MULTINATIONAL SUPPORT TO ECOWAS FOR PEACE & … · 3 II Project performance assessment A Relevance...
19
AFRICAN DEVELOPMENT FUND MULTINATIONAL SUPPORT TO ECOWAS FOR PEACE & DEVELOPMENT (PADEP) PROJECT COMPLETION REPORT (PCR) RDGW/AHHD September 2018 Public Discosure Authorized Public Disclosure Authorized
Transcript of MULTINATIONAL SUPPORT TO ECOWAS FOR PEACE & … · 3 II Project performance assessment A Relevance...
AFRICAN DEVELOPMENT FUND
MULTINATIONAL
SUPPORT TO ECOWAS FOR PEACE & DEVELOPMENT (PADEP)
PROJECT COMPLETION REPORT
(PCR)
RDGW/AHHD
September 2018
Pu
blic
Dis
cosu
re A
uth
ori
zed
Pu
blic
Dis
clo
sure
Au
tho
rize
d
1
I BASIC DATA
A Report data
Report date Date of report: 23 March 2018
Mission date (if field mission) Dec 3, 2017 To: Dec 19,2017
Positions At approval At completion
Regional Director Janvier LITSE
Country Manager n/a
Sector Director Z. EL BAKRI Agnes SOUCAT
Sector Manager Youssouf MOHAMED Youssouf MOHAMED
Task Manager N. AKAGBUE Sandy JAMBAWAI, Social Development Expert,
SLFO
Alternate Task Manager S NGUESSAN Mariam YINUSA, Principal Financial Specialist
PCR Team Leader Paul DOUGNA, Consultant Socio-Economist
PCR Team Members
Chinelo OKWONKWO, Financial Analyst; Maïmouna DIOP LY, Chief Health and Social Protection Officer; Marine Celeste KIROMERA, Public Health Consultant; Sandy JAMBAWAI, Social Development Expert, SLFO.
C Project data
Project name: PADEP – Support to ECOWAS for Peace & Development
Project code:2100155003170 Instrument number(s): African Development Fund (ADF) Grant no. 2100155003170
Project type: Grant Sector: Social Development
Countries: Liberia, Sierra Leone, Guinea,
Ivory Coast, Guinea Bissau
Environmental categorization (1-3): 3
B Responsible Bank staff
PROJECT COMPLETION REPORT FOR PUBLIC SECTOR OPERATIONS (PCR)
AFRICAN DEVELOPMENT
BANK GROUP
2
Processing milestones – Bank approved
financing only (add/delete rows depending
on the number of financing sources)
Key Events (Bank approved financing
only)
Disbursement and closing dates (Bank
approved financing only)
Financing source/ instrument1: Financing source/ instrument1: Financing source/ instrument1:
Date approved: 29 April 2004 Cancelled amounts: Original disbursement deadline: 30
December 2011
Date signed: 29 September 2004 Supplementary financing: Original closing date: 31 December 2011
Date of entry into force: 5 November
2004
Restructuring (specify date & amount
involved): June 2009 with no change on
project amount
Revised (if applicable) disbursement
deadline: 30 June 2013
Date effective for 1st disbursement: 28
March 2006
Extensions (specify dates): 2 s 31 December
2011(1st extension) and 31 December
2012(2nd extension)
Revised (if applicable) closing date: 31
December 2012
Date of actual 1st disbursement: 28
March 2006
Financing source/ instrument2: Financing source/ instrument2: Financing source/ instrument2:
Date approved: Cancelled amounts: Original disbursement deadline:
Date signed: Supplementary financing: Original closing date:
Date of entry into force: Restructuring (specify date & amount
involved):
Revised (if applicable) disbursement
deadline:
Date effective for 1st disbursement: Extensions (specify dates): Revised (if applicable) closing date:
Date of actual 1st disbursement:
Financing source/instrument (add/delete
rows depending on the number of financing
sources):
Committed amount
(UA):
Percentage
committed (%):
Uncommitted
amount (UA):
Percentage
uncommitted (%):
Financing source/ instrument1: 8,710,000 87.1 1,290,000 12,9
Financing source/ instrument2:
Government: (ECOWAS) n.a n.a n.a n.a
Other (eg. co-financiers). Add rows as
needed.
TOTAL 8 710 000 87.1 1 290 000 12,9
Co-financiers and other external partners:
Executing and implementing agency (ies): ECOWAS (PEACE FUND)
D Management review and comments
Report reviewed by Name Date reviewed Comments
Country Manager M.TARHOUNI, RDGW
Sector Manager Patience KURUNERI, AHHD.2
Regional Director(as chair of Country Team) Janvier LITSE, RDGW
Sector Director Oley DIBBA-WADDA, AHHD.0
3
II Project performance assessment
A Relevance
1. Relevance of project development objective
Rating*
3 Overview: The development objective is to finance and support ECOWAS (Economic Community of
West African States) in promoting peace, particularly in member countries experiencing conflict, with
the aim of strengthening the institutional capacities of ECOWAS and its direct involvement in tackling
regional issues in peace building and refugee reinstallation.
Relevance (Strategies & Policies): The relevance of the development objective (DO) was in line with the Bank’s strategy for support to Fragile States and promoting Regional Integration in West Africa. The Bank’s support is also anchored in Article 55 of ECOWAS revised Treaty and its Conflict Prevention framework. Relevance (Beneficiaries): The project preparation process included a series of consultations with the partners, and took into
consideration the priority needs of beneficiaries. The latter were permanently involved at various
stages of project implementation for activities such as curriculum design, social infrastructure and
income generating activities.
* For all ratings in the PCR use the following scale: 4 (Highly satisfactory), 3 (Satisfactory), 2 (Unsatisfactory), 1 (Highly unsatisfactory)
2. Relevance of project design
Rating* Narrative assessment (max 250 words)
2 The project objective was to contribute to the promotion of peace in the ECOWAS member countries
through ECOWAS and civil society capacity building, and direct assistance to countries and refugees
in their host countries.
DESIGN: The initial project design proved to be unsuitable due to the fact that: a) the outlined objectives and activities were too diversified; b) resources earmarked were limited; c) some main implementing partners’ capacities were not assessed; d) the institutional arrangement established to identify micro-infrastructure to be built for refugees was too complex (5 levels of decision-making) and inefficient (operating costs amounting to 30% of project cost). Accordingly, the project was redesigned with the following provisions: a) partners that were identified for the implementation of the various components of the project were the most suitable in terms of their strengths and experience; b) implementation arrangements were simplified by reducing the decision making process from 5 stages to 1; c) number of activities reduced to meet available resources; and d) operating costs was reduced to 12%. IMPLEMENTATION: Overall opinion on implementation: implementation was challenging and slow-paced. The UNDP, the backstopping institution, failed to perform its role as expected. Additionally,
4
the ECOWAS implementing unit performed poorly (no quarterly reports, no financial audits, backlog of delayed project activities, low level of collaboration with Bank missions and NGFO). The Bank pushed for the redesigning of some aspects of the project during the midterm evaluation. Notably, the change in implementation arrangements allowed for substantial resources to be reduced from operating costs and used towards the implementation of priority project activities. In general, the ECOWAS Commission implementing unit was unable to deliver any significant task despite assistance provided by the FO. It was, therefore, mainly through the actions of implementing partners and the very close and continuous oversight role of the Bank that project activities were implemented.
3. Lessons learned related to relevance
Key issues (max 5, add rows as needed)
Lessons learned Target audience
Project Scope The holistic nature of the intervention, which addressed issues of infrastructure, human resource development, data management and peace consolidation, contributed to achieving the set objectives.
ADB
Sustainability By anchoring main activities to member country institutions (Education for Peace) and using a demand driven approach for social infrastructures construction, the project achieved sustainability of its key outputs.
ADB, ECOWAS
Choice of UNDP as delegated work partners
The UNDP was not an appropriate choice as they did not have the required skills to manage the targeted activities. In addition, the UNDP received ADB resources without providing any justification of activity implemented.
ECOWAS
B Effectiveness
1. Progress towards the project’s development objective (project purpose)
Comments
Provide a brief description of the Project (components) and the context in which it was designed and implemented. State the
project development objective (usually the project purpose as set out in the RLF) and assess progress. Unanticipated outcomes
should also be accounted for, as well as specific reference of gender equality in the project. The consistency of the assumptions
that link the different levels of the results chain in the RLF should also be considered. Indicative max length: 400 words.
The Project’s purpose was to build the institutional capacity of ECOWAS and Civil Society in conflict
affected countries with a view to improve coordination, management and implementation of conflict
prevention actions within a context of good governance.
This idea was in response to the weak capacity of ECOWAS at that time to coordinate and manage conflict
prevention supported actions in the sub region, as well as that of civil society in promoting coordination
and the management of conflict prevention in West Africa.
In this light, the project was designed focusing on the key components of:
5
1. Capacity Building for ECOWAS
2. Support to ECOWAS Peace and Development Programme
3. Support to Project Management
The support was able to improve the capacity of the direct beneficiaries within ECOWAS to be able to
better coordinate, manage and implement conflict prevention actions. This has been evident in the
increase of access to funds, the improvement in audit reports, and the use of improved policies in
accounting and finance and preventive diplomacy actions. It has also made the ECOWAS early warning
mechanism very operational and effective, providing real time early warning information to the
Commission for prompt conflict prevention, diplomacy and management actions.
The Project supported: a) the preparation and the full implementation of a new Peace and Democratic
Values Education programme ; b) the setting up and implementation of the ECOWAS volunteers program
and; c) the socio-economic reintegration of displaced, repatriated persons and refugees by providing on
one hand , identification documents, social infrastructure and skills training and, on other hand , seeds,
agriculture equipment, market construction/rehabilitation and access to funding income generating
activities (IGA).
In the design of the project the gender dimension was taken into account in the training and the number of refugees enrolled in the project. Thirty thousand women have been educated on issues relating to a peace culture and regional integration, about 25,000 women teachers trained. Different components and activities were well interrelated to create synergy. Support provided to
ECOWAS commission in Component 1 was meant to build its capacity to provide guidance and monitoring
to component 2 activities. The project also addressed peace issues by tackling the causes of conflict
(Education, Voice) and its consequences (refugee and displaced persons reintegration).
2. Outcome reporting
Outcome indicators (as per RLF; add more rows as needed)
Baseline value (Year)
Most recent value (A)
End target (B) (expected value at
project completion)
Progress towards target
(% realized) (A/B)
Narrative assessment (indicative max length: 50 words per outcome)
Core Sector
Indicator (Yes/No)
Outcome 1 capacity building
. 0
0
0
IT system installed and functioning in 4 early warning Zonal Bureaux. The Peace Fund is now operational. Humanitarian action and human rights protection is adopted and implemented.
Some IT system installed and functioning in 4 early warning Zonal Bureaux. The Peace Fund is operational and performing. Humanitarian action and human rights protection adopted and implemented.
70% 100% 100%
The Zonal Bureaux are functional. Computer accessories and software are installed, however planned VSAT were not procured as the PIU had not launched the procurement. The operationalisation of the Peace Fund provided the framework for ECOWAS’s financial response to emergencies.
Yes
6
Outcome 2 ECOWAS Ecowas Youth Volunteers Program is in place
0 .
Volunteers Program established and 100 volunteers deployed.
Volunteers Program functioning and 100 volunteers deployed.
100%
The programme was prepared and endorsed. 100 volunteers experts in health and education sectors deployed in Guinea, Guinea Bissau, Liberia and Sierra Leone.
Yes
Outcome 3 New Education for peace and citizenship program
0 Education for peace curricula and teaching manuals prepared and distributed to 4 countries.
Education for peace curricula and teaching manuals prepared and distributed to 8 countries and in 31 local languages.
200% The revision of the curriculum to include citizen and democratic values, the production and distribution of teaching materials and the translation into local language made this tool available and accessible to a larger audience and users.
Yes
Outcome 4 Refugees social and economic life improved
0 300 000 refugees installed and empowered for IGA.
About 220 000 refugees installed and empowered for IGA.
73% Social infrastructure, social assistance, skills and entrepreneurship training, production equipment and tools were provided to facilitate refugees’ reinstallation.
Yes
Rating* (see IPR methodology)
Narrative assessment
2 Although complete data could not be obtained from activities for the project completion year and 2 years after project completion, there were some significant achievement such as: the Peace Education programme available widely in ECOWAS member countries and the acceptable quality of social infrastructure provided for the social and economic reintegration of refugees.
3. Output reporting
Output indicators (as specified in the RLF; add more rows as needed)
Most recent value
(A)
End target(B) (expected value at
project completion)
Progress towards target
(% realized)
(A/B)
Narrative assessment (indicative max length: 50 words per output)
Core Sector
Indicator (Yes/No)
Output 1 ECOWAS staff capacities reinforced
10 staff trained in Project and Financial Management. 20 on data collection and reporting. 20 emergency recovery policy. 5 Education for Peace and democratic values.
55 staffs trained (100%)
100%1sdzry’y(y-è_è_0011001100
00
Staff training was delivered as planned. Staff were effectively involved in delivering main expected outputs. However, staff trained in project management in order to support PADEP implementation subsequently left, which negatively and significantly impacted on the project execution and ECOWAS’s own project execution capacity.
Yes
7
Output 2 Financial management mechanism for the Peace Fund established and performing satisfactorily
By Year 2 of the project, the Operations Manual of the Peace Fund validated by partners in the Peace and Development Programme.
Operation manual designed, adopted and in use.
100% The commonly agreed operation manual helped attract more funding from bilateral and multilateral donors. However, the Peace Fund is not a pool funding mechanism and therefore each donor used its own procedures.
Yes
Output 3 Regional policies
on humanitarian
assistance and
protection of
human rights
published
1 policy document prepared.
Policy document completed , adopted and 6600 copies handed to stakeholders.
100% This support improved on the capacity of CSOs and CBOs in the region for conflict prevention and led to the formation of the West African Civil Society Forum (WASCOF).
Yes
Output 4 Infrastructure in the 4 observation bureaux of the early warning system including VSAT system rehabilitated and equipped.
6 sites equipped and provided with adequate maintenance staff for the teleconferencing and videoconferencing communication system in Year 2 of the project. Scoreboard on conflict vulnerability indicators in the 15 countries within the early warning system updated, published.
18 Desktop 4 Laptops 18 Printers 5 Scanners 18 UPS 4 Photocopiers VSAT equipment 20 staffs trained
70% The provision of equipment in conjunction with staff training made zonal offices functional, especially in conflict and disaster early warning fields, to facilitate ECOWAS disaster preparedness and intervention. However, the VSAT system was not installed. The bidding process was unsuccessfully launched once and the low performing PIU was unable to complete any other procurement processes.
Yes
8
Output 5 Volunteers pilot programme to support the re-insertion of communities launched and progressing satisfactorily
135 Youth Volunteers deployed to the pilot countries.
100 Youth Volunteers deployed
74% The pilot phase started 3 years later than planned and no other phase was carried out. Education and Health graduates were deployed to Guinea, Liberia and Sierra Leone, and who expressed great satisfaction in the services delivered by the volunteers.
Yes
Output 6 Civic Training programmes on promotion of a peace culture and respect of human rights prepared and implemented in the 15 countries
1 100 experts in education strategies, 3 000 trainers and specialists in school teaching programmes. 200 000 teachers, and 525 literacy teachers trained. New curricula training material provided to 90 000 learners.
144 teaching program specialists trained. Printed Teaching material: At national level: 120 000 Manuals. At regional level: 34 200 Manuals in French English and Portuguese produced Electronic distribution material also available to download at www.educationalapaix-ao.org/ 24 267 manuals in 31 local languages.
200% Change in teacher trainer strategy in the new area changed radically the targeted number to be trained during the project implementation period. Compared to objectives set at the appraisal, the Project achieved much more by: a) providing teaching manuals, and b) translating manuals into 31 local languages that became available for use in non-formal education programs of ECOWAS countries.
Yes
Output 7 Refugees and returnees supported to meet host countries policies
Refugees need identity documents (ID) in host countries and national passports.
More than 4000 refugees were identified and received attestation and ID cards.
n.a Identification documents ensure secure free movement in the asylum country. No end target was set in the appraisal report nor in the protocol signed with UNHCR given the difficulty in estimating the target population.
Yes
9
Output 8 Housing and other basic social services provided to refugees and returnees
Many demand driven facilities: shelters and education and health facilities built for refugees and host communities.
About 400 permanent shelters, 378 boreholes, 24 schools and 12 health facilities gave access to about 33 000 beneficiaries .
60% Social infrastructure were provided based on demand driven approach and no end target was assigned at appraisal. However, protocols signed with DWP defined specific objectives such as the target of 20 000 beneficiaries.
Yes
Output 9 Economic infrastructure, access to finance and income generating activities
Markets rehabilitation, short –term skills training and IGA micro funding.
Markets, seeds harvest storage equipment, hustlers, coaching on IGA initiatives were provided.
100% The project responded to specific needs in terms of skills, access to financing and coaching to undertake profitable IGA. Around 3500 households were involved. This result is in line with DWP defined specific objectives in the protocol signed
Yes
Rating* (see IPR methodology)
Narrative assessment
3 Following the midterm review changes, project outputs were achieved to a large extent. A few, however, did not meet full expectations. The rehabilitation and equipment of 4 observation bureaux, the volunteer pilot program, and the provision of housing and social services to refugees all fell short of initial targets. However, policy elaboration, capacity building, curricula design and refugees socioeconomic reinstallation were all executed according to plan, albeit with significant delays. Intended beneficiaries as well as the 3 implementing partners (UNESCO, UNHCR and UNV) were efficiently involved in the delivery of set outputs.
4. Development Objective (DO) rating1
DO rating (derived from updated IPR)*
Narrative assessment (indicative max length: 250 words
PADEP was designed as a tool to support emergency activities and social and economic reintegration of displaced persons and refugees affected by war and political conflict in the West African region. As the major peacekeeping machinery in the region, ECOWAS was seen as the best “peacemaking” actor whose capacity needed to be strengthened to increase the efficiency of its role. By supporting the elaboration and dissemination of peace and democratic values education, the reinforcement of ECOWAS capacities in early warning and conflict prevention, the project had a positive impact on the building of conditions for peace in the region. The refugee reinstallation sub-projects have addressed the local communities’ demands for water and sanitation, health, and education, particularly school enrolment and improved access to basic social services. The empowerment of women through marketable skills acquisition and income generating activities has contributed to the improvement of women and their household incomes and wellbeing.
1 For operations using the old supervision report and rating system in SAP, the DO rating for the PCR shall be calculated using the IPR methodology.
10
5. Beneficiaries (add rows as needed)
Actual (A) Planned (B) Progress towards target (% realized) (A/B)
% of women
Category (eg. farmers, students)
ECOWAS
IT equipment staff training
80 n.a ECOWAS Commission.
Civil society reinforced
6,000 CSOs and CBOs participating
30 50 Conflict prevention Organisation, Education for peace associations.
6 ECOWAS Member States
Cote d’Ivoire Guinea, Guinea Bissau Liberia and Togo to review their curriculum
100 Non applicable
Curriculum development department in Ministry of Education, Ministry of Social Protection, and Gender Ministry.
Refugee reintegration
2 200 000 displaced persons
40 60 Women and youth are the bulk of refugees and displaced persons.
6. Unanticipated or additional outcomes (add rows as needed)
Description Type (eg. gender, climate change, social, other)
Positive or negative
Impact on project (High, Medium,
Low)
1.Visibility and capacity enhanced, thereby attracting other additional funding and clients (UNFPA: requested for and funded deployment of senior midwives in Sierra Leone; France Volontaires and CONFEJES sought to sign cooperation agreements with ECOWAS Volunteers for partnerships). 2. Additional funding secured from other partners/donors (UNV, European Union). 3. Following the study on Civic Education, Ministry of Education in Cote d’Ivoire created a new area of specialisation to teach peace education from primary to high school. 4. Staff attrition and non- recruitment of staff or consultants undermined Project Management team capacity to deliver.
Institutional
Institutional
Social
Institutional
Positive
Positive
Positive
Negative
High
High
High
High
11
7. Lessons learned related to effectiveness (Max 5 add rows as needed)
Key issues (max 5, add rows as needed) Lessons learned Target audience
1. Due to the slow implementation rate of the
project after 3 years, the midterm review
proposed substantial changes such as bringing
new implementing partners and deriving
resources from operating cost towards
development activities. Therefore, Education
for Peace and Citizenship component was able
to support curriculum design in 5 countries,
printing distribution and posting on websites
(ADB, ECOWAS and UNESCO) of ECOWAS
peace Education referential manual.
Information and training material related to
Peace and Citizenship were also translated
and produced in 31 West African languages,
which really expand the access to knowledge
about peace and Citizenship.
1. Dialogue with beneficiaries during project implementation can provide insights on the progressive impact or otherwise of the project and lead to early corrective interventions. 2. Need to carry out thorough assessment of implementation capacity requirements at appraisal, especially for multi-partner operations, in order to clearly designate roles and expected forms of involvement.
ECOWAS Commission
2. Project Implementation PIU staff attrition and ECOWAS Commission’s low responsiveness in providing staff for the project management team seriously hampered its oversight function
The design of future projects in collaboration with ECOWAS should appropriately take into account its low administrative capacity in project management.
ECOWAS Commission
C Efficiency
1. Timeliness
Planned project duration – years (A) (as per PAR)
Actual implementation time – years (B) (from effectiveness for 1st disb.)
Ratio of planned and actual implementation time (A/B)
Rating*
Six (6) years Eight (8) years 1.5 years 2
Narrative assessment(indicative max length: 250 words)
The project was planned for a period of six (6) years. However, implementation took additional 1.5 years. The
UNDP’s failure to perform its mandate was the main reason for the delay recorded during the first 4 years
(only 12% of disbursement in 2009). In addition, ECOWAS project Implementing Unit was not able to deliver
activities planned mainly because of ECOWAS‘s lack of action in recruiting staff and consultants, despite the
Bank’s constant reminders.
12
2. Resource use efficiency
Median % physical implementation of RLF outputs financed by all financiers
(A) (see II.B.3)
Commitment rate (%) (B) (See table 1.C – Total commitment rate of all
financiers)
Ratio of the median percentage physical implementation and
commitment rate (A/B)
Rating*
n.a n.a n.a
Narrative assessment(indicative max length: 250 words)
Outputs delivered by delegated work partners were generally of good quality. Since the implementing partners belong to the UN system, no independent audit was carried out to assess their respective financial performances. The Bank, however, conducted several fact-finding missions to assess the quality of the construction of social infrastructure and the design and implementation of the Volunteers programme. Over the years, ADB missions revealed some technical errors in works in progress. Corrective measures proposed by the Bank were implemented by partners. In the case of social infrastructure, 3 years after handing over facilities to beneficiaries, it was noted that these facilities were in effective use and were being maintained in accordance with the norms of the beneficiary countries. Outstanding audits were cleared after the project completion and the independent auditors have not identified misuses in ADB resources directly managed by the ECOWAS Commission or EBID for operating cost. Long delays experienced at the onset of the project had however, due to price escalation, reduced the number of facilities and or training sessions. The project financial management is rated as unsatisfactory.
3. Cost benefit analysis
Economic Rate of Return (at appraisal)
Updated Economic Rate of Return (at completion)
Rating*
n.a n.a
Narrative assessment(indicative max length: 250 words)
Project main outputs are related to capacity building, strategies, design, curriculum development and refugee installation, all of which have social and institutional impact rather than economic impact.
4. Implementation Progress (IP)2
IP Rating (derived
from updated IPR) * Narrative comments (commenting specifically on those IP items that were rated Unsatisfactory or Highly Unsatisfactory, as per last IPR). (indicative max length: 500 words)
2 Even though the grant agreement on PADEP was signed on 4 November 2004, the effective execution of all components of PADEP started in May 2006. The rate of disbursement of the grant stood at 11.85% in March 2009 and evolved to 26% in June 2010 and 72% in June 2012. At closing of the project in January 2013, 87.1% of the grant had been disbursed. A PCR mission was organized in 2013 but could not be finalized due to audit backlogs. These backlogs were cleared in 2015.
2 For operations using the old supervision report and rating system in SAP, the IP ratings need to be converted from the 0-3 scale used in SAP to the 1-4 scale used in the IPR.
13
5. Lessons learned related to efficiency
Key issues (max 5, add rows as needed) Lessons learned Target audience
1. Delegated works management
The delegated-works management approach
adopted for the project implementation at the
national level was a convenient arrangement at the
conceptual and design stages of the project in view
of the prevailing conditions in the sub-region, in
particular in some of the Member States where
government institutions barely existed. The
arrangement worked well with some implementing
partners (UNHCR, UNV, and UNESCO) despite the
delay in delivering the activities. However, the
arrangement failed to work with the UNDP. Despite
the mixed results due to different implementing
partners, the approach can be considered as
appropriate to the type of activities of such a project.
Bank, ECOWAS
2.Institutional Arrangement The separation of the finance and disbursement functions of the project from the PIU caused difficulties in project management and contributed significantly to delays in the execution of some aspects of the project.
Need for Project Implementation Units to merge both functions to enhance efficiency in project implementation.
D Sustainability
1. Financial sustainability
Rating* Narrative assessment (indicative max length: 250 words)
2 Education for peace program implemented by countries is now part of national education programs. Social infrastructure (shelters, schools health care centres) have been handed to beneficiaries, local communities, and states and will follow national rules and practices as far as maintenance is concerned. ECOWAS Volunteers program is expensive and it did not show great economic value. ECOWAS financial capacity to sustain the program is doubtful.
2. Institutional sustainability and strengthening of capacities
Rating* Narrative assessment (indicative max length: 250 words)
3 The project provided opportunities to ECOWAS to set up the Peace Fund that has since attracted
several donors. The donors’ contribution can be reinforced and scaled up if an appropriate and timely
reporting system is put in place in order to respond to emerging discontent of some donors. The
project also built ECOWAS capacity in designing and implementing the Volunteers program. The
institution is likely to pursue the expansion of this program. Scaling it up, however, will require donor
contribution and there will be a need to have a resource mobilization plan.
14
3. Ownership and sustainability of partnerships
Rating* Narrative assessment (indicative max length: 250 words)
3 Through its Directorate of Youth Affairs, ECOWAS played an active role in designing and implementing
the Volunteers programs. ECOWAS has also increased over the year its direct involvement in technical
and political endorsement of the Peace and Citizenship Education. To a large extent, ECOWAS was a
key factor in developing and implementing these two major activities. The level of ownership was low
for refugee socioeconomic reintegration activities. Site selection for construction of community
facilities was done in collaboration with local authorities and direct beneficiaries. Clearing of a few of
the sites for construction work was carried out by communities and security was provided during and
after the construction in some areas as part of their contribution, which is a mark of ownership.
4. Environmental and social sustainability
Rating* Narrative assessment (indicative max length: 250 words)
3 The project had limited negative impact on the environment. The project, however, took measures to reduce the effects of soil disturbances during the construction of the community facilities and local accessible materials as well as local community labour was utilised in the construction work.
5. Lessons learned related to sustainability
Key issues (max 5, add rows as needed) Lessons learned Target audience
1. Ownership & Capacity The use of United Nations specialised agencies such as UNESCO and UNHCR and the use of the ECOWAS Secretariat immensely contributed to the successful implementation of the project. The UN Agencies also sub contracted Local Non-Governmental Organisations as was the case in Sierra Leone, or specialised Government Agencies as was the case in Liberia. All reflection, design and testing of Education for Peace curriculum were fully delegated to participating countries national curriculum development institutions. This enhanced the feeling of ownership of the project and was a means of building the capacity of the implementing partners.
ECOWAS /ADB
2. Community Involvement The beneficiaries were extensively involved in the implementation of the project. For example, in the construction of the shelters and other community facilities, they provided local materials and labour, and also established community based mechanisms for the maintenance of the completed facilities.
ECOWAS/ADB/member countries
3. Engagement with Local Authorities
The project also extensively engaged and sought the approval of the local authorities in the implementation of some components. For example, the local authorities, such as community leaders, were consulted for the different interventions.
ECOWAS/ADB
15
III Performance of stakeholders
1. Bank performance
Rating* Narrative assessment by the Borrower on the Bank’s performance, as well as any other aspects of the project (both quantitative and qualitative). See guidance note on issues to cover. (indicative max length: 250 words)
3 The Bank played a significant role in taking necessary action to ensure the effective execution of the project. It provided leadership for changing the institutional settings and prioritization of activities to be delivered. To make up for the ECOWAS’s PIU weakness, the bank ensured a constant monitoring of implementing partners activities by organizing skills mix supervision and coaching from the field office (Abuja). On average, 2 supervision missions were undertaken annually and mission recommendations were adequately followed up. In addition to independent audit, the Bank also conducted audits on the project, recommendations of which assisted in project performance improvement. The Bank's performance is therefore commendable and satisfactory. The Bank assisted in fast tracking implementation by rendering routine technical support to the PIU especially on procurement & disbursement matters.
Comments to be inserted by the Bank on its own performance (both quantitative and qualitative). See guidance note on issues to cover. (indicative max length: 250 words)
The Bank at onset of implementation tried to ensure that the PIU had a good understanding of the project concept and implementation mechanism. This was made possible by the launch mission which was quite exhaustive and involved people with strong implementation experience. At implementation, the Bank conducted an average of 2 supervision missions per year with good skills mix (social sector specialists, procurement & financial specialists and architects) particularly to follow-up on the implementation of the civil works such as construction of shelters, wells and other community infrastructure. Due to the low performance of the ECOWAS team, the Bank took several initiatives (training ECOWAS PIU, constant monitoring of the project implementation, taking active part in preparing protocols to be signed with UN institutions and hired a long term consultant to assist the PIU).
Key issues (related to Bank performance, max 5, add rows as needed) Lessons learned
1. Too many and diversified activities while committed resources were limited.
1. Prioritizing key activities reduce problems in project implementation.
2. Institutional arrangement was unwieldy. 2. Assessing implementing partners’ ability to deliver is a precondition for success.
2. Borrower (ECOWAS) performance
Rating* Narrative assessment on the Borrower performance to be inserted by the Bank (both quantitative and qualitative, depending on available information). See guidance note.(indicative max length: 250 words)
1 The project has faced serious implementation challenges due to lack of implementation and reporting
capacity at ECOWAS following the resignation or departure of key staff during the most active phases
of the project execution. Despite efforts made by the Bank to facilitate the recruitment of staff for the
project, few actions were taken by the Commission to solve the staffing issues. Over the last 3 years,
none of the Bank requirements in project execution were fulfilled. For example, consolidated
procurement plan, quarterly progress reports and financial audits were rarely submitted to the Bank.
Consequently, the Bank did not approve the replenishment of the project special account in 2012 and
refused to grant any additional extension. The project was completed in June 2013.
16
Key issues (related to Borrower performance, max 5, add rows as needed) Lessons learned
1. Low level of involvement of some departments in activities implementation.
1. Integration of projects activities in ECOWAS work program.
2. Weaknesses and backlogs in compliance with bank projects execution requirement (reporting auditing, financial responsibilities).
2. Strict application of Bank rules in terms of sanctions could have created more responsiveness from the PIU and the Commission
3. Performance of other stakeholders (UNHCR, UNESCO UNV)
Rating* Narrative assessment on the performance of other stakeholders, including co-financiers, contractors and service providers. See guidance note on issues to cover.(indicative max length: 250 words)
3 Apart from the UNDP, which failed to provide the expected assistance despite the reception of the
first installment of the agreed amount, UNESCO, UNV and UNHCR ,which were hired to replace the
UNDP, performed their roles as expected.. It is worth noting that the financial contribution made by
UNV to the Volunteers Program may be seen as a good model of partnership for ECOWAS and the
Bank.
Key issues (related to performance of
other stakeholders, max 5, add rows as needed)
Lessons learned(max 5) Target audience (for
lessons learned)
Government involvement in satisfactory Peace Education curriculum design with limited funds
Using national institutions (Curriculum and programme department) as key players to prepare policy in Education is a cost effective approach.
States, ECOWAS ADB
IV Summary of key lessons learned and recommendations
1. Key lessons learned
Key issues (max 5, add rows as needed) Key lessons learned Target audience
Low level of participation of ECOWAS Member countries and beneficiaries in their overseeing functions over the UN specialized institutions in project implementation.
Independent technical audit carried out during the project implementation helped ensure the quality of achievement and also increased ECOWAS and countries ownership.
ADB/ECOWAS commission
member countries
PADEP took off only after the midterm review i.e. 4 years after the project signing.
Carrying out the midterm review of non performing projects at an earlier date is highly recommended.
ADB
2. Key recommendations (with particular emphasis on ensuring sustainability of project benefits)
Key issue (max 10, add rows as needed) Key recommendation Responsible Deadline
1. Need for follow-up support in provision of social services to reintegrated refugees in Liberia and Sierra Leone
In view of the fact that the UNHCR’s mandate to support the refugees is winding down and most of them have reintegrated in the host communities, it is important for the UNHCR to consider working with the refugees to identify development partners such as NGOs and Local Councils that will assist to provide the additional services and support required.
UNHCR,ECOWAS on-going
17
2. Recovery of resources paid to UNDP
ECOWAS has to take actions in accordance with the Protocol signed with the UNDP to recover USD680 000 received without fulfilment of its obligations.
PADEP 15 Feb 2018
3. Clear delineation of ECOWAS and Member states responsibility in social project implementation
The designation of the ECOWAS Commission for project implementation roles is not advisable in specific country contexts. Where the capacity exists, countries should lead the institutional arrangements and work with appropriate specialised partner organisations.
ADB, ECOWAS
V Overall PCR rating
Dimensions and criteria Rating*
DIMENSION A: RELEVANCE 3
Relevance of project development objective (II.A.1) 4
Relevance of project design (II.A.2) 2
DIMENSION B: EFFECTIVENESS 3
Development Objective (DO) (II.B.4) 3
DIMENSION C: EFFICIENCY 2
Timeliness (II.C.1) 2
Resource use efficiency (II.C.2) 2
Cost-benefit analysis (II.C.3) -
Implementation Progress (IP) (II.C.4) 2
DIMENSION D: SUSTAINABILITY 3
Financial sustainability (II.D.1) 2
Institutional sustainability and strengthening of capacities (II.D.2) 4
Ownership and sustainability of partnerships (II.D.3) 3
Environmental and social sustainability (II.D.4) 3
OVERALL PROJECT COMPLETION RATING 2.90
18
VI Acronyms and abbreviations
Acronym (add rows as needed) Full name
ADB African Development Bank
DWMA Delegated works management agency
EBID ECOWAS Bank for Investment and Development
ECOWAS
Economic Community of West African States
HCR
High Commission for Refugees
N.A
Not available
PADEP Peace and Development Project
UA ADB Group Unit of Account
UNDP United Nations Development Programme
UNESCO United Nations Educational, Scientific and Cultural Organization
UNV United Nations Volunteers
Required attachment: Updated Implementation Progress and Results Report (IPR) – the date should be the same as the PCR mission. The project was approved in 2004 and the IPR was not used
