Country Level Evaluation JAMAICA. Discussion Seminar Kingston, June 19 th 2012

Transcription

1 Annex 10: PowerPoint Presentation 1 Country Level Evaluation JAMAICA Discussion Seminar Kingston, June 19 th 2012 Level Evaluation, Jamaica Discussion Seminar 1 September 2012 Present Overview for the 9 Evaluation Questions Principal and Complementary Conclusions Recommendations Discuss, conclusions and recommendations Feedback Questions and comments are encouraged! Page 267

2 Accountability Purpose Provide external co-operation services with an independent assessment of the Commission s past and current cooperation relations with Jamaica; Identify Key lessons in order to improve the current and future strategies and programmes of the Commission. Results and Impact Of the interventions against a background of greater concentration of external cooperation and increasing emphasis on result-oriented approaches. 1 September EDF Allocations for Jamaica Composition of the allocation of the 9 th and 10 th EDF by sector in percentage Page 268

3 1 September Page 269

4 Scope of the Evaluation EC Documents (Country Strategy Paper, etc.) Governmental Documents Activity Analysis of Donors Academic Literature Other sources... Analysis and reconstruction of EC cooperation strategy Analysis of the context of EC cooperation Identification of Critical Aspects Evaluation Criteria 9 Evaluation Questions Evaluation Questions EQ 1 EQ 2 EQ 3 EQ 4 EQ 5 EQ 6 EQ 7 EQ 8 EQ 9 To what extent is EC cooperation consistent with the needs of the population and with policy priorities of the GoJ? To what extent and how has EC cooperation ensured an appropriate mix of instruments (geographic and thematic) and aid delivery methods to achieve its objectives? To what extent has the provision of budget support promoted macro-economic stability and public finance management? Has EC support for CSO deepened their capacity and effectiveness to participate in development and in strengthening democratic processes in Jamaica? Has EC support to the transport sector improved road infrastructure and strengthened management & sustainability? To what extent is the EC support to the Security and Justice sector enabling the GoJ to address the challenge of reducing crime and violence in Jamaica? To what extent has EC assistance contributed to make Jamaican agriculture more competitive and diversified, thus stabilising livelihoods in rural areas and increasing rural sector resilience to external shocks? To what extent have the EC interventions supported Jamaica s competitive integration into regional and international markets? To what extent has EC support strengthened and facilitated the use of business support services by private enterprises and contributed to their competitiveness and employment creation while taking account of cross-cutting issues? 1 September 2012 Page 270

5 Interface between Evaluation Questions Evaluation Criteria and Issues Criteria Question EQ1 Needs EQ2 Aid Instruments EQ3 Budget Support & Macro Stability EQ4 CSO/ NSA EQ5 Transport EQ6 Governance, Security &Justice EQ7 Agric. & Rural Dev. EQ8 Trade Relevance X X X X Effectiveness X X X X X X Efficiency X X Impact X X X X X Sustainability X X X Coherence X X X Value Added X X X 3Cs X X X X EQ9 Private Sector 1 September Answers: Evaluation Questions 1 September Page 271

6 EQ 1 To what extent is EC cooperation consistent with the needs of the population and with policy priorities of the GoJ? 1 September EQ EC Cooperation took sufficient account of the needs of the population of Jamaica The EC did take sufficient account of the needs of the population of the country. 1.2 EC Cooperation objectives have been in line with those of the GoJ s policy and strategies and are responsive to their changes The EC has constantly evolved to be aligned to GoJ policies and priorities. 1 September Page 272

7 EQ 1 ± 1.3 EC support has reflected the comparative advantages of the EC and takes adequate account of other donors comparative advantages in terms of coordination and complementarity. 1.4 EC support to Jamaica has been coherent with overall EU policy direction, in key areas such as human rights, security, immigration and regional stability. There have been many successful efforts at taking other donors strategies and activities into account but the final selection of interventions and programme design is not fundamentally based on a detailed analysis of comparative advantage. The EC support to Jamaica has reflected overall EU policies and direction, including the policies referring to HR. 1 September 2012 EQ 1 Judgement Criteria 1.5 The EC s programming has taken cross-cutting needs into account (gender, environment and human rights). The JC statement is that the EC has taken cross-cutting issues into account in its programming in direct (e.g. distinct interventions) and in indirect (e.g. as a mainstreaming strategy) manners. 1 September Page 273

8 EQ 1: Answer EC cooperation during the evaluation period has been consistent with the needs of the population and with policy priorities and strategies of the GoJ. The 9 th and 10 th EDF CSPs aligned and adapted to the results of various poverty assessments and programming documents such as the NPEP and the MTF which evolved over the valuation period. Interventions over the evaluation period have been coherent with the entire set of EC policies and comparative advantages in comparison to those of other donors were also analysed. ± Cross-cutting issues are generally addressed but quite unevenly in the various programmes and in the 10 th EDF presents a more holistic approach. 1 September EQ 2 To what extent and how has EC cooperation ensured an appropriate mix of instruments (geographic and thematic) and aid delivery methods to achieve its objectives? 1 September Page 274

9 EQ2 2.1 Options for aid modalities and the synergies between them have been carefully assessed, taking account of established criteria. 2.2 Emerging issues were incorporated quickly and effectively into EC programming and policy dialogue. Options for aid modalities and the synergies between them have been carefully assessed using established criteria. Emerging issues were incorporated partly as a result of policy dialogue. 1 September EQ Chosen instruments and approaches and their combinations were defined to suit partner s capacity. In most cases the instruments and approaches were suited to the GoJ partners capability. 2.4 The aid modalities chosen were appropriate for obtaining the expected output. The selection of aid modalities was clearly done in a manner that maximised the likelihood of achieving expected outputs. 1 September Page 275

10 EQ 2: Answer Overall the progressive migration to budget support (both GBS and SBS), with technical assistance being provided to meet particular requirements, has worked well. The thematic mix has also shown a certain progression as to incorporate emerging issues quickly, as it is the case for the Security and Justice sector. The use of budget support was innovative in comparison to the regional situation and facilitated engaging into policy dialogue. ± Programmes were generally appropriate to reach their GoJ s capacity. DRGEP has been extremely effective, PSDP underestimated the transport sector s process-related problems. 1 September EQ 3 To what extent has EC provision of budget support promoted macroeconomic stability and public finance management? 1 September Page 276

11 EQ 3 ± 3.1 The EC budget support has played a positive role in strengthening the political and legislative framework within which macroeconomic issues are addressed. 3.2 Support by the EC has contributed to improvements in public finance management by the GoJ over the evaluation period. The EC provided a considerable level of support to strengthen the political and legislative framework and has been recognised as a leader in macro-economic reform in the country. The EC contributed to improving PFM but that positive effects of onthe-ground PFM were not yet truly measurable at the end of the evaluation period. There is evidence of rather poor compliance with both budget planning and expenditure management. 1 September 2012 EQ The provision of EC support to build up local capacity in economic management has strengthened domestic institutions concerned with macro-economic management. The EC provided support for capacity development with notable successes, but this does not appear to be a key focus of the strategy or the interventions at either the institutional or individual levels. 3.4 EC support has provided traction in facilitating the Medium Term Socio- Economic Policy Framework (MTF). The EC provided strategic support to underpin the MTF, and third party agencies such as the IMF now use the MTF as a reference document for their own purposes. 1 September Page 277

12 EQ 3 ± 3.5 EC supported reforms have strengthened the resilience of the Jamaican authorities to addressing international shocks (such as the 2008 international financial crisis). 3.6 The release of budget support has been timely. The EC has contributed to enabling the GoJ to address key stability issues that might arise from international financial shocks. The release of budget support payments slipped, but the MoFPS senior staff noted that it was not possible to identify specific consequences of this slippage. 1 September EQ Budget support has contributed to a framework of policy dialogue, technical assistance and capacity building that assisted GoJ s budgetary management within its tight fiscal limits. The EC s budget support has helped to establish a framework of policy dialogue and capacity building that has been useful to the GoJ in its effort to deal with tight fiscal limits. 1 September Page 278

13 EQ 3: Answer The provision of budget support has contributed to macro-economic stability and better PFM performance. EC support was important to build capacity in economic management and successfully underpinned the MTF. Considering the adverse external macro-economic environment, the EC has taken a coherent approach and was responsive in addressing the needs of the GoJ. X Poor expenditure management over the evaluation period and the incidence of corruption are still concerning factors. 1 September EQ 4 Has EC support for CSO deepened their capacity and effectiveness to participate in development and in strengthening the democratic processes? 1 September Page 279

14 EQ Capacity of pluralistic CSO enhanced as a consequence of the support of the EC. The EC has contributed to an improvement in the capacity of CSOs to engage in national-level issues. 4.2 CSOs have strengthened control & monitoring from the bottom, through the use of advocacy, lobbying and acting as watch dogs within the relevant cooperation sector. Jamaican CSOs have been active in monitoring key policy areas and in providing advocacy and watchdog roles. The EC has supported these activities and have helped to strengthen the CSOs. 1 September EQ EC cooperation has enhanced civil society contribution to democratic participation and the respect of human rights. The EC has consistently contributed (sometimes heavily in terms of financial support) to the efforts of the CSOs involved in democracy and human rights dossiers. 1 September Page 280

15 EQ 4: Answer The EC s initiatives deepened the capacity and effectiveness of CSOs to participate in strengthening democratic processes in Jamaica. CSO s were involved in consultative processes dealing with National-level developmental issues and influencing the EC country-strategy. Training and capacity building benefitted CSOs in advocacy, monitoring and lobbying activities while the GoJ does not constantly calls upon CSOs participation. ± Support to communities and the SDC has not always led to satisfactory results. 1 September EQ 5 Has EC support to the transport sector improved road infrastructure and strengthened management and sustainability? 1 September Page 281

16 EQ The elements of support (capacity building, investments, funding for maintenance) were complementary and contributed to a positive sector dialogue between EC and sector stakeholders. A fairly high degree of complementarity was noted in the sector in terms of capacity building and infrastructure construction. 1 September EQ The Northern Coastal Highway Improvement Project fulfilled its economic objectives. 5.3 Interventions funded by the EC have incorporated satisfactory environmental, social, gender and safety aspects. The NCHIP has not had the economic impact that was planned in terms of tourism investment. Construction and other projects funded by the EC incorporated significant environmental and safety aspects; gender issues do not seem to have been very successfully tackled. 1 September Page 282

17 EQ Jamaica is protecting its road network to ensure that it achieves its full economic potential and the EC took sufficient account of the need to protect its past investments when exiting from the sector. The GoJ has not protected its investment during the entire period covered by the evaluation. The EC does not seem to have a clear exit strategy for the sector. 1 September EQ 5: Answer The EC support has improved road infrastructure in some locations which contributed to economic growth, strengthening sector management and sustainability. X A maintenance deficit exists for much of the evaluation period and relevant programmes do not always follow closely the policy documents. X Sector management issues are serious, evaluation and monitoring of public investment projects are not adequate. ± Environmental needs have been considered. HIV/AIDS has also been seriously treated while gender has not been systematically approached. 1 September Page 283

18 EQ 6 To what extent is the EC support to the Security and Justice sector enabling the GoJ to address the challenge of reducing crime and violence in Jamaica? 1 September EQ The approach to public security and justice responded to the root causes of the problem. The EC s approach has clearly been based on research and organisational structures that reflect the root cause of the problem. 6.2 The choice to use SBS to support the sector strategy is appropriate and responded to best practices. The choice of SBS to support the sector strategy was appropriate under the conditions at the time and the strategy reflects best practice. 1 September Page 284

19 EQ The set of reforms supported by the SBS programme contributes to reducing crime and violence. 6.4 The government reforms supported by the SBS have contributed to increase the efficacy of Judiciary. The EC is contributing to a very broad set of initiatives and reforms that are being successful at reducing the incidence of reported crime and violence. The EC has contributed to the overall improvement of a complex justice. Its contributions, through SBS particularly but also in policy dialogue, are welcomed by the GoJ who in turn finds it hard to comply with the established targets. 1 September EQ 6: Answer Support to the Security and Justice sector is highly relevant as it deals with crucial issues for the GoJ and the Jamaican people. SSRP is effective is enhancing the capacity of the authorities to tackle a raising insecurity and supported institutional strengthening measures. Results achieved by SBS are naturally hard to quantify but key crime indicators have recently decreased and GoJ has engaged in policy dialogue with the EUD. The strategy was coherent to international standards, EC policy documents and was developed involving NSA. Constraints exist in carrying out policy dialogue effectively. 1 September Page 285

20 EQ 7 To what extent has EC assistance contributed to make Jamaican agriculture more competitive and diversified, thus stabilising livelihoods in rural areas and increasing rural sector resilience to external shocks? 1 September ± 7.1 The EC cooperation interventions have fostered efficiency and competitiveness of the domestic banana and sugar industries. 7.2 The EU cooperation interventions have stimulated sustainable economic diversification of rural areas, especially in parishes where banana and sugar are traditionally grown. EQ 7 Even with the support of the EC, the overall state of both the banana and the sugar industries has deteriorated significantly over the course of the evaluation period, as competitiveness and efficiency targets are not being attained overall. The EC has supported many subinitiatives that have helped to stimulate diversification in rural areas but there are important roadblocks, especially for bananas. 1 September Page 286

21 EQ The EC cooperation interventions have effectively contributed to cushion economic and social downturns caused by external shocks and domestic reforms in rural target areas. The economic and social impacts have been cushioned in an important way through EC-sponsored interventions. 1 September EQ The EC cooperation interventions are stimulating institutional reforms strategic for the development of the banana and sugar industries. Fundamental reforms are being worked on with the support of ECsupported initiatives, but that progress is slow in both industries. 1 September Page 287

22 EQ 7: Answer EC support has enhanced effectiveness and efficiency in both the banana and the sugar sector. Gender-related issues seem to have been impacted positively. ± Sustainability of the sugar & banana industries, the diversification process as well as the positive trend for imports substitution remain uncertain. ± The macro-economic and social impact of the programmes has been positive but the effectiveness in reducing poverty remains unclear. 1 September EQ 8 To what extent have the EC interventions supported Jamaica s competitive integration into regional and international markets? 1 September Page 288

23 EQ 8 ± 8.1 The EC interventions, NIP and others, helped Jamaica develop diversification towards internationally competitive sectors. 8.2 The EC interventions at regional and national level reinforced significantly Jamaica s capacity to negotiate and will contribute to operationalize the CARIFORUM-EU EPA. Modest impact on diversification toward international markets due internal and external constraints. Effective contribution to the reinforcement of few institutions dealing with Jamaican exports. Training had a limited impact, reflecting the involvement of a limited number of participants. 1 September EQ 8: Answer The EC interventions made little contribution in terms of diversification towards internationally competitive sectors. They did not result in a measurable improvement of the business environment that could make Jamaican exports more competitive. Limited impact of the interventions aimed at capacity building on EPA-related issues. 1 September Page 289

24 EQ 9 To what extent has EC support strengthened and facilitated the use of business support services by private enterprises and contributed to their competitiveness and employment creation, whilst taking account of crosscutting issues? 1 September z 9.1 EC support to Jamaican private operators has helped them to apply new knowhow/technology, thereby decreasing production and operating costs. EQ 9 While the EC contribution provided a great deal of training and grants for specific purposes relating to technology and know-how, there is no data base or research can even remotely identify the extent to which the EC has helped to bring down production and operating costs. 9.2 The EC support to private enterprises increased growth and created new employment opportunities thus contributing to alleviate poverty. EC interventions encouraged the growth of private sector entities at the SME level particularly through creation of new products and services in existing firms. 1 September Page 290

25 EQ 9 ± 9.3 The EC support to private enterprises targeted sectors and market clusters prioritised based on their comparative advantage. EC funding was primarily directed at key industrial and services sectors and clusters. 1 September EQ EC cooperation instruments supporting private sector growth addressed cross-cutting issues such as promoting women-led businesses, safer working conditions, environmental protection and better governance practices. EC assistance did not specifically target cross-cutting results or outcomes in its private-sectorrelated instruments though some emerged indirectly as a result of the need for private sector operators to be better organised in order to have access to the necessary grant funding. 1 September Page 291

26 EQ 9: Answer EC interventions, by targeting the SME sector, made positive contributions to improving performance particularly through: Increased access to improved business development services Application of new technology and knowhow Better access to finance Increased investments in restructuring activities. Support was provided through training and targeted grants where the information technology and quality management fields were particularly encouraged. 1 September Principal Conclusions PC 1 The effectiveness of EC support has improved over the evaluation period as a consequence of focusing on high priority needs. PC 3 Macro-economic and PFM risks remain considerable in fragile circumstances. PC 2 The efficiency and effectiveness of support provided by the EC has increased due to the use of budget support as the preferred aid instrument. PC4 The impact and longer term sustainability of EC support is difficult to quantify. 1 September Page 292

27 Complementary Conclusions C1 The quality of dialogue has been good, especially around macro-economic issues. C2 EC support to Jamaica has been internally coherent and based on well considered CSPs. C3 The use of process indicators for budget support has worked well, and helped to catalyse actions by Government stakeholders. C4 The EUD has used TA effectively to support budget support operations, mentoring and ensuring that key stakeholders understand what is required. Complimentary Conclusions C5 The efficiency of the EU support to Jamaica increased during the evaluation period. C6 Support to civil society programmes is spread over too many communities at present. C7 Continuity is essential if rural diversification efforts are to succeed in the longer term. C8 The EC has managed some cross-cutting issues (environment; HIV/AIDS) more effectively than others (gender). C9 Visibility has been prioritized in recent years: the EUD has played a prominent role in raising visibility of the EC support. Page 293

28 Recommendations Recommendation 1 Priority: HIGH The broad approach in terms of focal sectors and aid instruments is appropriate and should be continued. Identified sectors are appropriate to the needs of Jamaica, consistent with Paris Declaration objectives, and the use of budget support is helping to create fiscal space for the GoJ. The mix of General and Sector Budget support is working well. It is achieving a positive policy dialogue in key areas including macro-economic stability and support for the crucial security and justice sector. Page 294

29 Recommendation 2 Priority: HIGH The EU should refine its instruments to facilitate working more effectively in complex, processorientated areas such as i) macro-economic management and ii) security & justice. The EC s general and sector budget support instruments do not have sufficient flexibility with their formal three year structure. This has been a problem in Jamaica in terms of GBS, where the decision to move to accrual accounting was reversed, and SBS, where security and justice sector needs have evolved during programme implementation. Specific operational recommendations: Consider adapting the latest World Bank policy support instruments to meet EU needs. Recommendation 3 Priority: HIGH Support to the security & justice sectors through the SSRP should continue and consolidated. Future planning should strengthen synergies between JSIF, MNS, CSJP, and SDC by detailing expected responsibilities, expectations and expected outputs added by each organisation in the design of the programme. Untargeted budget support places considerable onus on effective budget by Government. Page 295

30 Recommendation 4 Priority: Medium Support for volatile communities should be more effectively targeted, commensurate with capacity and resources. Greater concentration of PRP initiatives on fewer communities to enhance co-ordination. JSIF currently operates in 69 communities whilst CSJP operates in 39. The broadening of PRP purpose to include community safety and the reduction of criminal behaviour has widened the scope of work so much that it has diluted effectiveness at the outcome level. Specific operational recommendations: Increase the degree of targeting. Recommendation 5 Priority: HIGH Strengthen EUD capability in specialist areas, in particular related to security and justice. Addressing the EC s lack of internal specialised human resources in the security and justice sector is a priority. EUD needs to have specific technical expertise available. Specific operational recommendations: Consideration should be given to existing EU tools such as Twinning, Sigma, Taiex, which are used in the ENP countries where the EU has a longer cooperation history in the field of Security and Justice. Page 296

31 Recommendation 6 Priority: MEDIUM Consider continuing to use process indicators for budget support. There is currently a high priority on outcomes of development assistance. The use of process indicators has worked well in most cases and has added momentum to reform efforts. It requires willingness of the Jamaican authorities to move forward, and did not work in the transport sector. Given its overall success, the EC should continue to utilise process-type variable tranche indicators and may need to limit the use of (more conventional) outcome indicators. Specific operational recommendations: Use of TA to explain and mentor Government stakeholders about programme implementation, and budget support operations, has worked well and is a good model for other countries. Recommendation 7 Priority: MEDIUM Donor coordination, whilst currently strong around macro-economic issues, could be further strengthened with emerging donors The quality of donor dialogue is reasonable although the arrival of non-traditional donors, particularly China, complicates the situation. Specific operational recommendations:the IDB and the WB have developed very large loan programmes in Jamaica, A closer collaboration with the IFIs could maximise synergies between IFI's loans and EC's budget support programmes. Page 297

32 Recommendation 8 Priority: MEDIUM Consider adopting the use of TA to mentor budget support programmes more widely in other ACP countries. The strategic use of TA to explain and mentor Government stakeholders about programme implementation, and in particular to support budget support operations, has worked well and is a good model for other countries. Specific operational recommendations: It is important that reporting lines are clear and that TAs receive the full endorsement of decision makers to operate effectively with the operational levels. TAs duration must be consistent with BS calendar and long enough to result in significant capacity building on the ground. Recommendation 9 Priority: MEDIUM Aim to reduce the administrative burden of CBO support programmes. Attendance at PRP II Steering Committee meetings has been ad hoc and greater effectiveness could be achieved through improved operational synergies. As behaviour modification and re-socialisation projects take time to mould new mind-sets, implementers of both the GOLA projects and the CSJP stressed the need to enhance their programme by longer project time-lines. Page 298

33 Recommendation 10 Priority: MEDIUM Delivery of support to rural development through a mix of instruments (budget support and technical assistance) is proving effective and should be continued. A stock-taking exercise related to the implementation of the EUBSP-RDP work is recommended to identify lessons learnt. It is recommended that a regional approach should be adopted to assess best practice and lessons learned. Specific operational recommendations: Support and mentoring for diversification should be longer; The reorganization of the banana industry institutional set-up should be completed as a priority; Adequate time and support must be provided to implement diversification activities, along with long-term mentoring on key issues such as accounting and marketing. Recommendation 11 Priority: MEDIUM The value and effectiveness of innovative use of the media to promote EU visibility should be assessed. The use of media advertising goes beyond that of most ACP and non-acp countries, and would justify an independent impact assessment in due course. The terms of comparison should include countries where the cooperation programme is heavily geared towards budget support and where there is not a strong attention to visibility. Page 299

34 Recommendation 12 Priority: MEDIUM More emphasis should be placed on issues of political and economic governance, and their effect on social inequality and poverty alleviation. EU support should monitor indicators of social and economic equity, equality and mobility, and research local factors influencing their dynamics. Particular emphasis should be placed on factors impeding or corrupting progressive and transparent economic and political processes. Key change agents, institutions, policies and supporting legislation should be identified and supported. Page 300