes

Formulation of the 10th EDF Empowering Civil Society Programme

The expert is expected to:
     Review other relevant documents if applicable




                                                                                      7
       Assist GoB and the Delegation in the organisation of a consultation workshop
        gathering Ministries, Civil Society, umbrella organisations, private sector,
        development partners, etc.
       Consult with relevant institutions to receive feedback on the proposed
        activities and implementation modality for the programme
       Conduct a workshop to present and discuss the programme
       Produce an Aide-mémoire highlighting the key issues and findings to be taken
        into account for the programme, to be presented at a debriefing meeting the
        last day of the field mission
       Present elements of each chapter of the Action Fiche, the Financing
        Agreement and relevant annexes

The expert will be requested to work together with the Delegation and the
Government to finalise the PIF, the AF, the draft FA and its annexes. The experts are
expected to closely liaise with the NAO Office and the MLG for the organisation of
meetings and visits, and the collecting of key documents.

A list of key reference documents (not exhaustive) to be provided before the mission
starts is attached as appendix 1.

4.      PROFILE OF EXPERTS
The mission requires a team of two category II experts. The team leader for this study
will be responsible for the overall coordination of the mission and reporting. The
experts proposed by the framework contractor should possess the following skills and
qualifications (those highlighted in bold will be given considerable weight in the
evaluation):

Team leader – expert NSA capacity building
- Post graduate Diploma of at least 4 years (university or equivalent) in
   development economics, social sciences or related disciplines and a thorough
   knowledge of civil society-led projects and issues
- 10 years experience in developing, implementing and monitoring Civil
   Society empowerment programmes with particular emphasis on capacity
   building, preferably in the Southern African Region
- Experience in working with civil society in Botswana is considered a distinctive
   advantage
- Solid experience in EC project management and EDF procedures
- Demonstrated practical experience of conducting project evaluations,
   identification and formulation of EDF-funded projects, is essential
- Knowledge of the Paris Declaration on Aid effectiveness
- Previous experience as team leader is required
- Strong communication, personal and interpersonal skills
- Excellent analytical and reporting skills, and fluency in written and spoken
   English are essential
- Computer literacy


                                                                                    8
Expert - community development

-      Post graduate Diploma of at least 4 years (university or equivalent) in
       development economics, social sciences, rural development or related disciplines
       and a throughout knowledge of community development and income generation.
-      10 years experience with community development projects/programmes,
       including change processes and strategic reviews/sector reforms. Experience
       in Sub-Saharan Africa and in particular in the South African region is an
       advantage
-      Solid experience in EC project management and EDF procedures
-      Demonstrated practical experience of conducting project evaluations,
       identification and formulation of EDF-funded projects, is essential
-      Field experience related to community development projects is an advantage.
-      Excellent analytical and reporting skills, and fluency in written and spoken
       English are essential
-      Computer literacy

5.         LOCATION AND DURATION

The mission is expected to take place over a period of 13 months (between 05/2009
and 06/2010). The first phase is expected to start the last week of April and the second
phase is foreseen to take place during the first quarter of 2010. The maximum total
working days allocated to the experts shall be no more than 77 working days
according to the following indicative timetable:

MTRs 9th EDF and identification of 10th EDF programme

    Activities / Weeks                   1   2   3   4   5   6   7   8   9   10   11   12
    Home-based         review      of
    documents and preparation of         X
    meetings/visits
                                                                             10
    Field    mission:     Stakeholder
    consultation,            analysis,
    assessment against the five              X   X   X
    evaluation criteria, first inputs
    for PIF
    Preliminary      findings     and
    conclusions; preparation of                      X
    Aide-Mémoire
    Debriefing meeting in Gaborone                   X
    Home-based finalisation and
    submission of draft reports and                      X
    elements for the PIF
    Time to receive comments from
                                                             X   X
    stakeholders (home-based)
    Finalise and submit final report
    (home-based) and elements for                                    X
    the PIF




                                                                                            9
                                                                                                          Tot.      Tot.
 Experts / Weeks                      1    2      3    4    5    6    7     8   9     10      11    12    WD        PD**
 Expert 1 (team leader)               5    5      5    5    5               3                             28
 Expert 2                             5    5      5    5    3               1                             24

 Per diem expert 1                 7 7 7                                                                            21
 Per diem expert 2                 7 7 7                                                                            21
**If the proposed expert is residents, (s)he is only entitled to per diems for local trips
outside of Gaborone.

Formulation of 10th EDF programme

 Activities / Weeks               1        2     3    4    5    6    7     8    9     10       11   12
 Review       documents    and                                                                11
                                  X
 mission preparation
 Field mission: stakeholder
 consultation,       workshop,
 agreeing on implementation                X     X    X                               10
 modality and feedback on
 proposed activities
 Workshop to present and
                                                      X
 discuss the programme
 Aide-Mémoire and debriefing                          X
 Drafting report (AF and FA)                               X
 Time to receive comments
 from stakeholders (home-                                       X     X
 based)
 Finalisation and submission of
                                                                           X
 report (AF/FA)

                                                                                                         Tot.         Tot.
 Experts / Weeks                  1        2     3    4    5    6    7     8    9     10      11    12   WD           PD**
 Expert 1 (team leader)           3        5     5    5    3    0    0     4                             25
 Per diem expert 1                         7     7    7                                                               21

6.       REPORTING

The submission of reports will be as follows:

                      Aide-Mémoire                           Draft Report                          Final Report
Date of         2 days before the              At the latest one week after the end        At the latest one week
submission      Debriefing Meeting to          of the Field Missions                       after receiving
                be held the last day of                                                    stakeholders‟ comments
                the field missions
To whom         All Stakeholders               EC Delegation and NAO                       EC Delegation, and NAO
Number of       Electronic copies to all       Electronic copies to ECD and NAO            Electronic copies to ECD
copies          stakeholders                                                               and NAO + 6 hard copies
                                                                                           (2 copies each)
Language        English                        English                                     English
Length          Max. 5 pages                   Main Text: max 50 pages (without            Main Text: max 50 pages
                                               annexes)                                    (without Annexes)
Format          A4, default margins,           A4, default margins, Times New              A4, default margins,
                Times New Roman 12             Roman 12                                    Times New Roman 12
Software        World, Excel                   World, Excel                                World, Excel



                                                                                                         10
Contents         Short description of the   I. Executive Summary in DAC            Same as Draft Report
                 main issues and            format (1 p.)
                 findings, to be            II. Main Conclusions and
                 presented and discussed    Recommendations (max 4 p.)
                 at the Debriefing          III. Review of 5 evaluation criteria
                 Meeting                    IV. Annexes (TORs, Short CVs of
                                            Experts, Methodology, Persons
                                            consulted, documentation, revised
                                            LogFrame/indicators, riders to
                                            contracts, etc.)
                                            Draft elements for the PIF2

7.        ADMINISTRATIVE INFORMATION

 Other authorized items to foresee under ‘Reimbursable’

    - Return air tickets in Economy class for the experts
    - Per diems for the expert during field visits (EC‟s rates, which include all the daily
      needs. These comprise: accommodation, meals and transport, including transport
      from or to the airport. The costs of taxis are also included in per diems. The
      amount of per diems may never exceed the rate listed for the country in the per
      diems table on the web-site: http://ec.europa.eu/europeaid/perdiem/index_en.htm)
    - Visits outside Gaborone (airfares, car rental for trips outside Gaborone, etc.)

 Tax and VAT arrangements

Tax and customs arrangements are stated in Article 31 of the Cotonou Convention.
Under no circumstances can VAT be paid by a Community programme.

 Interim payment(s) modalities, if any (only for a rider)

N/A

 Others
- Inputs are presented in person days
- It is not foreseen to provide the expert with office accommodation or any office
material ((s)he should at least have her/his own laptop and mobile phone on arrival).




2        nd
    The 2 mission report relates only to elements of the draft AF and FA


                                                                                                  11
            Appendix 1 – List of documents to be consulted (non exhaustive)


A.       Policies, plans and regulatory

        Botswana Vision 2016
        9th National Development Plan (2004-2009)
        Poverty Reduction Strategy
        Mid-Term Review of NDP9
        Elements of NDP 10
        National NGO policy

B.       European Commission / European Development Fund / Project

        Country Strategy Paper / Indicative Programme EDF9
        Country Strategy Paper / Indicative Programme EDF10
        Financing Agreement NSA
        Financing Agreement MLG
        PEs 1-2 (NSA and MLG)
        Technical Assistance contracts
        EC Guide to the Evaluation Procedures and Structures for External Cooperation
         Programmes
        Inception, quarterly and annual project reports; technical assistance technical
         reports
        ROM report and response sheet
        NSA PSU mapping study
        Templates: PIF, AF, draft FA …..




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