Rehabilitation and Conservation of Karez Systems in the Northern Governorates of Iraq

Transcription

1 UNESCO Iraq Of ce Rehabilitation and Conservation of Karez Systems in the Northern Governorates of Iraq External Evaluation Report UNDG

2 Contents Introduction Evaluation schedule Main findings and conclusions Project Design Project Management External factors Karez rehabilitations Employment Generation Capacity-Building Cost-effectiveness Project Impacts Benefits Long-term sustainability Recommendations Project planning Budget International experts Karez rehabilitations Subcontracting Further work Cooperation with the Governments Training This Evaluation was Evaluated by Rhiannon McHugh

3 Forward Dear Reader, On behalf of the UNESCO Iraq Office, I am pleased to present the External Evaluation of Rehabilitation and Conservation of Karez Systems in the Northern Governorates of Iraq, which has been funded by the generous support of the European Union (EU) under the auspices of the Iraq Trust (ITF) as administered by the Development Group (UNDG). Most of the objectives were achieved and brought a real added value to Iraqis through a number of activities; however the evaluation showed that some of the achievements would have been better succeeded with different approaches (methodologies). The project objectivity was to link the delivery of water through rehabilitation and conservation of traditional karez water system and the protection of cultural heritage and the importance of karez for water resources management. It is our intent that the work of the organization builds on the lessons learned from the evaluation process in order to improve project management and the outputs of our interventions in Iraq. I would like to take this opportunity to acknowledge the hard work and commitment of the external evaluators in carrying out this exercise, especially given the logistical constraints of data collection in Iraq. UNESCO Iraq extends its thanks for the support and collaboration of the Assistance Mission in Iraq (UNAMI), sister agencies and programmes. A very special thanks goes to our Iraqi partners, especially the Kurdistan Regional Government Ministry of Agriculture and Water Resources (KRG MOAWR) who UNESCO collaborated with on training and implementation; UNESCO s International Centre for Qanats and Historical Hydraulic Structures (ICQHS) in Iran which delivered training to MoAWR staff; Galiawa Company and UNESCO in cooperation with the International Organization for Migration (IOM) to rehabilitate 20 karez in Erbil and Sulimaniyah Governorates in northern Iraq. Finally, I would like to pay special homage to our Iraqi colleagues working in the field who daily subject their very selves to the risk of injury or worse. It must be remembered that many of the activities carried out during the life of the project were done so under security conditions which often posed considerable difficulties, and it is a tribute to the dedication of all involved that the project was able to move forward to completion despite this. The great people of Iraq, who have suffered so much, deserve no less. I thank you for your consideration. 1

4 Locals Filling water from a repaired karez in rural areas of kurdistan- Sebastian Meyer/UNESCO Iraq 2

5 Introduction It is standard UNESCO practice that major project interventions are evaluated upon completion. The overall purpose of the Evaluation was to evaluate the development effectiveness and project level operational effectiveness of the project through examination of the efficiency, effectiveness, relevance, impact and sustainability of the project. The Evaluation will also provide UNESCO Iraq Office with recommendations to improve general implementation modalities and future similar initiatives it may undertake to reconstruct karez in Iraq. This Report will be circulated to the principal donor and relevant sections at UNESCO. It will be published online at UNESCO Iraq Office and UN Development Group Iraq Trust Fund (UNDG ITF) websites. The project was implemented by UNESCO Iraq Office between April 2007 and March 2011 with funding granted in late-2006 by European Union (EU) through Development Group Iraq Trust Fund (UNDG ITF), a multi-donor trust fund established in 2004 to channel resources to reconstruct Iraq. The project was originally scheduled to operate from 2 April 2007 until 31 March 2008 with a total budget of USD$1,600,628 provided by EU through the UNDG ITF. It was extended five times and continued for an additional 36 months or three years, closing on 31 March The overall aim of the project was to improve the supply of drinking water and water for irrigation in rural areas of the Northern Governorates of Iraq through rehabilitation and conservation of traditional Karez water systems. Karez are man-made underground aqueducts used to provide water supplies to human settlements for irrigation and household use. The objectives of the project were to rehabilitate and conserve karez water systems; build 3

6 technical capacity in long-term rehabilitation and maintenance of the systems and network with institutions in the region to share information and experience on karez. The project sought to achieve the objectives through a number of activities. A main activity was rehabilitating 20 karez in Erbil and Sulimaniyah Governorates in northern Iraq. This was to be accompanied with short-term skilled and unskilled employment generation and capacity building for community beneficiaries and officials in the counterpart Government Ministry Kurdistan Regional Government (KRG), Ministry of Agriculture and Water Resources (MoAWR) on karez maintenance, renovation, conservation and management. The project sought to strengthen the rehabilitations over the long-term by putting in place operating policies and procedures for managing them. This was accompanied with work to develop a plan for karez rehabilitation and long-term conservation in Iraq and build a network with regional and international karez experts to exchange information and expertise. The project was the first of its type to be implemented in Iraq as no international organization had previously conducted work on karez in Iraq. This and the implementation context of northern Iraq created difficulties during Infiltration Karez of Northen Iraq project implementation. This is reflected in the five project extensions and late completion date. However, the project was completed within the budget and according to the original objectives. Some outputs and activities were adjusted as a result of new information generated during Karez Administrative Boundary the project but this did not substantially International Boundary Miles change the nature of the project or its Location of infiltration karez in northen Iraq identified in the project objectives. 4

7 Evaluation schedule The Evaluation was conducted between mid-december 2010 and May The Inception Phase took place between mid-december 2010 and mid-january The Field Phase started after then in northern Iraq during February and March The Synthesis Phase was conducted in Amman in mid-2011 and the Final Evaluation Report was prepared. Main findings and conclusions Project Design : The intervention logic of the project was on the whole sound but there were deficiencies in project design. These stemmed from UNESCO s lack of knowledge of the location and nature of karez in northern Iraq and the implementation capacity of the primary implementation partner, MoAWR. This led to delays, five project extensions and completion 36 months after the original end date which was high compared to other UNDG-ITF funded projects. The deficiencies in project design were not addressed during the UNDG ITF project approval process. This suggests the process was not robust in all cases and in a rush for UN Organizations to secure funding and not all projects were well scrutinised. 5 Locals filling water out of a repaired karez- UNESCO Iraq

8 Diagram of a karez in cross section and aerial view Project Management : This improved considerably after the first 18 months of the project and was sound overall from then (early 2009) until conclusion of the project. A number of difficulties arose in project implementation due to deficiencies in project design, as this was the first time such a karez project was implemented in Iraq and the implementation context of Northern Iraq. After the first 18 months, UNESCO sought alternative implementation solutions to overcome difficulties demonstrating sound judgment on a number of issues. Overall one project objective was achieved fully, one substantially and one was not. Three out of eight project outputs were achieved very well, two substantially, one partially and two were not achieved due to factors within and outside UNESCOs control. 6

9 External factors : A number of external factors impacted on project implementation including: drought in northern Iraq; flooding; the absence of Kurdistan Regional Government (KRG), Minister for Water Resources for a number of months and Department of Safety and Security (UNDSS) security regulations for international UN staff members working in Iraq. The factors except the last were unforeseen and could not have been mitigated against. UNESCO responded well to problems when they occurred by adopting alternative implementation methods so they did not substantially affect implementation of the project. Karez rehabilitations : The target of 20 karez rehabilitations was achieved very well after a delay of 29 months. The first rehabilitation started two years and five months after the project started following a scientific survey of Karez in northern Iraq conducted 27 months after the project started. This enabled karez to be selected for rehabilitation. UNESCO initially selected KRG Ministry of Agriculture and Water Resources (MoAWR) as the main implementation partner to conduct the rehabilitations which was not feasible as it lacked the capacity to do this. UNESCO adjusted the implementation strategy and brought in karez rehabilitation experts to conduct the first rehabilitation. It subcontracted four to a local construction company and fifteen to the International Organization for Migration (IOM) where it brought in an international karez 7 Maintaining the tunnel of Karez - Sebastian Meyer/UNESCO Iraq

10 rehabilitation expert to conduct and manage them. Following initial delays the rehabilitations were completed to a high standard. The utilization of karez rehabilitation experts from the International Centre for Qanats and Historical Hydraulic Structures (ICQHS) and Azerbaijan, and subcontracting the rehabilitations was central to this. The rehabilitations increased water quantity and quality from the karez. For example, water discharge increased 61% at karez rehabilitated by IOM and increases were evidenced at the 4 Erbil rehabilitations. Employment Generation : Short-term employment was generated for community members on the rehabilitations estimated at around 111 community members. This was less than the target of 200 because of factors outside UNESCO s control. Employment levels varied at each rehabilitation but the levels achieved were appropriate to the rehabilitations and the availability and skills of community members. The original project envisaged creation of short-term employment for MoAWR staff on the rehabilitations. This was not comprehensively achieved due to factors outside UNESCO s control. It should have been termed practical experience and included in training for MoAWR. Additional local employment was generated through 19 rehabilitations being subcontracted to an Iraqi construction company, IOM and a local karez rehabilitation company. 8 Karez Under maintenance - UNESCO Iraq

11 Capacity-Building : The technical capacity of community members in long-term karez rehabilitation and maintenance was not built well. Most community members did not receive training on how to operate and maintain the karez or awareness raising on proper use of the system. This should have delivered by the subcontractors but was only delivered for one community. Some community members gained experience of this through employment on the rehabilitations but not all communities had members employed and this did not include formal training. Operating policies and procedures for managing the rehabilitated karez were also not in place and only guidelines for this were developed in the Karez Manual. The technical capacity of MoAWR staff was enhanced through two comprehensive training workshops, a study tour and guidelines for karez rehabilitation in the Karez Manual. These were delivered very well utilizing international karez experts that worked on the project although practical training was not comprehensively provided for MoAWR. UNESCO developed a comprehensive karez rehabilitation and conservation plan for further karez rehabilitation and conservation in Iraq. This consisted of a Karez Survey, Manual and Concept Note for a second stage project, all of which were Water Usage in Iraq elaborated to a high standard. Information and experience was shared in the region on karez rehabilitation, conservation and management through the connection of regional and international karez experts with MoAWR staff and the 2.77% 3.78% 0.4% Agriculture Marshland maintenance 8.4% Evaporation and other losses 11% 40.5 % Civil use Industry power generation 9

12 facilitation of MoAWR participating in the existing regional and international karez networks. Although the target number to be connected was not achieved, the output was achieved well and to an appropriate level. Cost-effectiveness : The project was overall cost-effective as three out of eight outputs were achieved well and three substantially or partially achieved. Two outputs were not achieved and 25.67% of the budget went to personnel and staff costs due to five project extensions. Nearly 14% of the budget was spent on equipment for MoAWR as part of an initial capacitybuilding strategy but it was ultimately not used due to the low capacity of MoAWR. The budget was revised four times and all budget lines were reallocated and revised by 17% - 237%. Project Impacts : The project had a wide range of intended and unintended direct and indirect positive impacts on the target clientele. Short-term employment of community members had direct positive impacts of income generation and increasing community members rehabilitation skills. The rehabilitations indirectly improved living conditions in most communities through increased water quantity and quality for domestic and/or agricultural and/or animal use, noting that karez had no water for a number of years prior to the project. This increased most communities use of water from the karez. The amount of water produced was not sufficient for all communities water needs but it led a number to plan to expand agricultural production for personal and/or business purposes. Training was provided to some communities particularly by IOM which directly increased community members skills to manage rehabilitations and in other work in the community. 10

13 UNESCO Conducting Hydro-Geo Survey - UNESCO Iraq The rehabilitations may decrease the likelihood of community members leaving due to water scarcity and promote/ enable those who have left to return. The rehabilitations also indirectly raised awareness of karez in nearby communities. The project directly increased the capacities of MoAWR in karez rehabilitation and maintenance. The Karez Survey gave MoAWR in-depth information on the location and nature of karez in northern Iraq which should enable it to conduct future work. There was evidence that the project indirectly increased MoAWRs support of karez for rural water management and it indirectly raised awareness of karez cultural heritage. The Karez Survey discovered population movements related to karez decline that did not exist in other karez countries and led to work on environment-related displacement in Iraq. The subcontracting of 19 rehabilitations also built local karez rehabilitation skills. The project had a small number of unintended negative impacts including the creation of tensions between community members over the selection of karez to be rehabilitated and 11

14 individuals that received livelihoods support from IOM. Lack of proper implementation of, or community members adherence to safety procedures when working on the karez caused a small number of injuries. However, these did not substantially decrease the overall positive impacts of the project and most beneficiaries expressed positive views about the project. Benefits : The amount of benefits delivered was overall good as the project activities had a number of positive direct and indirect impacts on the main beneficiaries. However, it was not the right amount as further work could have been delivered especially related to the rehabilitations for little funding that would have increased the amount of benefits to the main beneficiaries. This included: further work on the karez to provide more water, improve water storage, general maintenance and irrigation channels to agricultural lands; further training on karez rehabilitation and maintenance for community members; agricultural and livelihoods assistance; and greater shortterm employment for community members. Further benefits could have been delivered for MoAWR through: increased and more indepth training including practical experience of karez rehabilitation and closer cooperation and joint work between UNESCO and MoAWR. Locals filling water out of a repaired karez- UNESCO Iraq Long-term sustainability : A number of factors may affect the long-term sustainability of the project. These include the non- or partial delivery of a number of outputs, drought and 12

15 environmental risks, migration and political changes. A number of factors could have been addressed in the project while others were outside UNESCO s control. It is too early to say for certain at this stage what impact a number of factors will have on the project s long-term sustainability as the Evaluation was conducted so close to the project s close. Fresh karez water for Agriculture- Sebastian Meyer/UNESCO Iraq Recommendations Project planning : UNESCO should conduct a full situational assessment and survey of karez when planning similar projects outside the northern Governorates. If work is conducted in the Disputed Internal Boundaries (DIBs) areas of Iraq, conflict and risk assessments should be conducted and full support secured from the Governments, communities and stakeholders. Assessments should be made of the implementation capacity and commitment of implementation partners before they are selected and prior to the delivery of equipment to them. UNESCO should ensure robust procedures are in place for documentation and handover of projects when there is a change in Project Manager (PM) with provision of training and information for UNESCO staff if required. When strategies for project implementation do not work they should be adjusted as soon as possible to prevent project delays. Budget : A higher proportion of the budget should go to activities and outputs that have 13

16 greatest impact on target beneficiaries to ensure the maximum benefits are delivered. In future projects funding should be targeted on karez rehabilitations, training and the preservation of karez cultural heritage. UNESCO should improve monitoring of subcontracted work to ensure required outputs are delivered. International experts : Future similar projects should continue to involve regional and international karez experts as the Iraqi Using water from a repaired karez- Sebastian Meyer /UNESCO Iraq counterparts benefited from their experience and expertise and they proved vital to the delivery of a number of outputs. Karez rehabilitations : Further time should be allocated for the selection of karez to be rehabilitated. This will enable karez to be selected of different difficulty, size and nature and ones that will have widest impact on target communities. Communities and the Governments should be involved in the selection to minimize tensions and misunderstandings, especially if work is conducted in Disputed Internal Boundaries (area of Iraq) (DIBs). Environmental considerations should also be considered and the commitment, support and active participation of the communities in the project. Subcontracting : Where UNESCO has little organizational infrastructure on the ground in Iraq future, rehabilitations can be subcontracted to Organizations that have adequate organizational 14

17 support and less security restrictions than (UN). Future rehabilitations should employ international karez experts to work outside the UN security system on the ground. If rehabilitations are subcontracted the Organizations must have karez expertise, experience conducting rehabilitations to high standard and low organizational costs. Future rehabilitations should continue to use traditional karez rehabilitation techniques. UNESCO should explore ways to combine traditional and new sustainable rehabilitation techniques. Further work : A range of work related to the rehabilitations should be incorporated in future projects. Primary among these are methods to build community ownership of and capacities to manage the work and increased employment generation for communities. Cooperation with the Governments : UNESCO should ensure close cooperation with the Governments and conduct additional work to strengthen karez cultural heritage in Iraq. This will increase the long-term sustainability of future projects. UNESCO should increase its and the project donors visibility, especially where outputs are subcontracted. Training : Further training should be provided for communities and the Governments on karez rehabilitation, maintenance and management including practical training. Operating policies and procedures for managing rehabilitated karez should be developed and put in place and the establishment of an Iraqi Centre for Karez should be considered to institutionalize karez cultural heritage, increase information and provide training. 15 Easy access for locals to karez water- UNESCO Iraq

18 16 Detail of a Banner from the Sumerian Period - UNESCO 1971 / Bonsirven - Fontana, M.L.

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