2013
Evaluation Report
Rule of Law Project in Darfur
Caroline Chikoore BSc, MBA
Ilham Abdalla Bashir MPH, DR&D, ACE&BS
UNDP SUDAN
5/13/2013
Table of Contents
Acronyms ................................................................................................................................................................................ 4
Acknowledgements................................................................................................................................................................. 5
Executive Summary ................................................................................................................................................................. 6
1.
2.
3.
Project Background and Evaluation Objectives ............................................................................................................ 10
1.1.
Project Background ............................................................................................................................................... 10
1.2.
Purpose of the Evaluation ..................................................................................................................................... 10
Methodology ................................................................................................................................................................. 11
2.1.
Approaches ........................................................................................................................................................... 11
2.2.
Data Collection ...................................................................................................................................................... 11
2.3.
Sampling ................................................................................................................................................................ 12
2.4.
Data Analysis ......................................................................................................................................................... 13
2.5.
Limitations............................................................................................................................................................. 13
Evaluation Findings ....................................................................................................................................................... 13
3.1.
Relevance .............................................................................................................................................................. 13
3.2.
Efficiency ............................................................................................................................................................... 14
3.2.1.
Financial Analysis .............................................................................................................................................. 14
3.2.2.
Adequacy of Implementation priorities ............................................................................................................ 15
3.2.3.
Risk Management ............................................................................................................................................. 16
3.3.
Effectiveness ......................................................................................................................................................... 18
3.4.
Impact ................................................................................................................................................................... 25
3.5.
Sustainability ......................................................................................................................................................... 26
4.
Conclusion ..................................................................................................................................................................... 27
5.
Lessons .......................................................................................................................................................................... 28
6.
Recommendations ........................................................................................................................................................ 29
7.
Annex ............................................................................................................................................................................ 30
7.1.
Terms of Reference ............................................................................................................................................... 30
7.2.
Evaluation Matrix .................................................................................................................................................. 35
7.3.
Data Collection Tools ............................................................................................................................................ 40
7.4.
Persons Interviewed ............................................................................................................................................. 41
Figure 1 Approved LOAs and MCGAs 2013 ........................................................................................................................... 14
Figure 2 2011-2012 Budget and Expenditure ....................................................................................................................... 14
Figure 3 2012 Output Level Budget Expenditure .................................................................................................................. 15
Figure 4 UNDP Strategies with UNAMID............................................................................................................................... 18
Figure 5 UNDP Civil Works 2011-2013 .................................................................................................................................. 18
Page 2 of 45
Figure 6 ICT for ROL Institutions ........................................................................................................................................... 19
Figure 7 Manarat Prison Project ........................................................................................................................................... 21
Figure 8 Categories of Cases -Paralegals............................................................................................................................... 23
Figure 9 Darfurian Dialogue .................................................................................................................................................. 24
Table 1 Stakeholders Interviewed. ....................................................................................................................................... 12
Table 2 UNDP GOS Prisons Support ...................................................................................................................................... 21
Table 3 UNDP Legal Aid Support ........................................................................................................................................... 22
Page 3 of 45
Acronyms
CBOs
CPAP
CSOs
DANIDA
DDPD
DFID
DIM
FGDs
FGM
GOS
ICT
IDP
ICT
JCC
LOA
MCGA
NGOs
NIM
OECD
ROL
SDG
SIDA
UNAMID
UNDAF
UNDP
UNFPA
UNHCR
UNICEF
USD
VAW
Community Based Organizations
Country Programme Action Plan
Civil Society Organizations
Danish International Development Agency
Doha Document for Peace in Darfur
British Department for International Development
Direct implementation Modality
Focus Groups Discussion
Female Genital Mutilation
Government of Sudan
Information and Communications Technology
Internal Displaced People
Information Technology Center
Justice and Confidence Centers
Letter of Agreement
Micro Capital Grant Agreements
Non Governmental Organization
National Implementation Modality
Organization for Economic Cooperation and Development
Rule of Law
Sudanese Pound
Swedish International Development Cooperation
United Nations - African Union Mission in Darfur
United Nations Development Assistance Framework
United Nations Development Programme
United Nations Fund for Population Activities
United Nations High Commissioner for Refugees
United Nations International Children's Emergency Fund
United States Dollars
Violence against Women
Page 4 of 45
Acknowledgements
The report is the work of a team of two, the International Consultant and Team Leader, Caroline Chikoore, MBA, BSc
Sociology an independent Consultant based in Canada and the National Consultant Ilham Abdalla Basher MPH, Diploma
Research and Development, Advanced Certificate Epidemiology and Bio-Statistics. Over a period of 5 weeks the
two Consultants worked with UNDP teams in Khartoum, El Fasher, Nyala and El Geneina who facilitated multiple
meetings with 129 stakeholders.
The Consulting Team would like to thank UNDP Rule of Law Unit teams in Khartoum and Darfur for their support
during the evaluation process. Special thanks go to Khartoum Office Team: Evariste Sibomana Head Governance
and Rule of Law a.i, Noha Aabdelgaba Programme Specialist Access to Justice and Rule of Law, Nuha Ahmed
Abdelgadir M&E Officer Oversight & Support Unit, Chris Opar Head Financial Resources Management; North Darfur
team: Mohammad Iqbal Senior Regional Coordinator, Ibrahim Adam Khair Rule of Law Officer, Alemu Kidane Tekie
Public Expenditure Specialist, Fadl Mohammad Saleh Othman Finance/ Admin Assistant; South Darfur: Elhabib
Hamdok Rule of Law – GBV Specialist ; and West Darfur: Mardea Elaine Martin-Wiles. Team leader/Project
Management Specialist - Governance and Rule of Law Unit, and Osman Abdulkarim Rule of Law Officer.
The evaluators acknowledge the role of Dr Christopher Denis Laker Regional Programme Manager Governance
and Rule of Law Unit as the overall Evaluation Manager of the Rule of Law Project in Darfur, end of Term
evaluation, his role in the facilitation of the evaluation process, timely management of logistics and responsiveness
to the needs of the evaluation team during the 3 week data collection period in Darfur.
The role of the El Fasher stakeholders is greatly appreciated especially their participation and contribution at the
validation workshop held in El Fasher on 17th April 2013.
Page 5 of 45
Executive Summary
This report provides an independent assessment of
the Rule of Law Project in Darfur. The Project was
implemented in the 5 states of Darfur North, South,
East, West and Central from 2009-2012. It is
implemented as a multi-stakeholder project that
brings together Government of Sudan Rule of Law
Institutions, i.e., Judiciary, Prisons and Police,
Department of Legal Aid and Civil Society
Organizations; NGOs and CBOs; UN Agencies in
partnership with UNDP, i.e., UNAMID and other UN
agencies, collaborating with UNDP such as UNFPA,
UNHCR, and UNICEF. The project was funded by a
consortium of donors including the British
Department for International Development (DFID),
Netherlands, DANIDA, Swedish International
Development Cooperation Agency (SIDA) and
Norway. Over the past year funding was received
from DFID. Overall project budget for the period
2009-2011 was $ 11,082,114.
The end of term evaluation responds to the
evaluation criteria of relevance, efficiency,
effectiveness, sustainability and impact. The
evaluation methodology was informed by the UNEG
principles inclusion of all categories of stakeholders
engaged with the project; participatory methods
through involvement of UNDP staff in the design of
the evaluation and engagement of stakeholders at
the Validation Meeting held in El Fasher. Mixed
methods were used in data analysis done through the
use of SPSS and Excel.
The ROL Project had an incremental approach with its
5 outputs1 contributing to the Sudan Country
Programme Framework (CPAP) Outcome 5: Rights
1
Output 1 – The programme managed according to UNDP
requirements and standards
Output 2 – Human rights awareness of local community and justice
sector is enhanced
Output 3 – Local communities empowered and access to justice
enhanced through building capacity of NGOs/CBOs in targeted areas
Output 4 – Dialogue among Darfurian stakeholders enhanced,
ensuring the equal participation of women in such dialogue and
increased access to national and international resources
Output 5 – State government Rule of Law institutions strengthened
to provide rule of law services to the Darfur population with a focus
on women and other vulnerable groups.
upheld and protected through accountable, accessible
and equitable Rule of Law institutions and ultimately
contributing the overarching UNDAF Outcome 2
Governance and Rule of Law: by 2012, improved
democratic governance at all levels based on human
rights standards, with particular attention to women,
children, displaced populations, and other vulnerable
groups towards achieving sustainable peace and
development.
Summary of Findings;
Relevance
The evaluation noted the relevance of the Rule of
Law Project designed in the aftermath of the Darfur
Conflict of 2003. Overall, respondents confirmed the
relevance of the project whose design was aligned to
the legal and human rights needs of people in Darfur,
institutional capacity needs of both GOS institutions,
NGOs and CBOs.
UNDP went into partnership with UNAMID leveraging
the two agencies’ capacities to strengthen the GOS
institutions that uphold the rule of law. At civil
society level, UNDP worked to fill gaps left by the
expulsion of international organizations in 2009
through partnership with lawyers, paralegals, and
NGOs who supported IDP communities in accessing
formal and informal justice. The evaluation found the
participating partners relevant to the context in
Darfur.
The Project is relevant to emerging issues, i.e., DDPD
priority on recovery, reconstruction and
development. There is need to build upon the gains
of the last 4 years of ROL implementation to realize
greater gains that can be sustained by institutions
with greater capacity to implement
Efficiency
Respondents found UNDP implementation systems,
i.e., planning processes, workplans and
implementation modalities satisfactory and
supporting efficient operations.
Project efficiency is affected by endogenous factors
that affect implementation of activities according to
plans. Delays are experienced by all states as a result
of lengthy LOAs and MCGAs approval processes.
Delays were also noted in funds disbursement and
procurement processes that last beyond 4 months.
In addition, exogenous factors have a great impact on
the project which include; the Emergency Laws and
restrictive government regulations, security concerns
due to continued conflict is some areas in Darfur, that
all contribute to creating a difficult operating
environment for UNDP and its implementing
partners. Given the major role played by UN Agencies
in support of GOS institutions in the region, there is
need for the federal government to revise some of its
restrictive policies that hamper operations of
development agencies.
Effectiveness of ROL Institutions
UNDP was effective in offering a comprehensive
prison initiative that has effectively changed
institutional culture and operations through
renovation of structures, computerization and
furnishing of offices, human rights training of prison
staff and prisoners; support to prison officials’ travel
to international conferences and visits to prisons in
other countries. The impact has been improved
reporting, documentation and storage of information
by electronic systems. Anecdotal evidence of
motivated staff and respect for human rights of
prisoners was noted. The evaluation found GOS
Prisons responsive to UNDP leading to good working
relations and ability to implement the comprehensive
strategy.
The Judiciary project initiatives were largely urban
focussed where activities could be easily
implemented and results achieved and monitored
given the security risk. However there was need to
improve institutional capacities of the periphery
courts and remote areas to reduce strain on the
urban areas facilities which supported the function of
remote courts and to increase accessibility to
functional courts in the rural areas. The evaluation
also noted the gaps in the support to the informal
justice system. Opportunities exist to support the
Native Administration systems in line with DDPD
priorities. Accountability of duty holders was required
through the ROL Project to address the vulnerability
of children below 18 years who faced imprisonment
under adult conditions.
While a lot of investment had been made into
computerization of the State ROL institutions,
provision of computers was not an end in itself. UNDP
needs to provide performance measurement
standards that support data collection for improved
management and monitoring of ROL state
institutions. There was no evidence that
computerization was contributing to higher goals in
the criminal justice system beyond typed documents
and electronic communication. Opportunities exist
for improved monitoring through coordinated data
collection of key indicators and management in the
criminal justice systems.
Effectiveness Legal Aid
The project contributed to a culture of accessing
justice through the legal aid services provided by
private lawyers, bar association, paralegals, State
Department of Legal Aid, NGOs and CBOs. There was
anecdotal evidence of increased confidence in the
formal justice systems based on increased reporting
of cases through the referral network, UNDP and the
paralegals and lawyers. There is need for partners to
create sustainable systems that can continue
facilitation of justice beyond the UNDP funding
period.
Page 7 of 45
Effectiveness Academic Institutions
The dialogue/debate on pivotal Darfurian issues such
as the Native Administration, women’s rights, Islam,
recovery, and recently DOHA, has contributed to a
culture of free expression and encourages social
cohesion on issues affecting Darfurian citizens.
Government accountability is fostered through
provision of recommendations for action, a good
practice that can be replicated in other states.
Interagency Strategies
Overall there is synergy among the UN Agencies with
UNDP utilizing effective strategies in relationship
building to increase effectiveness of the operations.
This is mainly through participation of project team
members in cluster meetings in all states visited.
Achievement of clusters included advocacy around
the Form 8 implementation and recognition of GBV
by government officials.
Best practices were noted with UNDP and UNAMID
collaborative efforts in support of state ROL
institutions, a partnership that had effectively
leveraged the two agencies strengths.
and the judiciary system in the collection and
management of evidence. The low capacity of the
Police continues to negatively impact the functions of
the judiciary.
4. Lack of willingness to work with UNDP and other
UN Agencies hampered progress and support
provided to the GOS ROL Institutions, consequently
Prison’s willingness to work with UNDP and other
agencies created opportunities for comprehensive
strategies that has led to organizational and
institutional changes.
5. Intervention for women in prison must be
addressed with multiple strategies that address
prevention through risk reduction of incarceration for
women and human rights training in communities;
protection of women in prison; and promotion of
alternative livelihood projects besides alcohol
making. Lesson from Nyala must be shared as best
practices for replication to the other states.
Recommendations
Recommendation 1: UNDP to accelerate approvals of
LOAs/MCGAs, procurement processes and funds
disbursement to be more responsive to the rapidly
changing project environment during the recovery
phase in Darfur.
Lessons
1. Conflict reduction was achieved in IDP camps of
project intervention through community based
conflict reduction mechanisms introduced by the
Paralegals. Conflict resolution cannot be sustained
without adequate security in the 5 states of Darfur
with new conflict that continues to displace
communities who seek refuge in the camps.
Recommendation 2: Expand Judiciary intervention
with strategies that support i) the Native
Administration and the traditional courts to raise the
level of human rights standards in the courts, ii)the
capacity of periphery and remote courts, and iii)
juvenile justice system.
2. While the project provides incentives for the
system to respond to cases, the primacy of free legal
aid for wider public and a culture of pro-bono work
for lawyers need to be fostered to take deep roots in
the legal aid culture.
Recommendation 3: UNDP to coordinate interagency
dialogue between key UN Agencies with interest in
supporting the police, i.e., UNAMID, UNHCR, UNICEF
and UNFPA to have a coordinated approach in
meeting the institutional needs of the police.
3. Reform of the criminal justice system is likely to
succeed where there are complementarities of police
Page 8 of 45
Recommendation 4: UNDP to provide guidelines on
performance standards in the criminal justice systems
that promote coordinated data collection for
management and monitoring of key indicators such
as management of case load, e.g. data collection of
cases commenced, terminated and pending;
disaggregation by defendants, types of cases, states
etc, according to needs of the ROL institutions.
vulnerable groups, UNDP to coordinate efforts
working with its partners.
Recommendation 6: Assess needs and support
judiciary with establishment of databases either
online of via CD ROM that provide resources on
International laws, Sudanese laws, regulations, case
decisions and complementary legal resources to
improve operations and efficiency of the judiciary.
Recommendation 5: Advocate for increased
government accountability in the provision of free
legal aid services to wider population targeting
Page 9 of 45
1. Project Background and Evaluation Objectives
1.1.Project Background
The UNDP Project “Rule of Law in Darfur – Strengthening Access to Justice and Sustainable Protection” was
introduced in 2004. UNDP had a long history of ROL implementation in the 3 states of North, South and West
Darfur over a 9 year period since 2004. The ROL projects in Darfur received funding over the years from donors
including the British Department for International Development (DFID), Netherlands, DANIDA, Swedish
International Development Cooperation Agency (SIDA) and Norway. At the time of evaluation the ROL Project in
Darfur is funded by DFID. The total budget funded for the initiatives under the period evaluated 2009-2012 was
$ 11,082,114.
The project offers a comprehensive approach that seeks to:
I.
II.
III.
IV.
Raise awareness of basic human rights and rule of law amongst law-enforcement institutions, the judiciary, the
police, the prison, the prosecutors and security officials, and the communities (mostly IDPs and marginalised
and vulnerable groups).
Empower local stakeholders to actively engage in preventing and bringing an end to the existing violations of
domestic law and international human rights standards.
Restore confidence in rule of law institutions, and gradually build a culture of justice, that is conducive to peace
and sustainable human development.
Promote and deepen decentralisation through adopting demand driven and community based initiatives and
approaches.
The project has the following five outputs:
Output 1 – The programme managed according to UNDP requirements and standards.
Output 2 – Human rights awareness of local community and justice sector is enhanced.
Output 3 – Local communities empowered and access to justice enhanced through building capacity of NGOs/CBOs
in targeted areas.
Output 4 – Dialogue among Darfurian stakeholders enhanced, ensuring the equal participation of women in such
dialogue and increased access to national and international resources.
Output 5 – State government Rule of Law institutions strengthened to provide rule of law services to the Darfur
population with a focus on women and other vulnerable groups.
1.2.Purpose of the Evaluation
The evaluation sought to address the following:
I.
The relevance of activities implemented to: i) enhance protection of the rights of marginalized and vulnerable
groups, including IDPs, ii) build the capacities of institutions responsible for administering justice, the
appropriateness and level of service delivery (Para-legal component) in the IDP camps/settlements.
Page 10 of 45
II.
III.
IV.
V.
VI.
The level of satisfaction of all stakeholders of the project with activities undertaken and outputs and
preliminary outcomes, the quality of physical assets procured, delivered and distributed.
The responsiveness and accountability of key stakeholders (especially duty bearers) in making decisions,
particularly at the national level and the impact on sub national and regional levels of government in Darfur ;
and the extent of transparency and accountability exhibited among the stakeholders, including the UN Partners
in making decisions that affect the implementation of the programme.
In addition, the evaluation will provide inputs for updating the output indicators especially numbers of
communities and individuals reached.
The evaluation will assess partnership approaches and strategies.
Findings of the evaluation will also be used to increase the effectiveness and sustainability of the projects’
outputs through improvements in strategy and systems to meet the demands of the beneficiaries and will
provide important elements and inputs for consideration in the design of a potential successor programme in
light of closure of SP II funding March 31st 2013.
Detailed evaluation questions were categorised into the OECD criteria of relevance, efficiency, effectiveness,
sustainability and impact. Refer to Annex 1.
The evaluation report was expected to inform the ROL partners as they planned for the next phase of
implementation.
2. Methodology
2.1.Approaches
The evaluation upheld human rights approaches in line with the UNEG principles of inclusion, paying attention to
gender disaggregation of the most vulnerable groups. Participatory methods were employed through stakeholder
mapping to determine representation of key stakeholder categories. The evaluation respected fair power relations
acknowledging power dynamics between donors, implementers and beneficiary groups with non participation of
UNDP in interviews with participants. Mixed methods were used that allowed comprehensive evidence through
the use of both qualitative and quantitative research methods. System based approaches were used to understand
the design, objectives, strategies and implementation arrangements that support achievement of the Rule of Law
Project. Reliability was ensured through use of structured data gathering tools with open ended questions
structured around the evaluation criteria defined in the terms of reference. Triangulation was utilized to ensure
validity. The evaluation was guided by evaluation ethics of participants’ right to confidentiality, avoidance of harm
especially in respect to vulnerability, gender, age and ethnicity. Translation into the local language (Arabic) was
provided which facilitated effective contribution by Arabic speaking participants.
2.2.Data Collection
The Consulting Team reviewed programme documents inclusive of the ROL Project Document, Agreements with
partners in the North, South and West Darfur, Project Reports (quarterly and annual) from 2009 – 2012 and
project work plans. The key output of the detailed document review was the Inception Report that outlined the
Page 11 of 45
evaluation framework including the methodology, evaluation matrix, questions, and sampling. Individual in-depth
interviews were conducted with UNDP staff in Khartoum, ROL Project Manager and team leaders and staff in the
field, UN Agencies, i.e., UNFPA, UNHCR and senior GOS ROL Institution officials in Prisons, Police. Focus Group
discussions (FGDs) were conducted with groups ranging from 2 to 8 with UNAMID ROL, Judiciary, Community
Police, Human Rights, Civil Affairs and Gender. FGDs were also conducted with lawyers, paralegals, NGOs and
CBOs. Workshops were utilized in meetings with larger groups (more than 10) in IDP camps with communities and
paralegals.
2.3.Sampling
The evaluation used purposive sampling. Variables considered in determining the sample included nature of
stakeholder, i.e., UN Agencies, NGOs, Government institutions, donors, community beneficiaries; geographic
location, i.e., North, South and West Darfur out of the 5 states where Rule of Law Projects were implemented since
2005. Other variables included thematic focus, nature of institution, partner performance and access given
security concerns. The team collected data from March 31st to April 16 2013. The totals of 129 respondents were
interviewed across the states. Refer to table below. The team visited judiciary offices, prisons, universities and IDP
camps.
A Stakeholders meeting was held in El Fasher to present preliminary findings. A total of 28 people attended the
meeting which contributed to validation of evaluation findings.
Table 1 Stakeholders Interviewed.
Stakeholder
UN agencies
States
Total
N. Darfur S. Darfur West Darfur Khartoum
17
11
8
0
36
%
27.9
IDPs Communities 8
3
13
0
24
18.6
NGO/CBO
9
5
8
0
22
17.1
GOV
9
8
2
0
19
14.7
UNDP
3
1
2
4
10
7.8
Academic
Institution
Bar Association
0
6
4
0
10
7.8
4
0
3
0
7
5.4
Private Company
0
0
0
1
1
0.8
Total
50
34
40
5
129
100.0
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2.4.Data Analysis
The evaluation used mixed methods - both qualitative and quantitative research methods to analyze the data. SPSS
and Excel were used to categorize, group and summarize narrative information provided by stakeholders.
2.5.Limitations
-
Lengthy security clearance for travel to Darfur which delayed work plan.
Slow response to request for meetings with Consultants by Khartoum stakeholders resulted in limited number
of stakeholders interviewed.
Security concerns limited access to some project sites and beneficiaries (e.g., the IDP camps in South Darfur).
Constrained working process with limited time for data analysis and reporting due to delay in getting out to the
field. However, the time in Khartoum was well spent reviewing literature and refining tools for field work.
3. Evaluation Findings
3.1.Relevance
The Rule of Law initiatives were designed against the backdrop of the Darfur conflict that broke out in 2003 and
resulted in displacement of large numbers of the Darfur population who sought protection in IDP camps. Large
populations were vulnerable to systematic human rights violations such as rape, sexual harassment, beatings and
other forms of mistreatment, including robbery and theft, with women and children being the most vulnerable.
With the protracted conflict, the social fabric faced severe strain including the legal and justice system with
destruction of infrastructure, limited or absence of court buildings, lack of legal education and limited number of
lawyers and judges. Large scale displacements also weakened the traditional conflict resolution systems. This
resulted in outbreaks of conflict in the IDP camps, the place of refuge. Respondents confirmed the relevance of the
project designed to support the empowerment of local communities as part of the process of restoring confidence
in the legal systems (formal and informal), and strengthening of institutions that uphold the rule of law. With the
expulsion of international non-governmental organizations from Darfur in 2009, UNDP provided services in gaps
left behind by agencies like IRC that had been working on access to justice with displaced persons in the camps
through support to the Justice and Confidence Centres (JCCs).2
UNDP does not respond to conflict situations. Its post conflict interventions were targeted at IDPs, in the camps
around major cities in the 5 states in Darfur. After 10 years of post conflict and guided by the DDPD framework,
Darfur is in transition from humanitarian/ post conflict phase to recovery, rehabilitation and development. The
evaluation noted the relevance of the ROL Project to emerging issues.
2
A Justice and Confidence Center is an independent community-based organization, registered under the Sudanese laws that govern welfare
organizations.
Page 13 of 45
Figure 1 Approved LOAs and MCGAs 2013
Micro
Grants
10
(43%)
LOAs
13
(57%)
Stakeholders engaged were relevant with partners drawn from Government ROL Institutions, i.e., judiciary, police
and prisons; CSOs inclusive of LNGOs, NGOs, CBOs, academic institutions, lawyers; and communities in IDP camps.
Given the need to intervene, UNDP identified potential partners and conducted prior partner capacity assessments
to establish strategic fit between UNDP priorities and partner capacities to implement. Most respondents indicated
initial contact came from UNDP who shared project goals and available support which led to discussions and
subsequent partnerships. Funding was guided by project goals regarded by partners as limited to UNDP priorities
on ROC. Given the limited funding available in Darfur partner face challenges meeting their broader financial needs
outside of UNDP funded projects. Most respondents confirmed the relevance of the planning processes that
followed the discussion which are in line with the UNDP processes and procedures as outlined in the LOAs and
MCGAs.
3.2.Efficiency
3.2.1. Financial Analysis
Analysis of the 2011 -2012 budget and expenditure showed utilization rate of above 70% for both years.
Figure 2 2011-2012 Budget and Expenditure
Source: SP Annual Report -Financial Summary for the years 2011-2012
USD
3880063
Budget
Allocation
USD
USD
1646519
1146821
2011
Expenditure
USD
3292470
USD
1975875 USD
1707002
2012
Budget analysis showed expenditure of above 70% for both years 2011 and 2012. Utilization rate for 2011 was
69.75 and 86.4% for the year 2012.
Page 14 of 45
Figure 3 2012 Output Level Budget Expenditure
1400000
1200000
1000000
800000
Budget Total
600000
Expenditure Total
400000
200000
0
Output 1 Output 2 Output 3 Output 4 Output 5
Output level analysis showed 57.2% budget allocation supported UNDP offices in the 3 states of El Fasher, Nyala
and Geneina while 43% was allocated to outcome 2-5 in support of project implementation.
3.2.2. Adequacy of Implementation priorities
Questions on efficiency solicited the partners’ level of satisfaction with UNDP process
Planning Processes
On average the partners found the planning process inclusive and satisfactory. Concern was however raised that
UNDP mandate was restrictive and did not address the broad spectrum of partner needs given the limited number
of agencies supporting ROL in Darfur. Other concerns related to predetermined activities that offered the same
services e.g., the same training material offered to a community over an 8 year period with no changes in the case
of paralegals providing training on Human Rights, Gender and VAW in one camp. There is need for activities to
adapt annually to reflect the changing needs on the ground. For government institutions, planning was
participatory as well as facilitated by the government personnel in the Judiciary or Ministry of Justice in support of
training for Judges, Prosecutors and Police.
Work Plans
The annual review of priorities with partners in November of each year leads to the development of workplans
which are based on partner needs for the subsequent year. Annual workplans are approved by the Project Board at
state level which consists of experts drawn from a diverse range of institutions in the region and related to the
project. Respondents were satisfied with the work plan process which they found inclusive.
Implementation Modalities
UNDP re aligned their modalities in 2011 from Direct Implementation Modality (DIM) to a combination of National
Implementation Modality (NIM), i.e., i) Letters of Agreement (LOA) with Government and Academic Institutions,
Page 15 of 45
and ii) Micro Credit Grants with CSOs; and Direct Implementation Modality mostly related to contracts on civil
works. The changes were regarded by respondents as positive which enabled greater reach through partnership
with agencies that have different capacities, mandates and strengths. As of April 2013, UNDP had 14 approved
LOAs with Government and Academic Institutions and 10 approved MCGAs with CSOs in varying stages of
completion ranging from start ups to completion.
Feedback Mechanisms
UNDP has project teams and staff in each of the 5 states that work to support partner implementation and are the
point of contact with partners at state level. At the time of design the project operated in 3 states and expanded to
5 in response to the President’s Decree3 which had implications on Human Resources and budget. Reporting
includes weekly updates, monthly reports, quarterly reports and annual reports for partners, senior management
and donors. The feedback loop includes the implementing partner and UNDP at Darfur level with Khartoum Office
handling reporting to donors. It was noted there were different reporting frameworks in use by UNDP and DFID.
This resulted in discrepancies in reporting with UNDP activity based reporting not fully addressing donor
requirements for results based reporting. The discrepancies however stem from the SP II goals that determine the
ROL output focus in contrast to the DFID outcome focus. At the time of evolution it was noted UNDP had
introduced a new framework that was compliant with DFID reporting requirements and was to be implemented in
2013.
3.2.3. Risk Management
It was noted that UNDP is working in a high risk environment where the effects of uncertainty of results are high.
The evaluation analyzed evidence of risk management by UNDP and partners as follows:
Security
Civil war as a result of ethnic conflict led to institution of the emergency laws in 1997. While the law was lifted in
the rest of the country, the 5 states of Darfur continue to be under the 1997 emergency laws. The impact on the
ROL project are police detention of persons without cause which poses a risk to all staff in Darfur, regulation of
training content delivered in IDP camps and in some cases the presence of police in the community workshops and
seminars which resulted in individual insecurity. In addition, due to security concerns, interventions are confined to
major towns with limited coverage of rural areas many of which still face new conflict and human rights violations.
Where projects are implemented in the rural areas, travel to monitor activities is limited affecting feedback
mechanism and consequently quality of project implementation. Risk management is low within the project given
the exogenous nature of security concerns, with high impact in terms of staff attrition due to the stressful
operating environment, regulations of high check in and check of mission staff in UNAMID and GOS Community
Police posing risk of loss of institutional memory for continued activities. For partners involved with legal and
paralegal activities the risk of handling human rights issues comes with potential conflict with the government
regulations leading to drop out from interventions and/or individuals leaving Darfur for Khartoum due to personal
security reasons.
3
Issued under the DDPD in an effort to end the war. Sudan Tribune, January 2012.
Page 16 of 45
Capacity of Partners
UNDP worked in partnership with 2 categories of implementing partners; Government Institutions and CSOs.
Government institutions were largely weak with limited infrastructure, as well as human and financial resources.
To address capacity needs specifically in GoS Prisons and the Judiciary, UNDP strategies included training of
government staff on international human rights standards, funding international travel to conferences and
international training for Prison Officials and Judiciary members which has contributed to implementation of
international human rights. However the evaluation found the GOS capacity remains weakened by government
policy of staff rotation which affects largely the police resulting in institutional memory loss and lack of continuity
of activities.
It was noted that with the exit of many international organizations with greater capacity to implement projects in
post conflict situations, UNDP went into partnership with local agencies in some cases importing Khartoum based
institutions/organisations to work in Darfur, i.e., in the case of Mutawinat in El Fasher due to lack of registered
CBOs with capacity to implementation in North Darfur. In other cases, UNDP contributed to the establishment of
CBOs and LNGOs working with lawyers and paralegals where none existed e.g., Al Nahda and Al Mustagbal in El
Geneina. There was evidence of the project addressing partner capacity risk with strategies that strengthened the
institutions through legal registration of CBOs, training and mentoring implementing partner staff on office
management, book keeping, filing and report writing to effectively undertake project planning, implementation
and reporting, especially in UNDP standard and formats.
UNDP Bureaucracy
Concern was raised in all 3 states visited by Evaluators of UNDP bureaucracy that resulted in delayed
implementation and workplan management by partners. It was noted that the decision making processes are
centralized with approval of partner LOAs and MCGAs undertaken by the Country Director in Khartoum.
Respondents reported long delays of 4-8 months in the processing of grant agreements. There was little evidence
of UNDP addressing the credibility risk faced by late approval of partnership after raised expectations.
Respondents highlighted delays of up to 1 year in procurement which is centralized in Khartoum. The impact is high
on the purchase of construction material, generators and water tanks and also in the planned quantities of
equipment and furnishings for partner institutions. Validation with Procurement Unit in Khartoum confirmed the
challenges faced at implementation level with partners. Procurement was affected by Government regulations for
centralized custom clearance of all imports in Khartoum. Sanctions affected selection of suppliers which limited
imports of goods from Middle East. Internally UNDP had rigorous tender processes which were not easy to meet
for the local contractors, resulting in retendering in some cases. In addition limited scope and capacity of local
contractors affected tendering processes with security concerns limiting their ability to operate in high risk areas.
While the Procurement Unit was aware of the risks faced by ROL Projects, it was constrained by external factors in
its delivery of services to the Programmes Unit. The evaluation observed efficiency in procurement can be
improved through planning processes that accommodate the challenges in each phase of the supply chain.
It was noted delayed funds disbursement are experienced by all partners sometimes leading to no cost extensions
which are also delayed affecting partner efficiency and effectiveness. With regard to disbursements, partners
Page 17 of 45
contributed to delays with non compliance to UNDP financial reporting and disbursement requirements. Greater
support is required to raise the capacity of partners to meet UNDP financial reporting requirements.
3.3.Effectiveness
To address the ROL outputs4 UNDP is working with a number of institutions;
3.3.1. State ROL Institutions
The function of ROL cannot be implemented where key institutions are not structured, financed, trained, equipped
to promulgate, enforce, uphold and adjudicate the law.5To address the above UNDP is working with several ROL
institutions of Judiciary, Police and Prisons in line with CPAP Outcome 5 to ensure rights are upheld and protected
through accountable, accessible and equitable ROL institutions. UNDP is working closely with UNAMID using a
number of strategies to support the state institutions, inclusive of LOAs with UNAMID ROL Prisons Unit supporting
GOS and collaboration with various UNAMID units in support of Police and Judiciary. Refer to table 3 below.
Figure 4 UNDP Strategies with UNAMID
Department
UNAMID ROL Prisons
UNAMID ROL Judiciary
UNAMID Community Police
North
LOA
Collaboration
Collaboration
South
LOA
Collaboration
Collaboration
West
LOA
Collaboration
Collaboration
The evaluation noted the synergy between UNDP and UNAMID operations that were complimentary and increased
effectiveness of partners with greater support provided through their collaborative effort. Contribution of the two
agencies to the ROL institutions included;
Civil Works
Figure 5 UNDP Civil Works 2011-2013
Community
Policing
4
Prisons
Judiciary
Output 2 – Human rights awareness of local community and justice sector is enhanced
Output 3 – Local communities empowered and access to justice enhanced through building capacity of NGOs/CBOs in targeted areas
Output 4 – Dialogue among Darfurian stakeholders enhanced, ensuring the equal participation of women in such dialogue and
increased access to national and international resources
Output 5 – State government Rule of Law institutions strengthened to provide rule of law services to the Darfur population with a
focus on women and other vulnerable groups
5
UN Strengthening Rule of Law
Page 18 of 45
UNDP worked to strengthen the police, prisons and judiciary to be more operational through rehabilitation of
infrastructure destroyed during the crisis. Between 2011 and 2013, the 3 ROL institutions in the 5 states of Darfur
received a total investment of 2,942,724,155SDG. Of the investment, i) 60.4% funded the Community Police Water
Tank, Male Detention Room, Latrine & Waste Pit, Female Shed, Female Detention Room, Family & Child Unit; ii)
34.5 % supported Prisons with Basic Health Unit, Latrine & Waste Pit, Water Tank, Female Shed, Kitchen, Female
Dormitory, Basic Health Unit, Visitors Rooms; and iii) 5.1 % supported Judiciary with construction of Family & Child
Court. The civil works have greatly enhanced infrastructure to the GOS institutions.
Information Computer Technology
Figure 6 ICT for ROL Institutions
Theme
Judiciary
Police
Prison
North
√
√
√
South
√
√
√
West
√
√
√
All 3 institutions benefitted from ICT investment with
computerization of the prison offices and courts. Participant
observation of one judiciary office in the South noted high
use of equipment i.e., 9 computers, projector, and printer
and library books worth 20,000 SGDs. On a daily basis, the
library serviced 18 people including judges, prosecutors,
lawyers and students.
Given the Microsoft software licensing requirements, UNDP computerization package did not include software
which was left to partners to apply for licensing as part of the ownership of the equipment. The evaluation noted
best practices of ownership in the South where the Chief Justice contributed to the UNDP investment with
purchase of legal library software that led to electronic referencing of cases which significantly reduced the time
spent by judges referencing cases manually. Such good practices should be encouraged among the computer
recipients. Although UNDP does not fund software, there was need to explore creative and cost effective ways to
support electronic legal databases and libraries through use of CD ROM legal databases.
It was acknowledged that the project had taken key steps to computerize the institutions. There was little evidence
that computerization of the ROL institutes was contributing to data collection of key indicators including crimes
committed, victims arrested, data related to violations and criminal justice system, etc. to enable monitoring by
both GOS and the international agencies supporting them and improved management.
Capacity Building
The project undertook human rights training across the 5 states institutions to raise knowledge and
implementation of human rights standards in state institutions. Capacity building of the state institutions included
the concept of rule of law, Sudanese domestic law and humanitarian law, human rights inclusive of women, child
and IDP rights. Training was also provided to address specific institutional management arrangements for Prisons
e.g., adherence to the International Standard Minimum Rules for the Treatment of Offenders and Prison
Management. Judiciary training on the other hand focussed on Administration of Sudan Judiciary while the Police
focus was on gender, VAW and child rights in support of Family and Child Protection Units (PFCPU) and Community
Police. Training was provided in collaboration with UNAMID with ToT provided to ensure continuity of training by
the police. Support was also provided in financial and administration strengthening, English and computer skills for
relevant GOS personnel.
Page 19 of 45
Strengths and Weaknesses of the Judiciary Intervention
It was noted that UNDP projects are focussed on equipment and training of courts judges in the urban areas. Gaps
remain in addressing rehabilitation of peripheral courts and training of judges in remote areas. The project
attempted to address the shortcomings with mobile legal aid clinics and in a few localities benefitted from
construction of court, e.g., Habila. While printing and circulation of laws was noted as the role of Ministry of
Justice, the absence of the promulgated laws at the periphery and rural courts affected adjudication of cases. The
evaluation also noted there were limited linkages between formal and traditional courts given the larger
percentage of the population sought arbitration at traditional courts due to traditional ties, belief systems and
prohibitive costs of hiring a lawyer. It was noted there was limited focus by the project on Native Administration
consequently with limited support provided to tribal heads, i.e., Sheiks, Ondas and Sultans and the traditional court
systems. The limited support was largely through the effort of the paralegals training in international and national
laws, arbitration and mediation, civil, criminal and family law.
Respondents indicated the limited support by the project to juvenile courts with most cases referred to Khartoum
from the Darfur states for arbitration. Vulnerability of youth to drug trafficking was noted with children 11 years
and above treated as adults and placed in adult prison facilities. There was need to uphold the UNCRC which
defined a child as 18 years and below with requirement for juvenile correction facilities. While the West Darfur
state had prioritized construction of juvenile courts, approval of funding by UNDP Khartoum had taken 2 years to
be effected. At the time of the evaluation confirmation of the funding had been received with plans for
implementation under discussion. Due to delays, concern was raised that the capacity of the planned juvenile court
would be much smaller than the intended given the devaluation of the SDG.
State Legal Aid Department
UNDP went into partnership with the Prosecutor’s Office in each state. Partnership was established with a view to
support the State Legal Aid Departments. UNDP provides furniture and computers for the legal aid offices. It was
noted there was limited use of state legal aid centre in the North due to the location within the Judiciary premises.
Plans are underway for relocation to premises more accessible to the public and not associated with the high court.
In summary, the ROL contributed to greater accountability of the judiciary facilitated through human rights training
and promotion of international standards.
Strengths and Weaknesses of Police
Over the project implementation period UNDP and UNAMID supported the GoS Community Police and PFCPU with
training on human rights standards. Challenges were noted with the frequent transfers of police personnel which
affected institutional memory and continuity of activities. While the police initiative had been robust in the past, at
the time of evaluation it was limited to training with reported needs for infrastructure,– e.g., police renting
premises in the South, communication devices, vehicles, ambulances, centres for community policing, mother and
child and training centres for their staff. Across the 5 states, the evaluation noted projects were limited to major
towns. Given the shift in priorities to remote areas in response to the needs of the IDPs returning to their homes, it
was noted the South had greater concerns of returning IDPs and new cases of displaced people coming into the
camps than the other 2 states.
Page 20 of 45
Overall the infrastructure needs of the police were high. It is imperative to note the role of institutional resourcing
of ROL institutions falls under the government mandate and the international community can openly assist
government efforts. GOS will be required to develop a longer term plan to address resourcing of Police Institutions
with support from the UN Agencies.
Strengths and Weaknesses of Prisons
The evaluation noted a comprehensive approach was used with the prisons in acknowledgement of the dire needs
of the state prisons given the devastation due to the conflict and limited state resources. The comprehensive
package offered by UNDP is reflected in the table below.
Table 2 UNDP GOS Prisons Support
Theme
Training of prison officers
Furniture
Equipment IT
Infrastructure rehabilitation
Legal aid
Literacy courses
Vocational training for prisoners
Power supply generators
Water and sanitation
Clinics, delivery room
Agriculture
North
√
√
√
√
√
√
√
√
South West
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
√
The evaluation noted the prisons made significant progress to address human rights of women prisoners through
separation of women and men. Construction was undertaken in all 5 states for wards, toilets, and delivery rooms.
In addition, prisons in all states addressed the needs of children who accompanied their mothers to prison through
food, shelter and kindergarten services funded by prison budget.
Figure 7 Manarat Prison Project
Manarat Al Maraa is a registered NGO whose mandate is women empowerment. They support
Nyala Prison in the South with alternative income generation projects for women, i.e., handicrafts,
tea making and marketing of products in and out of Nyala. Statistics showed women were jailed for
alcohol making with sentences of 3000SDG, 100 lashes and a 3 month jail term. Their coping
mechanisms included collective bail payment for women who were imprisoned and return to
alcohol making. To address recidivism the NGO provides options for women of alternative livelihood
projects through sustainable income generation activities.
Page 21 of 45
To address recidivism, good practices were noted in South Darfur where prevention strategies included community
awareness workshops for women that contributed to reduction of incarceration of women inmates from 100 to 25.
Support was also provided for alternatives to income generation targeted at reducing alcohol making by women. It
was noted in two states where no prevention programmes and alternatives for the women existed, women
continued to fall back to alcohol making resulting in incarceration.
Supported was provided by the state through the legal aid desk in prisons in the South, while in the West, Ministry
of Education provided literacy classes to prisoners to increase their options out of jail.
3.3.2. Legal Aid
Legal aid is the primary function of the state to provide free legal advice, opinion or legal representation to
individuals who cannot afford6to pay. In Sudan however, state legal aid is limited in scope to cover only capital
punishment, criminal cases whose sentence are 10 years or death. UNDP supported the legal aid providers, i.e.,
non state lawyers, legal aid centres and paralegals; and the state lawyers, i.e., Legal Aid Department, in meeting
the needs of Darfurian communities who faced violations of their human rights and impunity of perpetrators under
the current emergency laws. The project sought to address large numbers of vulnerable populations who were
excluded from the rule of law through building a culture of legal empowerment of individuals to seek their rights
and entitlements.
Table 3 UNDP Legal Aid Support
Theme
GOS Legal Aid Department
Paralegals
Private lawyers /Bar associations
CSOs/Private company
North
√
√
√
√
South
√
√
√
√
West
√
√
√
√
Strengths and Weaknesses of Lawyers, Bar Association
UNDP in partnership with lawyers provided legal assistance to communities through contracts with private lawyers.
The partnerships were guided by a criterion of cases to be handled with budgets provided for administrative costs,
i.e., stamps and court fees, transport costs as well as an incentive for lawyers working pro-bono. The partnership
was effective in 2012 leading to a total number of 268 cases received. The relationship built over the years led to
partnerships with Bar Associations who support harmonization, supervise and monitor activities of lawyers at state
level. The partnership led to formation of NGOs comprising of national lawyers across the state of Darfur. Through
MCGAs, the NGOs provide pro bono services to indigent and vulnerable children. UNDP is in the process of
supporting construction of the Bar Association Houses in the El Fasher, Nyala and Ed Daein with plans for legal aid
offices to be housed within and facilities for training and regular meetings with the lawyers.
6
UNDP Legal Aid Criteria
Page 22 of 45
Given increasing awareness of the justice system and growing confidence, there is need for all partners to ensure
measures exist that facilitate access to justice beyond the UNDP funded initiative. Greater accountability is
required from the Government to expand the free legal aid provisions to a wider population.
Figure 8 Categories of Cases -Paralegals
Strengths and Weaknesses of Paralegals
Humanities Organization is a paralegal NGO registered in
Nyala. It had a one year contract with UNDP in 2010-2011
to facilitate 100 cases under the following categories;
UNDP supported the establishment of the
1. GBV
paralegals through the Justice and Confidence
2. Vulnerable Children
3. Children
Centres. Currently 10 have been established in the
4. Murder
Darfur Region. It was noted after several training
5. Detention
sessions; the paralegals offered various forms of
6. Civil cases
7. Displaced people
legal and human rights education, advice and dealt
8. VAW
with both civil and criminal cases to members of
the community where they are resident. The
paralegals provided key services in the community
offering awareness raising to traditional leaders,
women, youth, teachers and other key community members on early marriage, FGM, prevention of rape of
women, VAW through talks and drama, rights of girls to education. Given the culture of tea drinking, they offered
“tea discussions” with small groups on issues affecting them and legal aid. There was evidence in most states of the
paralegals as the first line of contact with documentation of cases and referral of cases to lawyers for
representation in formal court. They facilitated the referral pathway from traditional courts to lawyers, from formal
courts to traditional courts, individuals seeking recourse to justice. It was noted that both formal and non formal
legal actors recognized the role of paralegals in the referral pathway.
The evaluation noted UNDP promoted a model that facilitates the graduation of paralegals from
Volunteers
→ (Justice and confidence centre JCC) → NGO
It was noted that paralegals in the sampled 3 states are at different stages in the continuum, with varying
conditions for each group based on their legal status. Differences included provision of incentives for some groups;
other groups worked pro bono with no funding for administrative costs or community meetings, while other
groups were registered with financial support provided by UNDP. It was noted good practices by UNDP included
institutional development of the paralegals through training in office management, filing and bookkeeping. There is
need for minimum operating standards for the paralegals given the pivotal role they play in legal access.
Page 23 of 45
It was noted UNDP and UNAMID collaborated with Universities in their support of students taking bar exams.
Universities of Nyala and El Fasher provided coaching in the North and UNAMID supported with transport in all
states with UNDP paying related costs. It was noted the bar exam initiative could be more effective if processes are
aligned with the Ministry of Justice calendar for bar exams every half year. Currently there were challenges given
the UNDP disbursement delays which affected preparation of students and resulted in students missing scheduled
bar exams.
3.3.3. Academic Institutions
The role of academic institutions is to backstop the ROL service providers through a number of initiatives.
Number of Darfur Lawyers increased: Support provided to law students, especially female students, undertaking
bar examinations. At the University of Nyala support was provided to law students taking the bar exam with plans
for affirmative action for young women to promote greater opportunities for women. Overall the number of
female lawyers remains relatively low although the project has contributed increased number of lawyers in Darfur.
Inform public policy on ROL through Darfurian dialogue: Outcomes include discussion and debate on topical issues
that are pertinent to the Darfur context, i.e., Darfur Native Administration, women’s rights, Islam, poverty, conflict
resolution, and most recently Doha. Anecdotal evidence points to increased social cohesion by bringing together
academia, government, CSOs and the community as a result of the Darfurian dialogues. The University of Nyala
hosted a number of forums during the early days of the crisis on
issues around land tenure, native administration and rural
development. It was noted that while advocacy for policy change
Figure 9 Darfurian Dialogue
was long term, respondents indicated the women’s human rights
The role of Sharia and the
issues previously not recognised now receive attention at policy
Sudanese laws in protection of
and political levels, refer to figure 9.
Support vulnerable communities in Kalma camp in the South
with training in blacksmithing, carpentry and auto mechanics.
Outcomes included graduates moved from the camps to the cities
and became self employed. The evaluation also noted good
practices by the Nyala Technical College in its support of prison
vocational training and rehabilitation of training workshops in the
South.
women from sexual and GBV
coordinated by the University of
Zelangei. Recommendations were
provided to the GOS with UNDP
and UNAMID following up with
GOS on concerns around personal
laws and discriminatory
customary practices
ROL Activities El Fasher
Legal Resources: UNDP supported the establishment of the Peace
and Development Centre at the University of Zaliengie with
construction of offices, provision of a computer centre and library for use by post graduate students at the Centre.
This facility is used by the community, undergraduates and post graduate students and professional lawyers. At the
Nyala University, UNDP constructed a legal information centre with sitting capacity for 75. The evaluation noted
conflict between the 2 departments of Peace and Development who hosted the UNDP funded Legal Information
Center and the Law Department and the users of the center over administrative matters. The conflict has affected
membership of the legal aid service providers, the lawyers intended to benefit from the legal centre as well as
students. Both centres received English and Arabic books which supported those students and University staff
learning English. There is need for the University to demonstrate ownership by resolving conflict internally.
Page 24 of 45
Community Awareness: Good practices were noted at the University of Zalengie through its community outreach
initiatives for IDPs where needs based training was provided on human rights, international law, gender, and
conflict resolution in IDP camps.
4.3.3 Inter-agency Strategies
UNDP operates within the UN Cluster systems responding collectively with other UN Agencies to the Darfur
humanitarian situation. It was noted there were referral pathways in sampled 3 states with UNDP as lead for ROL,
working collaboratively with UNFPA GBV lead, UNICEF psychosocial and UNHCR protection. Participation is active
with agencies sharing workplans and meeting on average 3 times a week in cluster meetings. Achievements of the
cluster teams include advocacy on the Rules for Application of the Criminal Circular No. 2 of 2005, in particular
Form 8 section 4.1 and 4.2 on the availability in all authorized medical centres and no cost related to completion,
respectively. UNDP plays a key role in the referral system with linkages to paralegals and lawyers for the referred
rape cases. Concern was raised that with increased legal protection for women, there were more cases reported of
abuse of boys as an easier option for abusers. There is need for advocacy work by the GBV cluster on the rights of
the boy child.
There are opportunities for greater cooperation between UNDP and UNHCR in the areas of police training, given
UNDP’s history with police interventions and UNHCR‘s focus on construction of police stations. Given the emerging
trend of spontaneous return by IDPs to their homes, the 2 agencies have an opportunity to leverage their strengths
to support GOS Police
Best practices were noted with collaboration between UNDP and UNAMID departments of ROL Prisons and
Judiciary; Human Rights, Civil Affairs and Community Police. The partners support the 3 GOS institutions of
Judiciary, Police and Prisons. The partnership leverages the human resources capacity within UNAMID and wider
coverage of geographic areas with access to remote areas, in combination with the financial and technical skills
within UNDP. Through UNAMID, UNDP is able to facilitate legal services in remote areas with provision of transport
for judges. Collaboration between UNAMID and UNDP was acknowledged as an effective strategy in support of
GOS.
The evaluation also noted the participation of UNDP in UN-GOS working groups where issues related to ROL,
human rights, child and women’s rights are discussed. Outputs include planning for international days, i.e.,
Women’s Day, with activities in some of the ROL institutions, e.g., prisons.
3.4.Impact
Intended Outcomes
The project contributed to tension reduction in camps as a result of a conflict reduction mechanism promoted by
paralegals. “Tension between tribes is normally fuelled by individuals over cases to do with women, children even
animals. After awareness raising in the camp, people know how to mediate incidences before they get out of hand”
Paralegal Dottie camp. At Abushok, respondents indicated tension had been greatly reduced over the years due to
awareness raising by paralegals and incidences were lower than in other camps. There was anecdotal evidence of
Page 25 of 45
IDPs knowing how to access justice with more reported cases of parents and survivors of rape seeking justice
through the paralegals, UNDP, or facilitated by the referral system.
Unintended outcomes were noted in an increasing number of divorces as women became aware of their rights and
took the option to end marriages in order to protect them from GBV within the home.
Changes in lives of women and children as a result of the project initiatives included empowerment of women
evidenced by greater participation of women in traditional courts where they had previously been passive
participants. The evaluation noted where prevention strategies were used effectively with options for income
generation; there was reduced incarceration of women. The project also contributed to enrolment in school of the
girl child and reduction of early marriages, FGM and VAW in the camps of intervention.
The evaluation found medical facilities established for the prisons were not exclusively for the prison use with
evidence of facilities open to public use, i.e., delivery room in the South.
Impact of capacity building for Prison Official led to “Prison Officer no longer behaves as PUNISHER NOW
HUMANITARIAN” – Prison Official in North Darfur, providing evidence of attitude and behaviour change due to
exposure to human rights. In addition, evidence existed of paralegals motivated to enrol in law school. A number
have graduated and are practicing lawyers.
3.5.Sustainability
Government
UNDP model allows for government to contribute to the initiatives funded through provision of human resources,
i.e., to manage facilities constructed by the project. UNDP provides equipment and infrastructure and GOS
provides HR and maintenance, an indicator for sustainability. Training of trainers in some institutions has enabled
GOS institutions to roll out training and continue with activities beyond UNDP and UNAMID support. However in
the same institutions sustainability is affected by frequent staff changes without taking due note of the skills
developed that are required to continue with activities. Government will need to address continuity of activities
with deliberate strategies that promote retention of critical skills.
CSOs
The evaluation found the paralegal model that graduates volunteers to registered NGOs promotes sustainability of
agencies and skills developed. With increased capacity as a result of capacity building and coaching in office
management, financial management and reporting, the local agencies have greater capacity to attract other donors
as alternate funders to their work as part of their exit strategy.
Communities
At community level, increased knowledge of human rights has led to change in attitude and behaviour towards
women and girls in some of the camps of operation evidenced by greater respect of women’s rights within the
Page 26 of 45
home, creating access to education for the girl child. The achievements of the projects are contributing to long
term social change.
4. Conclusion
Relevance
The evaluation noted the relevance of the Rule of Law Project designed in the aftermath of the Darfur Conflict of
2003. Overall, respondents confirmed the relevance of the project whose design was aligned to the legal and
human rights needs of people in Darfur, institutional capacity needs of both GOS institutions, and NGOs and CBOs.
UNDP went into partnership with UNAMID leveraging the two agencies capacities to strengthen the GOS
institutions that uphold the rule of law. At civil society level, UNDP worked to fill gaps left by the expulsions of
international organizations in 2009 through partnership with lawyers, paralegals, and NGOs who supported IDP
communities in accessing formal and informal justice. The evaluation found the participating partners relevant to
the context in Darfur.
The Project is relevant to emerging issues, i.e., DDPD priority on recovery, reconstruction and development. There
is need to build upon the gains of the last 4 years of ROL implementation to realize greater gains.
Efficiency
Respondents found UNDP implementation systems, i.e., planning processes, workplans and implementation
modalities satisfactory and supporting efficient operations.
Project efficiency is affected by endogenous factors that affect implementation of activities according to plans.
Delays are experienced by all states as a result of lengthy LOAs and MCGAs approval processes. Delays were also
noted in funds disbursement and procurement processes lasting beyond 4 months.
In addition, exogenous factors have a great impact on the project with the effect of the Emergency Laws, security
due to continued conflict in some areas in Darfur and economic factors such as devaluation of the SDG all creates a
difficult operating environment for UNDP and its implementing partners. Given the major role played by UN
Agencies in support of GOS institutions in the region, there is need for the federal government to revise some of its
restrictive policies that hamper operations of development agencies.
Effectiveness of ROL Institutions
UNDP was effective in offering a comprehensive approach at state level to the prison initiative that has effectively
changed institutional culture and operations through renovation of structures, computerization and furnishing of
offices, human rights training of prison staff and prisoners, and support of prison officials’ travel to international
conferences and visits to prisons in other countries. The impact has been improved reporting, documentation and
storage of information by electronic systems, anecdotal evidence of motivated staff and respect for human rights
of prisoners. The evaluation found GOS Prisons responsive to UNDP leading to good working relations and ability
to implement the comprehensive strategy.
Page 27 of 45
The Judiciary project initiatives were largely urban focussed where activities could be easily implemented and
results achieved and monitored given the security risk. However there was need to improve institutional capacities
of the periphery courts and remote areas to reduce strain on the urban areas facilities which supported the
function of remote courts and to increase accessibility to functional courts in the rural areas. The evaluation also
noted the gaps in the support to the informal justice system. Opportunities exist to support the Native
Administration systems in line with DDPD priorities. Accountability of duty holders was required through the ROL
Project to address the vulnerability of children below 18 years who faced imprisonment under adult conditions.
While a lot of investment had been made into computerization of the State ROL institutions, provision of
computers was not an end in itself. UNDP needs to provide performance measurement standards that support
data collection for improved management and monitoring of ROL state institutions. There was evidence that
computerization was contributing to higher goals in the criminal justice system beyond typed documents and
electronic communication.
Effectiveness Legal Aid
The project contributed to a culture of accessing justice through the legal aid services provided by private lawyers,
bar associations, paralegals, State Department of Legal Aid, NGOs and CBOs. There was anecdotal evidence of
increased confidence in the formal justice systems based on increased reporting of cases through the referral
network, UNDP and the paralegals and lawyers. There is need for partners to create systems those sustainable
systems that can continue facilitation of justice beyond the UNDP funding period.
Effectiveness Academic Institutions
The dialogue/debate on pivotal Darfurian issues such as the Native Administration, women’s rights, Islam and
recovery and, recently, DOHA has contributed to culture of free expression on issues and encourages social
cohesion on issues affecting the Darfurian citizens. Government accountability is fostered through provision of
recommendations for action, a good practice that can be replicated in other states.
Interagency Strategies
Overall there is synergy among the UN Agencies with UNDP utilizing effective strategies in relationship building to
increase effectiveness of the operations. This is mainly through participation of project team members in cluster
meetings in all states visited. Achievement of clusters included advocacy around the Form 8 implementation and
recognition of GBV by government officials.
Best practices were noted with UNDP and UNAMID collaborative effort in support of state ROL institutions,
partnership that had effectively leveraged the two agencies’ strengths.
5. Lessons
Conflict reduction was achieved in IDP camps of project intervention through community based conflict reduction
mechanisms introduced by the Paralegals. Conflict resolution cannot be sustained without adequate security in the
5 states of Darfur with new conflict that continues to displace communities who seek refuge in the camps.
Page 28 of 45
While the project provides incentives for the system to respond to cases, the primacy of free legal aid for wider
public and a culture of pro-bono work for lawyers need to be fostered to take deep roots in the legal aid culture.
Reform of the criminal justice system is likely to succeed where there are complementarities of police and the
judiciary system in the collection and management of evidence. The low capacity of the Police continues to
negatively impact the functions of the judiciary.
Lack of willingness to work with UNDP and other UN Agencies hampered progress and support provided to the GOS
ROL Institutions, consequently Prison’s willingness to work with UNDP and other agencies created opportunities for
comprehensive strategies that has led to organizational and institutional changes.
Intervention for women in prison must be addressed with multiple strategies that address prevention through risk
reduction of incarceration for women and human rights training in communities; protection of women in prison;
and promotion of alternative livelihood projects besides alcohol making. Lesson from Nyala must be shared as best
practices for replication to the other states.
6. Recommendations
Recommendation 1: UNDP to accelerate approvals of LOAs/MCGAs, procurement processes and funds
disbursement to be more responsive to the rapidly changing project environment during the recovery phase in
Darfur.
Recommendation 2: Expand Judiciary intervention with strategies that support i) the Native Administration and
the traditional courts to raise the level of human rights standards in the courts, ii)the capacity of periphery and
remote courts, and iii) juvenile justice system.
Recommendation 3: UNDP to coordinate interagency dialogue between key UN Agencies with interest in
supporting the police, i.e., UNAMID, UNHCR, UNICEF and UNFPA to have a coordinated approach in meeting the
institutional needs of the police.
Recommendation 4: UNDP to provide guidelines on performance standards in the criminal justice systems that
promote coordinated data collection for management and monitoring of key indicators such as management of
case load, e.g. data collection of cases commenced, terminated and pending; disaggregation by defendants, types
of cases, states etc, according to needs of the ROL institutions.
Recommendation 5: Advocate for increased government accountability in the provision of free legal aid services to
wider population targeting vulnerable groups, UNDP to coordinate efforts working with its partners.
Recommendation 6: Assess needs and support judiciary with establishment of databases either online of via CD
ROM that provide resources on International laws, Sudanese laws, regulations, case decisions and complementary
legal resources to improve operations and efficiency of the judiciary.
Page 29 of 45
7. Annex
7.1. Terms of Reference
INTERNATIONAL CONSULTANT: EVALUATION OF RULE OF LAW PROJECT IN DARFUR - TEAM LEADER
Location :
Darfur, SUDAN
Application Deadline :
23-Sep-12
Additional Category
Management
Type of Contract : Individual Contract
Post Level :
International Consultant
Languages Required : English
Starting Date : (date when the selected candidate is expected to start) 07-Oct- 2012
Duration of Initial Contract :
30 working days
Expected Duration of Assignment : 30 working days
Background
Background and Introduction to the Darfur Project:
The Rule of Law Programme was established in the Darfur States in September of 2004. Since then, the project has gained valuable
entry points and built strong relationships with the community, government and a diverse set of implementing partners. The
relationships developed with community stakeholders and government authorities have provided a launching pad for newer
programmes, like Livelihoods, DDR. As part of the UNDP Governance and Rule of Law Unit, this project links with other rule of law
projects, especially the Capacity Building for the Judiciary and the Community Policing Projects which provide support to the state
Judiciaries and GoS Police in liaison with and support from UNAMID Partners.
The Project's Main Partners:
The UNDP Rule of Law Project in Darfur works closely with United Nations African Union Mission in Darfur (UNAMID) sections of
Human Rights, Rule of Law, Judicial Affairs, Child Protection, Civil Affairs, Civilian Police, Corrections/Prisons Advisory Unit and Gender.
In addition, UN agencies e.g. UNHCR, UNFPA, UNIFEM, UNICEF, UNAIDS, WFP, and a number of INGOs and LNGOs are also key
partners of the project. The partnership established with the Prisons Advisory Unit of UNAMID Rule of Law in each State has been
particularly successful. This partnership has seen UNAMID Corrections officers provide technical advisory services; training, air
transport and engineering support for UNDP funded activities. The main donors for the Darfur Rule of Law Project in Darfur are the
British Government Department for International Development (DFID), the Netherlands Government, and Danish Agency for
International Development (DANIDA), the Canadian International Development Agency (CIDA), the Swedish International
Development Agency (SIDA) and the Norwegian Government and the Japanese Agency for International Cooperation (JICA).
From a longer term perspective, the project aims to support the empowerment of local communities as part of the process of
restoring the confidence in the rule of law institutions, and at the same time, strengthening rule of law institutions. In particular, the
project seeks to:
1.
2.
3.
4.
Raise awareness of basic human rights and rule of law amongst law-enforcement institutions, the judiciary, the police, the prison,
the prosecutors and security officials;
Empower local stakeholders to actively engage in preventing and bringing an end to the existing violations of domestic law and
international human rights standards;
Restore confidence in rule of law institutions, and gradually build a culture of justice, that is conducive to peace and sustainable
human development;
Promote and deepen decentralisation through adopting demand driven and community based initiatives and approaches
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The project has the following five outputs:
Output 1 – the programme managed according to UNDP requirements and standards;
Output 2 – Human rights awareness of local community and justice sector is enhanced;
Output 3 – Local communities empowered and access to justice enhanced through building capacity of NGOs/CBOs in targeted areas;
Output 4 – dialogue among Darfurian stakeholders enhanced, ensuring the equal participation of women in such dialogue and
increased access to national and international resources
Output 5 – State government Rule of Law institutions strengthened to provide rule of law services to the Darfur population with a
focus on women and other vulnerable groups
The Project Strategy/Approach:
By linking legal protection to development principles, the project seeks to support the empowerment of local communities as part of
the process of restoring confidence in the rule of law sector, while concurrently strengthening rule of law institutions. The UNDP Rule
of Law Programme in Darfur has adopted a pragmatic and incremental approach that addresses the multiple challenges facing the
current crisis and peace building process in Darfur. The programme maintains a measure of flexibility in order to scale up and
consolidate activities as recovery and development becomes more feasible.
In light of the foregoing, the project now seeks the services of two consultants (one team leader and one team member) to review
and assess the extent to which the project delivered on its stated targets, and establishes whether it is on track to meets its
development objectives. The consultants shall form a team, with a team leader and one team member working under the supervision
of, and reporting to the team leader.
The overall objective of conducting the evaluation is to determine, the progress of the project towards achieving its outcomes and
impacts, i.e. the relevance of activities implemented to (1) enhance protection of the rights of marginalized and vulnerable groups,
including IDPs (2) build the capacities of institutions responsible for administering justice, the appropriateness and level of service
delivery (para-legal component) in the IDP camps/settlements, the level of satisfaction of all stakeholders of the project with activities
undertaken and outputs and preliminary outcomes, the quality of physical assets procured, delivered and distributed; the
responsiveness and accountability of key stakeholders (especially duty bearers) in making decisions, particularly at the sub national
and regional levels of government; and the extent of transparency and accountability exhibited among the stakeholders, including the
UN Partners in making decisions that affect the implementation of the programme. In addition, the evaluation will provide inputs for
updating the output indicators especially numbers of communities and individuals reached. Findings of the evaluation will also be
used to increase the effectiveness and sustainability of the projects outputs through improvements in strategy and systems to meet
the demands of the beneficiaries, and will provide important elements and inputs for consideration in the design of a potential
successor programme in light of closure of SP II funding in December 2012. Specifically, the evaluation aims at assessing:
1.
2.
3.
4.
5.
6.
7.
Methods and channels through which beneficiaries at community level (marginalized and vulnerable groups/LNGOs and CBOs)
and state level (CSOs/LNGOS and state ministries and rule of law institutions ) were informed about the Project, its operating
principles and procedures, and the source(s) of information which beneficiaries found most useful in learning about the project;
Methods and procedures followed in identification and prioritization of beneficiary needs (IDPs, CBOs/local NGOs, state ministries
and local authorities’) (who facilitated the beneficiaries, how facilitation was done what the main priorities identified were);
Priorities funded among those identified by the beneficiaries;
The planning process(es) followed for the implementation of selected priorities, the relevance and adequacy of the work plans
produced and the suitability of the implementation modalities undertaken by service providers, including the UN Partners and
their local implementation partners;
The type, quality and adequacy of technical support provided to the beneficiaries to aid decision making and implementation by
the UN Agencies, CSOs/LNGOs, private sector and individuals throughout project implementation;
The relevance of interventions provided to the beneficiaries in addressing their articulated and prioritized needs;
The extent to which the physical assets, and other tangible and non tangible outputs from the alternative interventions from the
UNDP and its Partners are providing services to the target beneficiaries and communities, and the degree of satisfaction with the
services and outputs provided thus far;
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8.
9.
10.
11.
12.
13.
14.
15.
16.
Identification of benefits (both at community level and state level) that have arisen as a result of project implementation, and
their significance in terms of addressing concerns of marginalized and vulnerable groups on the one hand, and institutions of the
rule of law on the other;
Mechanisms put in place for the sustainability (operations and maintenance) of physical assets procured, and programming
initiated;
Mechanisms put in place to ensure use of acquired knowledge, skills and capacities by all beneficiaries;
The extent to which this project has helped reduce tensions and /or promoted social cohesion and increased access to justice
among the IDP community, and between the IDP and host communities, and between the marginalized and vulnerable groups
and government institutions;
The extent to which the lives of women and children have been improved following implementation of interventions, identifying
the most important, practical and sustainable of those interventions;
Adequacy of feedback mechanisms from beneficiaries (communities, local authorities, government counterparts) to funders of
interventions (UN agencies and Partners), and vice versa to improve the operations of the project;
Any additional improvements that can be adopted to enhance efficiency and operations of projects implementation, and hence
attainment of benefits by beneficiaries;
Documentation of lessons learnt to facilitate the design of a potential successor programme.
The eventual outcome of the evaluation is to enhance synergy amongst the major partners in the Rule of Law Project – the
beneficiaries (marginalized and vulnerable groups at community levels, and state institutions), and supply-side stakeholders (UN
agencies particularly UNDP and the various sections of UNAMID) as they wind up the operations of the current programme, and
plan for the implementation of the next phase of the project/programme.
Methodology:
Since this evaluation / assessment is designed as a qualitative research and impact assessment tool to be used to inform policy makers
and programme managers, the consultants shall use various participatory techniques that will ensure qualitative information is
obtained from different stakeholders that will be interviewed. Quantification, where applicable, of the findings will also be provided to
support the qualitative information obtained. In this respect, the consultants shall elaborate methodology (ies) to be applied which
will ensure capture of both qualitative and quantitative information from the groups at different levels in order to arrive at a justifiable
and definitive conclusion(s).
Duties and Responsibilities
Scope of Service:
The consultant team leader will lead the assessment of processes undertaken, level, efficiency and appropriateness of investments,
and numbers and categories of beneficiaries in selected sites of implementation that will be agreed upon with the Programme
Management Team, and prepare and submit the report of its findings as its major output. S/he will be supported by a team member
during the course of this assignment. To the extent possible, all key sites and stakeholders that implemented activities of the
programme will be selected for the evaluation. In particular, support activities of all UN partners will be reviewed and evaluated. The
findings of the report to be generated will be applied by the Programme Management Team comprising UNDP staff (both at Darfur
and Khartoum levels), government counterparts and project advisory boards to continue good practices as well as re-design those
aspects of the programme that are not working well/did not work, in order to address the needs of all beneficiaries in a potential
successor programme.
Support to be rendered by the Programme Management Team/UNDP:
The Project Management team will provide the following:
Page 32 of 45
1.
2.
3.
4.
All documentation related to the Governance and Rule of Law Programme in general, and the Darfur project in particular,
implementation processes, including the original programme documents, results and resources matrices, quarterly and annual
progress reports, monthly briefs, quarterly and annual financial statements, minutes of planning and project board meetings,
work plans etc which will facilitate the timely execution and completion of the assignment;
Logistics for the consultants during the course of the assignment, provided it is related to the assignment, including transport
to/from/within Darfur, and the logistics for the feedback workshop;
Fees of the consultants in a manner to be mutually agreed upon in a specific contract;
Reimbursable expenditures on production of receipts.
The consultant will provide the following:
Required expertise as outlined in these TORs below;
1.
2.
3.
An acceptable inception report detailing the methodology to be used and expected work plans by the first week of the
assignment;
A Draft Preliminary Report for each phase of the assignment as contained in the reporting schedule below;
A Final Report after receipt of written comments from the Client (UNDP). This shall not exceed two weeks after submission.
Outputs/Deliverables:
Through this assignment, the Team Leader, supported by a team member consultant, will be responsible for delivery of the following
outputs to the Client:
An inception report (maximum 10 pages including annexes) that elaborates on the methodology to be used during the study. The
methodology will specify a sample frame and interview guide for areas in which the evaluation will be conducted. Coverage will
include IDP communities/camps and IDP settlements that were covered by the programme since 2004; and those where project
implementation is still ongoing. It will also include state institutions associated with access to justice and rule of law issues (The
Judiciary, Ministries of Finance, the GoS Police, GoS Prisons, CBOs and NGOs). This shall be made available before commencement of
field work. The interview guide and data collection instruments should also clearly indicate questions and information expected for
every category of respondents.
The Evaluation Reports which are divided in two phases as follows: An Interim Report that shall be submitted to Programme
Management Team after the field work. This report will summarise the key findings from the field. The Programme Management
Team will provide comments within a period of one week from the date of submission so that the Consultants can incorporate
comments into the final draft. The Final Report (maximum 30 pages including annexes) shall be submitted at the end of the exercise,
first as a draft for comments and then a final report including the comments from a stakeholders’ workshop, including government
counterparts, local authorities, UN Partners, Local NGOs/CBOs, and the private sector where applicable. The report should be
comprehensive, containing the following:
An executive summary;
-
An introduction presenting the project’s background, the evaluation objectives and description of methodology used;
Findings of the evaluation as they relate to interview guide and data collection instruments (including tables);
Conclusion and recommendations.
-
The consultants shall submit six hard copies of the above-mentioned reports, and also electronic copies.
Reporting Requirements:
The consultants shall report to the Project Boards of the project through the Regional Programme Manager, Governance and Rule of
Law Unit in Darfur who will supervise the Consultants, and be the contact person for day-to-day dealings with them.
Page 33 of 45
Reporting Timetable Remarks:
1.
2.
3.
4.
5.
Inception Report Within 7 days from commencement Inception Report Approved
Draft Report Within 20 days from commencement of the assignment Draft Report submission. It is estimated that the field work
shall take 10 working days
Review and approval of the Draft Report 1 week from submission of the Draft Report The Client shall review the Draft Report and
make detailed approval notes for incorporation into the final report
Stakeholders Workshop Report Within 25 days from commencement of the assignment The main regional workshop will be
organized first in El Fasher (Darfur) with a debriefing scheduled in Khartoum for stakeholders
Final Report 10 days from approval of the Draft Report for incorporation of comments Final Report approved
Competencies
The consultant should ensure that the following key skills are available for this assignment:
-
Participatory research methodology;
Statistical and institutional analysis;
Good analytical skills;
Report synthesis and write-up;
Knowledge of programming in conflict or post conflict regions.
Required Skills and Experience
Education:
-
Advanced degree in social sciences, development and /or socio-economics, law or related fields.
Experience:
-
Proven experience in evaluation/research of not less than 10 years;
Evidence of qualifications and application of participatory research methodologies; and impact evaluation methods;
Knowledge of the Sudan/Darfur context, and /or other conflict and post conflict contexts including the social, political and
administrative structures from national/regional down to state/community levels;
Experience with rural development projects, projects related to rule of law and access to justice, capacity building for state
institutions, infrastructural developments, vocational skills training, employment creation, income generation etc.
UNDP is committed to achieving workforce diversity in terms of gender, nationality and culture. Individuals from minority groups,
indigenous groups and persons with disabilities are equally encouraged to apply. All applications will be treated with the strictest
confidence.
Page 34 of 45
7.2. Evaluation Matrix
Relevant Evaluation
Criteria
1.
Relevance of
activities
Key Evaluation Question
Specific Sub
question
Data Source
Data collection
Method/Tool
Indicators
Data analysis
methods
1.1 How relevant was the project in terms
of addressing beneficiary needs?
What methods
were used to
identity
beneficiary
needs?
What
approaches
were used for
each category of
beneficiaries?
What sources
were most
beneficial?
Primary/secondary
Document review,
Key informant
interviews, FDGs,
workshops
Qualitative
/needs
assessment
matrix
Primary/secondary
Project document,
Partner Agreements,
Quarterly and annual
reports
Baseline studies,
situational
assessment,
Vulnerability
assessment
Achievement and
limitations of
approaches
Primary/
Key informant
interviews, FDGs,
workshops
stakeholder meetings,
consultative meetings
1.4 Who facilitated, how was facilitation
done and what were the priorities
identified?
Was it directly
by project or
subcontractors?
Primary
Key informant
interviews, FDGs,
workshops
meeting minutes,
reports
Qualitative data
analysis –
categorization
of methods and
channels
Qualitative priority
assessment
1.5 What priorities were funded among
those identified by the beneficiaries?
Who was the
funder?
Primary/secondary
-Letters of
agreements in place
-Contracts in place
Qualitative
/priority
assessment
1.6 What planning process (es) followed
for the implementation of selected
priorities?
Level of
Engagement in
planning
Primary/secondary
Document review,
Annual Planning
minutes
Key informant
interviews
Document Review
Annual Plans Key
informant interviews
LOAs, McGA,lOA
Qualitative
categorisation
1.2 How appropriate was the approach
given the conflict context of Darfur?
1.3 What methods and channels were
used to inform beneficiaries?
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Qualitative
analysis
Relevant Evaluation
Criteria
2.
Efficiency
Relevant Evaluation
Criteria
3.
Key Evaluation Question
Specific Sub
question
Data Source
Data collection
Method/Tool
Indicators
Data analysis
methods
2.1 Was the project implemented
efficiently i.e. cost effective and on
time?
Was there value for
money for the
activities?
Primary/Secondary
Key informant
interviews, Document
Review Quarterley
and annual narrative
and financial reports
expenditure within
budget
,Implementation
within planned
timelines
Quantitative Cost benefit
analysis,
Budget vs.
expenditure
2.2 What was the relevance and
adequacy of Implementation
priorities; (i) planning processes, ii)
The work plans
iii) implementation
modalities
2.3 To what extent do feedback
mechanisms exist between the
beneficiaries, project participants
(local authorities &Gov) and funders
(UN & donors) of interventions?
What is the level of
satisfaction low,
medium or high?
Primary
Key informant
interviews.
Degree of beneficiary
satisfaction
frequency
analysis–
What is the level of
satisfaction low,
medium or high?
Primary
Key informant
interviews, FDGs,
workshops
-feedback loop
Qualitative
analysis
2.4 What are the risks/challenges that
affect efficiency of the project?
What additional improvements can be
adopted to enhance efficiency of
operations?
What risks /
challenge exist and
how they address
them?
Primary/
secondary
Key informant
interviews, FDGs
-Quarterly and annual
reports
-Minutes of meeting
agenda
Qualitative /risk
assessment
Key Evaluation Question
3.1 Did the project achieve its intended
outputs?
Specific Sub
question
Type of outputs,
quality and
quantity of
outputs
Data Source
Primary/
secondary
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Data collection
Method/Tool
Document review
annual plans,
quarterly and
annual reports,
M&E Reports
Indicators
Achievement
/performance rate
Data analysis
methods
Qualitative
/quantitative
using SPSS for
generating
frequencies, rates
and ratios
4.
Effectiveness
3.2 What services are provided? To what
extent are these addressing the needs
of;i) Vulnerable groups and
communities, ii) rule of law institutions?
3.3 What benefits have resulted from
the project?
1- Community (rights).
2- Institutions (accountability and
responsiveness)
3.4 What inter-agency strategies were
employed for the initiative?
Relevant Evaluation
Criteria
5.
Impact
Key Evaluation Question
4.1 What changes intended or
unintended occurred as a result of the
project
i) tension reduction, ii) social
cohesion, iii) increased access to
justice?
What are the
quality and
quantity of
services?
What were the
contributing and
impeding factors
What are the
types of benefits?
Quality and
quantity?
Primary/
secondary
Key informant
interviews, FDGs,
workshops
Document review
baseline data
degree of priority
needs addressed,
degree of fit between
needs & services
Qualitative categorization
Primary/
secondary
Key informant
interviews, FDGs,
Most Significant
Change (MSC)
workshops
Document review
quarterly, annual
reports,
evaluations,
observation
checklist
level of knowledge of
rights, degree of
institutional
building/strengthening,
Level of assets
provided; # of justice
and confidence centres
established
Qualitative
analysis
What synergies
resulted from the
partnerships?
Primary/
secondary
Key informant
interviews, partner
agreements and
reports
Degree of coherence,
Level of synergy
Qualitative/quant
itative coherence
analysis
Specific Sub question
What were the changes on
Human rights awareness of
local communities &
empowerment to access
justice
Capacity building of NGOs,
LNGOs
Participation of women and
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Data Source
Primary/
Secondary
Data collection
Method/Tool
Indicators
Key informant
interviews, FDGs,
workshops
Document
review – annual
reports,
evaluations
- Degree of tension
reduction
Level of awareness
and access to justice
Degree of capacity of
NGOs to provide
services
- Levels of
participation of
women
mediation
- degree of
Data analysis
methods
Qualitative /.
-quantitative
analysis
access to national and
international resources
institutional
strengthening of Rule
of Law institutions
Rule of law institutions
strengthened
4.2 To what extent have the lives of
women and children been improved?
What real difference has the
project made, in terms of
skills acquired on human
rights and the use in
accessing justice?
Primary/
Secondary
Key informant
interviews, FDGs,
workshops
Document
review annual
reports,
evaluation
reports
- Level of attitude
and behaviour
change
reduction in GBV
- degree of tension
reduction
- Levels of mediation
- level of access to
justice
-degree of quality of
service provided
4.3 What has been the impact of the
capacity building at (community ,
CBOs and government officials),
What Is the evidence of
impact?
Primary/
secondary
Key informant
interviews, FDGs,
workshops
Observation
check lists
Document
review – annual
reports
Degree of partner
capacity
strengthening
(institutional,
systems, HR and
program)
4.3 To what extent is the project
upstream contributing to legal and
policy reform?
What are the changes in law
and practice procedures?
Primary/
Secondary
Key informant
interviews,
Document
review quarterly
and annual
reports,
advocacy and
policy papers
- -Signature of
project priorities by
policy makers
Page 38 of 45
Qualitative /
- impact
assessment
Qualitative/.
-policy analysis,
media analysis
Relevant Evaluation
Criteria
Key Evaluation Question
Specific Sub question
Data Source
Data collection
Method/Tool
Indicators
- existence of
sustainability plan or
Exit strategies
Level of financial
capacity to continue
activities
Ability to attract
external funding
1.
Sustainability
5.1 What mechanisms were put in
place for sustainability of
programme initiatives beyond
funding period? 5.2 What
mechanisms are put in place to
ensure use of acquired knowledge,
skills and capacities by all
beneficiaries and IPs?
What is the capacity for
project continuity by the
institutions?
How will physical assets
procured under the project
be maintained?
Primary/
secondary
Key informant
interviews, FDGs,
Document
review minutes
of Board
minutes, annual
plans
2.
other
6.1 What lessons can you share
that will inform the design of a
potential successor programme?
Are there any documented
lessons?
Primary
Key informant
interviews
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Data analysis
methods
Qualitative/.
analysis
7.3. Data Collection Tools
This form will be used to document key observations and conclusions from each semi-structured interview with project
stakeholders
Name of Person interviewed:
Job Title:
Institution:
Location:
Name of Interviewer:
Date and Time of Interview:
Criteria 1. Relevance
1.1 addressing beneficiary needs
Key observations and conclusions
1.2 Appropriateness of approaches in conflict context
Key observations and conclusions
1.3 methods and channels used
Key observations and conclusions
1.4 Facilitation
Key observations and conclusions
1.5 Priority funded
Key observation and conclusions
1.6 Planning Process
Key observation and conclusions
Criteria 2. Efficiency
2.1 Efficient implementation
Key observations and conclusions
2.2 Relevancy and adequacy of planning tools
Key observations and conclusions
2.3 Feedback mechanisms
Key observations and conclusions
2.4 Risks and challenges
Key observations and conclusions
Criteria 3. Effectiveness
3.1 Achievement of intended outputs
Key observations and conclusions
3.2 Services provided
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Key observations and conclusions
3.3 Benefits from the project
Key observations and conclusions
3.4 Inter-agency strategies
Key observations and conclusions
Criteria 4. Impact
4.1 Intended and unintended changes
Key observations and conclusions
4.2 Changes in the lives of women and children
Key observations and conclusions
4.3 Impact of capacity building
Key observations and conclusions
Criteria 5. Sustainability
5.1 Mechanisms for operations
Key observations and conclusions
5.2 Mechanism for knowledge, skills and capacity
Key observations and conclusions
Criteria 6. Other
6.1 Lessons
Key observations and conclusions
7.4. Persons Interviewed
State
Stakeholder
Khartoum
UNDP
Position
Deputy Country Director
Deputy M & E Officer
Head of the Procurement
M & E Officer
Meeting with project team
Programme specialist ROL
Meeting UNDP ROL in Darfur
N.Darfur
Public Expenditure Specialist
Regional Manager North Darfur Rule of Law
Page 41 of 45
Names
Amin SharKawi
Faisal Abdall
Mohammed H. Khan
Nuha Abulgadir
Julius Coredo, Technical Specialist
Urban Planning
Nuha Abdulgabar
Yousuf Ahmed, Rule of Law Officer,
Judiciary Project
Alemu Kidane Tekie
Christopher Laker,
S.Darfur
Bar Association
Project manager - UNDP Nyala
Team leader Project specialist
Project Officer W.Darfur
Co/Founder Mutawinat Benevolent Company
Deputy Bar Association
Deputy Secretary Bar Association
Lawyer
Lawyer- Activist in Human Rights
Dean of Police
Dean of Police
Dean of Police
Judiciary N. Darfur
GOV
Legal Aid Department
W.Darfur
Khartoum
Private company
N.Darfur
IDPs
Communities
State
Stakeholder
NGO/CBO
N. Darfur
Legal Aid Department
Police Colonel
Police Commissioner of North Darfur State
State Directorate of Prisons
Abu-Shok Community
Abu-Shok Community
Abu-Shok Community
Abu-Shok Community
Abu-Shok Community
Abu-Shok Community
Abu-Shok Community
Abu-Shok Community
Position
Ajaweed Organization
Ajaweed Organization
Ajaweed Organization
Director Ajaweed Organization for Peace and
Reconciliation
Mutawinat Benevolent Co.
Mutawinat Benevolent Co.
Mutawinat Benevolent Co.
Mutawinat Benevolent Co.
Mutawinat Benevolent Co.
Mutawinat Benevolent Co.
Civil Affairs Officer
UN agencies
UNAMID Civil Affairs
UNAMID Civil Affairs
Page 42 of 45
Elhabib Hamadok
Mardea Elaine Martin-Wiles
Osman Hassan Mohammed
Samia Elhashmi, Co-Founder
Mustafa Omer Mohammed
Abdelati Idris Mohammed
Almutaman Mohammed Elghaya
Mohammed Salim Gad Alla
Abelmoniem Mekki
Alamin Mohammed Ali
Elrashid Musa Alzain
Amir Mohammed Ali
Alhadi Ali Abdalla Legal Advisor for
General Administration
Ibraham Mohamed
Dr. Walid Abdu Elhag
Omer Alamin Mohammed Hamad Alnil
Ahmed Ehbashir Giumaa
Ahmed Suliman Awad alla
Asia Abdalla Mohammed
Doma Ahmed Agam
Fatima Adam Ahmed
Huda Abdelrahman Babikir
Mariam Abdalla Suliman
Mohammed Abdalla Mohammed
Sulma Mohammed
Names
Asim AHmed Alhassan Alnay
Halima Mohammed Abdulrahman
Ibrahim Abbakar Saad
Ahmed Adam Yousif
Arwa Sideig Abdalla Eshag
Mohamed Ibrahim Ahmed Lawyer
Mubarak Mahmaud Mohamed
Paralegal
Ndeema Osman Addurhman Paralegal
Tasneem Ahmed Taha
Waheeba Bashir Ahmed
Kwame J.Attikese
Jean Jacques Bazoula Seneiro Civial
Affairs
Paul Mukasa Ssali
UNAMID Civil Affairs
UNAMID Community Police
UNAMID Human Rights
UNAMID Human Rights
UNAMID Police
UNAMID Police
UNAMID Police
UNAMID Rule of Law
UNAMID Rule of Law
UNAMID Rule of Law
UNAMID Rule of Law
UNAMID Senior Civil Affairs Officer
UNDP
UNFPA
UNHCR
State
Stakeholder
Academic
Institution
S.Darfur
GOV
IDPs
Communities
NGO/CBO
Position
Dean Nyala Technical Collage
Dean Nyala University
Engineer - Deputy Nyala Technical Collage
Engineer - Ex Faculty Dean -Nyala Technical
Collage
Engineer, Project Director and Manager of
Interrelation Affairs - Nyala Technical College
Community Policing
DG, W. Darfur Prisons
Director of Judiciary Administration
Director of the Judiciary
Judge of the Appealing Court
Judge of the Appealing Court
Police Communication and Coordination
Judge of the Appealing Court
Kalama Legal Aid
Kalama Legal Aid
Kalama Legal Aid
Admin and Financial Officer- Humanitarian
Organization
Head Kass CSO forLegal Aid
Page 43 of 45
Rita Reddy, Chief Civil Affairs
Ahmed Farhan Arg D. Sector
Commander
Amira Ahmed
Christian Stephane Mikala OIC Human
Rights Section
Atef Khaled OIC Community Policing
Sector North
Junaird Bukar AGR & R Coordinator HQ
Tahelvl Chavhanaoic PER Sector North
Alem Abeshi, Judiciary Affairs Officer,
Sector North,
Jesse Daniel, Judiciary Affairs
Mohamed Usef, Corrections Officer
Salim Chambuso, Prisons Advisory
Unit, Medical Doctor,
Mr. Jean Jacques Baloula
Ibrahim Adam Khair, Rule of Law
Officer
Amal Dirar GBV Officer
Shigeyuko Sato, Senior Protection
Officer DPC Support Cell
Names
Musa Ali Abdulnabi
Mutaz Mansour
Engineer Hussain Eltom Ali
Hussein Mohammed Gibril
Dr. Suliman Ahmed Hamid
Hassan Mohammed
Salaheldin Ibrahim
Hassan Ibrahim Hassan
Osman Elsiddig Ahmed
Elfatih Hamid
Hkalid Mohammed Ahmed
Bashie Adam Iesa Dawaran
Abdalla Abdelrahman
Ahlam Hamid Hassan
Saeed Adam Shaeaf Eldin
Osman Khatir Ismail
Mohammed Mustafa
Adamahman Madani bdelrMohammed
A
UN agencies
State
Stakeholder
Academic
Institution
Bar Association
GOV
W. Darfur
IDPs
Communities
NGO/CBO
Head Humanitarian Association for legal aid
Humanitarian Legal Aid Organization - Lawyer
Secretary Kass CSO for Legal Aid
Women Lights
UNAMID Gender Affair Officer
UNAMID Correction Advisor
UNAMID Community Policing
UNAMID Judiciary Unit
UNAMID Rule Of Law Officer
UNFPA - W. Darfur
Position
Zalingei University – Peace and Development
Center
Zalingei University – Peace and Development
Center
Zalingei University – Peace and Development
Center
Zalingei University – Peace and Development
Center
Lawyer – Ginaina
Lawyer – Ginaina
President Procurator Bar Association –Ginaina
The Chief Judge - W. Darfur
W. Darfur Prisons Director
Paralegals at Dorti Community
Paralegals at Dorti Community
Paralegals at Dorti Community
Paralegals at Dorti Community
Paralegals at Dorti Community
Paralegals at Dorti Community
Paralegals at Dorti Community
Paralegals at Dorti Community
Paralegals at Dorti Community
Paralegals at Dorti Community
Paralegals at Dorti Community
Paralegals at Dorti Community
Paralegals at Dorti Community
Paralegals at Dorti Community
Bar Student – Alnahda NGO
Deputy Director – Almustagbal NGO
Alnahda NGO - Member
Financial Officer – Almustagbal NGO
Page 44 of 45
Muddathlir Hassan Ali
Muddatir Hassan Ali
Adam Abdelmula Omer Imam
Mahbooba Abdelrahman Ali
Xiangrong Huang
Lucy Mungai
Ali Abu Idris
Musa Mohammed
Ahmed Adam Ahmed
Dr. Ibrahim Mohammed
Names
Abdulrahman Eltahir Abdalla
Ahmed Eltigani
Alam Edin Ali Elimam
Dr. Tarig Ibrahim
Abdalla Dafalla Babikir
Mohammed Ishag Adam Ihaimir
Moneer Suliman Abbakar
Ahmed Ibrahim
Abdelrahman Eltahir
Abdel Aziz Abdalla Osman
Dar Elsalam Yousuf Haroon
Hawa Adam Bakhit Ali
Mohammed Ali Abdelmageed
Zainab Abdelrahman Inrahin
Aisha Hassan Ishag
Asma Saif eldin Mohi eldin
Fatima Mohammed Abdalla
Howaida Osman
Ibrahim Abdalla Bashir
Ibrahim Adam Abbakarm
Mohammed Ali Abdelmageed
Mohmmed abdelgadir Abdalla
Nor Eldin Abdalla Abdelkari
Twaheeda Abdelgadir Ahmed
Ahmed Ibrahim Suliman
Hamid Elsharif Mohammed
Abdel Shakoor ABdeldin Adam
Member – Alnahda NGO
Member - Almustagbal NGO
Programme Coordinator - Almustagbal NGO
Programme Coordinator - Alnahda NGO
Team Leader - Civil Affairs Officer
UNAMID Rule of Law
UN agencies
UNAMID Rule of Law
UNAMID Rule of Law
UNAMID Rule of Law
UNFPA - GBV Officer
Page 45 of 45
Mutaz Makki Mohammed
Mohammed Ahmed Koly
Mohammedlmukhtar Alnour
Noh Abbakar Elsalih
Abdel Saw
Mr. Moses Tei Paddy
Mr. Samwin Wakhakha – Judcial
Advisory
Mr. Edward Kofi Brinba
Mr. Mike Matamba
Mustora Mustafe Idris Hamid