Annex 4: Tanzania Case Study

Danida Evaluation of Programmatic Approaches to Support for the Environment in Africa

October 2010

Table of Contents

EXECUTIVE SUMMARY ........................................................................................................................ I

1. INTRODUCTION .............................................................................................................................. 1

2. THE CONTEXT ................................................................................................................................. 1

2.1 NATIONAL INSTITUTIONS, CIVIL SOCIETY AND PRIVATE STAKEHOLDERS ........................................................... 1 National institutions ........................................................................................................................ 1 Civil society ...................................................................................................................................... 2 Private stakeholders ........................................................................................................................ 2

2.2 KEY NATIONAL POLICY AND STRATEGY DEVELOPMENTS ............................................................................. 3 Evolution of Danida’s sector programmatic guidance .................................................................... 5 Further Danida programmatic guidance (2003) ............................................................................. 6 Danida’s Engagement 1996 to 2008 (see Timeline in Sub- Annex 2) .............................................. 8

3. FINDINGS ..................................................................................................................................... 11

3.1 RELEVANCE .................................................................................................................................. 11 3.2 EFFICIENCY ................................................................................................................................... 15 3.3 EFFECTIVENESS ............................................................................................................................. 18 3.4 CAPACITY DEVELOPMENT ................................................................................................................ 24 3.5 SUSTAINABILITY ............................................................................................................................ 25 3.6 IMPACT ....................................................................................................................................... 29 3.7 COORDINATION ............................................................................................................................. 35 3.8 COMPLEMENTARITY ....................................................................................................................... 38

4. LESSONS AND RECOMMENDATIONS ............................................................................................ 39

SUB-ANNEXES

SUB-ANNEX 1 LIST OF PERSONS MET ............................................................................................... 44

SUB-ANNEX 2 TIMELINE – DANIDA SUPPORT TO THE ENVIRONMENT 1996 TO 2009, TANZANIA .... 47

SUB-ANNEX 3 LOGIC MODELS .......................................................................................................... 48

SUB-ANNEX 4 WORKSHOP REPORT .................................................................................................. 53

SUB-ANNEX 5 WORKSHOP QUESTIONNAIRE RESULTS ..................................................................... 59

Abbreviations CBFM Community Based Forest Management CBNRM Community Based Natural Resource Management CBO Community Based Organisations CSO Civil Society Organisation Danida Danish International Development Assistance DC District Council DFO District Forest Officer DFID Department for International Development (UK) DKK Danish Kroner DoE Division of Environment DNRO District Natural Resources Officer DP Development Partners DPG Development Partner Group DPG-E DP Group-Environment and Natural Resources D-by-D Decentralisation by Devolution EAMCEF Eastern Arc Mountain Conservation Endowment Fund EC European Commission EIA Environmental Impact Assessment EMA Environmental Management Act EISP Environmental Management Act Implementation Support Programme ESP Environmental Sector Programme (2000-04) ESPS Environmental Sector Programme Support (2007-12) EWG Environment Working Group FBD The Forestry and Beekeeping Division Finnida Finnish Development Agency FY Financial Year GBS General Budget Support GDP Gross Development Product GEF Global Environment Facility GoT Government of Tanzania Hima Hifadhi ya Mazingira (Kiswahili) (Environmental Conservation) HIV/AIDS Human Immune-Deficiency Virus / Acquired Immune-Deficiency

Syndrome IDA International Development Agency IDGE Informal Discussion Group on Environment IFMS Integrated Financial Management System IFP Indicative Planning Figure IGA Income Generation Activity INGO International Non-Government Organisation JAST Joint Assistance Strategy, Tanzania JFM Joint Forest Management LGA Local Government Authority LGCDG Local Government Capital Development Grant LGRP Local Government Reform Programme LGSP Local Government Support Programme (WB) M&E Monitoring & Evaluation MDA Ministry, Departments and Agencies MDGs Millennium Development Goals MEMA Matumizi Endelevu ya Misitu ya Asili (Kiswahili acronym for Sustainable

Management of Natural Forests)

MIS Management Information System MJUMITA Mtandao wa Jamii wa Usimamizi wa Misitu (Kiswahili)- Tanzania

Community Forestry Network MKUKUTA Swahili acronym for: National Strategy for Growth and Reduction of

Poverty MMS MKUKUTA Monitoring Systems MNRT Ministry of Natural Resources and Tourism MoFEA Ministry of Finance and Economic Affairs MoU Memorandum of Understanding MTEF Medium Term Expenditure Framework MTP Medium Term Plan NAPA National Adaptation Programme of Action NEAC National Environmental Advisory Committee NEAP National Environmental Action Plan NEMC National Environment Management Council NEP National Environmental Policy NFP National Forest Programme NGO Non Governmental Organization Norad Norwegian Agency for Development Cooperation NRCF Natural Resources Consultative Forum NRM Natural Resources Management NWWG National Wetlands Working Group O&OD Opportunities & Obstacles to Development PAF Performance Assessment Framework PFM Participatory Forest Management PMO-RALG Prime Minister‟s Office, Regional Administration and Local

Government PMS Poverty Management System PRGF Poverty Reduction and Growth Facility PRS Poverty Reduction Strategy PSRP Public Service Reform Programme RDE Royal Danish Embassy RS Regional Secretariat SCP SEA

Sustainable Cities Programme Strategic Environmental Assessment

Sida Swedish International Development Cooperation Agency SIMMORS Sustainable and Integrated Management of the Malagarasi-Muyovosi

Ramsar Site SoER State of the Environment Report SUALDWC Strategy for Urgent Action on Land Degradation and Water Catchments SUDP Strategic Urban Development Plan SWAp Sector Wide Approach SWM Sustainable Wetlands Management TA Technical Assistance TAFORI Tanzania Forest Research Institute TASAF Tanzania Social Action Fund TFCG Tanzania Forest Conservation Group TFCMP Tanzanian Forest Conservation and Management Programme TNRF Tanzania Natural Resource Forum TFS Tanzania Forest Services ToR Terms of Reference

TZS Tanzanian Shilling UCLAS University College of Lands and Architectural Studies, Dar es Salaam UDEM Urban Development and Environmental Management UN United Nations UNDP United Nations Development Programme UN-Habitat United Nations Habitat UTUMI “Utunzaji wa Misitu” for the project “Village Based Forest and

Woodland Management in Lindi Region VLFR Village Land Forest Reserve VNRC Village Natural Resources Committee VPO Vice President‟s Office WB World Bank WCST Wildlife Conservation Society of Tanzania WD-WU Wildlife Division-Wetlands Unit WG Working Group WMA Wildlife Management Areas WWF Worldwide Fund for Nature

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Executive summary The mission to Tanzania was the last of the three country field visits of the Danida Evaluation of Programmatic Approaches to Support for the Environment in Africa for the period 1996-2009. The mission took place between 22nd February and 9th March 2010 and was followed by a synthesis workshop in Nairobi in May 2010. Background of Evaluation Danida has provided support within the environment in both rural and urban areas in Africa since the early eighties. The Evaluation of Programmatic Approaches to Support for the Environment focused on the bilateral environmental programmes with African partner countries, specifically focusing on Egypt, Tanzania and Zambia. Over the period, Danida has increased its use of programmatic approaches in its bilateral environmental support. These approaches are based on the principle of coordinated support for a locally owned programme of development, and are intended to improve country owner-ship, use of local systems as well as enhanced donor harmonization. The evaluation was commissioned by the Evaluation Department of Danida (EVAL) and was conducted by a consultancy team from ITAD Ltd of the UK and Orbicon A/S of Denmark together with a local consultant from EAD Consultancy firm.

Objectives of the Evaluation The main purpose of the evaluation was to analyse results and, where possible, impact; as well as the challenges from the use of programmatic approaches in the field of environ-ment over the period 1996-2009. The study aims to promote lesson learning for future strategies on and implementation of environmental support. The evaluation focused on two areas:

Results, challenges and experiences linked to the implementation of programmatic approaches in the field of environment given the cross-sectoral nature of the sector.

Capacity development, in particular development of environment and natural resource management institutions at central, regional and local levels, which has been a major component in many bilateral environmental programmes in African partner countries.

Scope of the Evaluation In line with the central guidance, Danida‟s engagement in Tanzania has changed its support modalities throughout the period under evaluation. Between 1996 and 1999, support was primarily through discrete projects such as HIMA (Hifadhi ya Mazingira or Environmental Conservation) in the Southern Highlands. Driven by the MIFRESTA1

1 In English, an Environmental Peace and Stability Fund that earmarked resources to selected countries

for environmental initiatives.

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funding instrument, a number of relatively small projects were launched in rural and urban settings. These included the Matumizi Endelevu ya Misitu ya Asili 2 or MEMA from 1998 in the former. In urban environmental assistance, Danida supported six major cities as part of a Sustainable Cities Programme from 2000. By 2000, the shift towards a more coherent programmatic approach by Danida had started under the Environmental Support Programme (ESP), 2000-04. The programme did not, as such, have any funds but instead the intention of setting out a future strategic direction for the sector. A landmark change in Danida‟s support to environment took place in 2007, when the Environmental Sector Programme Support (ESPS, 2007-12) was approved. The ESPS is designed around three components: support for the Environmental Management Act (EMA Component) anchored in the Vice President‟s Office, support for the Urban Decentralised Environmental Management (UDEM) coordinated by the Directorate for Local Government of Prime Minister‟s Office for Regional Administration and Local Government (PMO-RALG), and a Participatory Forest Management Component (PFM) within the Ministry of Natural Resources and Tourism (MNRT) and its Forest and Beekeeping Division. Danida also supports the Wildlife Division, also under MNRT, through the Sustainable Wetland Management Project (SWM). As a result of a review in early 2010, the ESPS is to be given a no cost extension to 2013, and preparations made for a new phase of support thereafter. Danida have also supported civil society organisations that have a presence in the environment sector including the World Wildlife Fund and Care, and the few large national NGOs, such as Tanzanian Forest Conservation Group (TFCG) and Mtandao wa Jamii wa Usimamizi wa Misitu (MJUMITA)3 in advocating for the interests of local communities and engaging in dialogue with government. Civil society in the urban sub-sector are organised less around environmental issues and more around other issues such as HIV/AIDs and human rights, though some organisations have been involved service providers at community level.

Methodology The Danida-supported projects and programmes in Tanzania were compared in terms of relevance, efficiency, effectiveness, impact and sustainability. Relevance was judged against national environmental policy in Tanzania and against Danida‟s own guidance for providing assistance in this area. For efficiency, the evaluation looked at the efficiency of the use of inputs to deliver results. For effectiveness, impact and sustainability, the assessment focused on a number of completed projects (Participatory Forest Management (PFM), Sustainable and Integrated Management of the Malagarasi-Muyovozi Ramsar Site (SIMMORS), Hifadhi ya Mazingira (HIMA)4, Uluguru Mountains Conservation Programme (UMCP), and the Sustainable Cities Programme (SCP). The evaluation also looked at complementarity (especially how project experiences were used in the formulation of broader environmental programmes, and how donors‟

2 Kiswahili acronym for Sustainable Management of Natural Forests

3 Kiswahili acronym for Tanzania Community Forestry Network

4 Kiswahili acronym for Environmental Conservation

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funds were being combined in mechanisms such as basket funding); coordination in terms of donors and the URT working together in the sector, and in line with the Paris principles of aid effectiveness.

Summary of Findings

The two phases of introducing a programmatic approach (2000-04 and 2007-12) reflected the circumstances and adhered in part to the Danida guidance available at the time. The ESPS was able to take advantage of an improved national assistance strategy (the JAST) and achieved more in terms of alignment and linking to national strategy but was still not fully programmatic (in terms of criteria such as a longer time frame, strong national ownership and joint funding).

The ESPS design though well-aligned, was ambitious, anticipating other donor support would come on board to ensure adequate funding and also strong government leadership that would deliver effectively at national and local levels. In the event neither of these expectations have been fully met. While aid harmonisation and government ownership are generally strong in Tanzania, in the area of environment performance in these areas have been less strong and this has handicapped progress. Defining a sector approach is very difficult with more than 15 donors in the working group, all with a range of priority areas for investment, and uneven levels of capacity across government agencies.

Using government systems as part of the programmatic approach has proved inefficient, with delays in disbursements and reporting. The proportion of total funds reaching beneficiaries compared to overheads is likely so far to be less than optimal.

The earlier natural resources and urban environmental projects are generally found to have been effective, though relatively high cost. PFM support led to widespread use of community-led management approaches, conservation and the potential for sustainable incomes from forest products. Urban management has improved waste disposal, drainage and planning in the targeted cities.

In relation to sustainability and impact, interventions in PFM have had an impact on national policy by testing and informing the application of new legislation. From covering only a few districts in 2003, Danida support has been instrumental in expanding the national PFM policy to 53 districts. The increase in reporting on implementation of the EMA, revenue growth and solid waste management are likely to be partly at least the result of Danida‟s continued support in these areas. The interventions would have been more effective if designed with: a longer time-frame and a better match of programme ambitions with local authority capacity.

As lead donor, Danida coordinated the donor group on environment well and used the group to produce documents and agree on positions. But the group could have sought more strategic engagement with GoT around environment mainstreaming and links to poverty reduction.

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Apart from the PFM experience – which has been longest in duration - there is limited evidence that the shift to a programmatic approach as such has been effective. The focus on value for money and putting pressure on slow government systems has meant a reversal to a more project approach in some areas.

Lessons

1. Unrealistic assessment of donor intentions to join basket funds and over-

ambitious timeframes can inhibit a successful transition to a programme approach.

2. Complementary support in other sectors (such as in roads) together with support for the lead coordinating GoT agency can build mainstreaming approaches.

3. Long term engagement in a sub-sector can bring benefits when shifting to a programmatic approach. Thus, the national forestry programme has benefited from earlier Danida projects, which, though relatively high cost, have helped underpin the present PFM approach.

4. Long term uninterrupted commitments are essential. The long-term

commitment and stamina of Danida is crucial. Setbacks are to be expected, both financial and technical, but rather than deterring the donor from continuing their support, the setbacks should be used to intensify the dialogue on the way forward.

5. Establishing a link to poverty alleviation is not easy in the environment sector.

There have been documented changes in village ownership and control of forest and wetland resources, but there is also evidence of elite capture and of minimal transfer of assets to the poorer members of the community.

6. There is a trade-off to be made between obtaining fast results and building

ownership and alignment. Developing a programmatic approach in the environment requires increasing reliance on Government systems that in turn brings with it slow disbursement and the imposition of complex administrative and financial guidelines for districts who have limited capacity to implement environmental programmes.

7. Size and ambitions of programmes should match the means available. The

current stalemate of several of the components under the ESPS can be attributed to a tendency of Danida to overestimate its own weight during the design phase.

8. Capacity assessments and strengthening of administrative bottlenecks.

Late disbursements from the Treasury have been detrimental to the PFM and wetlands programmes. More thorough assessments of actual capacity of MoFEA and local governments and targeted capacity development of these institutions to handle correct flow of funds should be undertaken in connection with the design of new programmes.

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9. TA can play an important role in complex programmes. In an environment where complex programmes are being introduced into fragile government institutions undergoing fundamental reform changes, TA can act as a buffer to the donor, a bridge-builder to the Embassy and as a technical resource having the surplus to document, reflect and provide independent advice to both the Government and the Donor.

Recommendations The Embassy may find the following recommendations useful:

1. With a decision to agree a new phase of funding for PFM, if necessary facilitate the slow GoT reporting by providing assistance upon request.

2. Make strong efforts to seek broader donor support, as well as GoT ownership for the ongoing EISP component. One practical step would be to convene a retreat on progress and future direction of the EMA, and include DPs, GoT, as well as relevant NGOs. Help to further strengthen links between VPO, MoFEA and line ministries on the EMA implementation.

3. There are a wide range of civil society actors in environmental issues, but typically they act as implementers and are not well linked to policy and strategy fora. Danida should actively support mechanisms to bring about broader environment consultation (fora like IDGE) that counterbalances the voice of government, using the resources ear-marked under the ESPS.

4. The preparation of the new MKUKUTA will determine how environmental issues are funded and mainstreamed over the next five years. Danida should seek ways to (i) support a more robust MKUKUTA review of environment performance leading to better future strategy, and (ii) support better review, monitoring and dissemination of MKUKUTA environment indicators.

5. Capitalise on experiences already gained by undertaking independent evaluations. The sustainable cities projects hold much more experience than has been documented in mid-term reviews and completion reports. Both the current UDEM component and the possible future engagement with the largely WB funded strategic cities projects would benefit an independent consolidated review of achievements and experiences gained,

6. Interventions at the local level will be more effective if designed with a longer time-frame where programme ambitions are better matched with local government capacity, and are based on well-documented lessons learned.

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1. Introduction 1. The mission to Tanzania is the third of three country field visits, as part of the Danida Evaluation of Programmatic Approaches to Support for the Environment in Africa. The Tanzanian field mission took place between 22nd February and 8th March. The country case studies will be followed by a synthesis workshop in Nairobi in May. 2. The field mission included field visits to Kilwa and Morogoro Districts. A workshop was held on the 8th March where preliminary findings were discussed with some 30 participants. The schedule of meetings and mission itinerary is attached in Sub-Annex 1.

2. The Context

2.1 National institutions, civil society and private stakeholders

National institutions

3. In Tanzania, the institutional arrangements for environmental issues are complex. The key government players in the environmental sector include first and foremost the Vice President‟s Office (VPO) that, from 2004, oversaw and coordinated the Environmental Management Act (EMA) via the Division of Environment (DoE). The VPO also hosts the National Environment Management Council (NEMC) (http://www.nemctan.org/) mandated to undertake law enforcement, monitoring of EIAs and compliance inspections. Danida supports the EMA via a component under the Environmental Sector Programme Support (ESPS). 4. Several line ministries have a strong stake in the environment, and all are required to report to the VPO regarding their compliance to the Environmental Management Act. Ministries with major environmental involvement include the Ministry of Energy and Minerals, Ministry of Industry, Trade and Marketing, Ministry of Lands, Housing and Human Settlements Developments, Ministry of Livestock and Fisheries, Ministry of Water and Irrigation, Ministry of Agriculture Food Security and Co-operatives, and the Ministry of Natural Resources and Tourism (MNRT).5 The latter hosts the Forest and Beekeeping Division (FBD),6that implements the Participatory Forest Management plan supported by Danida in four targeted regions. Danida also supports the Wildlife Division, also under MNRT, through the Wetland Management Project.. MNRT employed 4000 staff until 1999. After a major restructuring, this was reduced to 2000 staff. Further restructuring has been in the pipeline in the past decade, for example with the decision to establish an independent Forest Service. 5. The decentralisation process has also placed the Prime Minister‟s Office, Regional Administration and Local Government (PMO-RALG) in a central position when dealing with environmental issues. All district line agencies report via the District Council to the PMO-RALG. District monitoring data are sent via the Regional Administrative Secretariat to the respective line ministries. The Danida-supported Urban

5 See: http://www.tanzania.go.tz/ministriesf.html.

6 See: http://www.nfp.co.tz/

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Development and Environmental Management (UDEM) component has its secretariat in the PMO-RALG office.

Civil society

6. Whilst most prominent INGOs (e.g. WWF, IUCN, Care) are present in Tanzania and active in especially the „green‟ environmental sub-sectors, there are only few large national NGOs capable of advocating for the interests of local communities and engaging in quality dialogues with government institutions. These include the Tanzanian Forest Conservation Group (TFCG), Mtandao wa Jamii wa Usimamizi wa Misitu (MJUMITA) and the Wildlife Conservation Society of Tanzania (WCST). TFCG focuses mainly on areas with a high biodiversity value (the coastal forests and the Eastern Arc Mountains) and operates in 14 districts. MJUMITA is a newly formed federation for community forest conservation networks and is a response to the need for communities engaged with Participatory Forest Management (PFM) to be organised under one organisation. The objectives of the federation includes the sharing of knowledge and experience on forest management issues, uniting the forest conservation communities, and working towards having one common voice on forest management. 7. Further support to civil society is provided by the Eastern Arc Mountains Conservation Endowment Fund (EAMCEF), which is a trust fund established as a joint initiative between the Government of Tanzania (GoT), the World Bank (WB) and Global Environment Facility (GEF) to secure funding for conservation and development initiatives in the Eastern Arc Mountains. The fund operates as an investment fund and has a value of approximately USD 7 million at present. WCST has been previously supported by Danida through the Uluguru Conservation project implemented in collaboration with Birdlife International/The Danish Ornithological Society. 8. Finally, there is the Tanzania Natural Resource Forum (TNRF) which is a networking organisation that links a wide range of individuals and organisations active and interested in the natural resources sector in Tanzania. The Forum provides a support platform for its members by advising on project applications and initiating biweekly meetings and workshops. TNRF has experienced an increase in both membership and permanently employed professional staff over the last few years. A recent initiative (late 2007) by TNRF and the forestry working group to establish an independent forest-monitoring framework (monitoring the monitors) has yet to be fully established. The initiative is funded by the Danish Embassy. 9. Civil society in the urban sub-sector is more organized around issues such as HIV/AIDS, land rights and other social issues rather than the environment. Most such organisations have to date mainly been involved in environmental issues as service providers (such as for garbage collection, training in financial management, etc), particularly at community level.

Private stakeholders

10. The involvement of the private sector in natural resource management is limited to the interests of private lodge owners, hunting companies and the wood processing industry. In the urban environment, the private sector is mostly present through construction schemes within solid waste management, energy and sanitation. The possibilities for the district authorities to outsource community services to the private sector have had a very limited success so far.

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2.2 Key National Policy and Strategy Developments

11. Over the past 15 years, Tanzania has embarked on several ambitious government reform processes. These have sought to fundamentally change the way central govern-ment plan and execute policies and legislation which places gradual (but increasing) emphasis on the „subsidiary principle‟; empowering local governments to plan and budget for local development priorities. The National Environmental Policy (NEP) in 1997 recognised the need to address sectoral and cross-sectoral issues in a coordinated manner in order to undertake environmental management comprehensively in all sectors at national and local government levels. The Local Government Reform Programme from 1998 was developed to improve the quality of and access to public services provided through or facilitated by local government authorities and the Local Govern-ment Act from 1999, especially paved the way for these initiatives. 12. To facilitate development work in the districts, a Local Government Develop-ment Capacity Grant mechanism (LGDCG) was setup to enable high performing Local Governments (LGs) to receive investment funding from central government, beyond existing recurrent costs support. All LGs are assessed on an annual basis for their performance with respect to their target achievements and having in place transparent financial and procurement procedures. Although the system is meant to be a general support mechanism leaving it to LGs to decide on their local needs, the LGDCG includes a number of specific sectoral grants including District Agricultural Development Grants (DADG), Urban Development and Environmental Management grants (UDEM) and Rural Water Supply and Sanitation Programme grants (RWSSP). The LGDCG is central to donors‟ strategic thrust towards supporting the GoT‟s drive towards further decentralisation. 13. With the exception of forestry which has a well-defined and comprehensive regulatory framework, the policies and strategies in environment are numerous and regarded as often contradictory7. They include:8

Factories Ordinance* (1950)

Town and Country Planning Ordinance* (1956)

National Industries and Licensing and Registration Act* (1967)

Wildlife Conservation Act (2009)

Tanzania Bureau of Standards Act* (1975)

Local Government (District and Urban Authorities) Act* (1982)

Tanzania Investment Act* (1997)

Mining Act* (1998)

Land Act* (1999) amended in 2004

Village Land Act (1999)

Energy and Water Utilities Regulatory Authority Act* (2001)

Forest Act (2002)

Beekeeping Act (2002)

The Occupational Health and Safety Act* (2003)

Industrial and Consumer Chemicals Act* (2003)

National Land Use Commission Act* (2007)

Water Resources Management Act* No.11 2009

Water Supply and Sanitation Act no12 (2009)

7 For example see Final Appraisal Report, ESPS, 2007-11, Ch. 3.2, 2006 8 List adapted from the ESPS Programme Document

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Note: *Acts relating to urban environmental management.

14. The NEP in 1997 was followed by an Environmental Management Act (EMA). The act became effective from July 2005 and is administered from the VPO. This act overrules all existing legislation within environment, and defines rights and obligations for individuals, as well as institutions at local and national level with respect to environ-mental challenges. According to EMA, all government institutions, down to the village level, shall appoint environment committees and focal points. This work is well under-way: most sector ministries have now established sector environmental sections and have either appointed or designated sector environmental coordinators. More than 90% of LGA councils have either hired or appointed environmental officers.9 15. At the sub-sectoral level10, the forestry policy of 1998 followed suit in support of national trends towards decentralisation by stating that the future role of the sectoral central administration would be limited to policy development, regulation, monitoring, and facilitation. The Policy was followed by the Forest Act in 2002, which aims to, “delegate responsibility for the management of forest resources to the lowest possible level of local management consistent with the furtherance of national policies”. Most importantly, and linked directly to Danida‟s engagement in the sector, is that the Act enabled local communities to declare village, group or private forest reserves, thus enabling communities to enter into agreements with government and other forest owners for Joint Forest Management Agreements. From 2001, a comprehensive national forest programme was borne out of the policy, and this forms the basis for the PFM programme that continues today. 16. The first Poverty Reduction Strategy Paper (PRSP) 2000/01-02/03 placed an emphasis on economic growth towards the achievement of the longer term Vision 2025. This was succeeded by the five year National Strategy for Growth and Reduction of Poverty, or MKUKUTA, 2004/5-9/10, which included 15 targets relating to environment (see section on relevance for an overview) out of 108 in total. This was a first attempt to mainstream environment whilst also seeking to emphasize the link between poverty and environment. The preparation of the second generation MKUKUTA (2010/11-2014/15) started in April 2009 and is expected to be finalized in July 2010. At the time of writing, no official draft has been circulated by GoT, though a number of studies on environmental issues have been commissioned by the Poverty Eradication Unit of the Ministry of Finance and Economic Affairs (MoFEA) – including on approaches to environmental mainstreaming and on climate change. 17. Aid coordination in Tanzania has progressed in the past ten years to a high level. The Joint Assistance Strategy (JAST), which was finalised in 2007, promotes GoT leadership in development cooperation and joint actions that support the goals of the MKUKUTA. In 2001 nine Development Partners (DPs) started to provide budget support to the implementation of the PRS. For the FY 2007/8, budget support contributed to 15% of the GoT‟s total budget. Budget support is provided by 11 bilateral and three multilateral donors and the contribution for FY 2007/8 is expected to be around USD 673 million compared to USD 277 million in FY 2002/03. Amongst the DPs, the WB and DFID are the main budget support donors contributing 57% of the total budget support funds, with Denmark providing 2% of the support in 2006.

9 According to GBF-PAF Annual Report 2009 (October 2009). 10 Defined here as various areas within a broader environment „sector‟, such as forestry, fisheries, wetlands, urban environment, etc.

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18. The Performance Assessment Framework (PAF) underpins the budget support relationship. It is structured around the three „pillars of: (i) „underlying processes‟, (ii) „temporary process actions‟, and (iii) „outcome indicators‟. There is however something of a mismatch between the MKUKUTA and the PAF in terms of environmental indicators, with the latter missing explicit indicators especially at outcome level. In the past two years, this has begun to change as a result of donor support through the Development Partners Group on Environment11 (DPG-E) and several environmental indicators are now incorporated in the PAF.12

Evolution of Danida‟s sector programmatic guidance

19. In 1994, Danida introduced a new Sector Programme Support (SPS) strategy.13 Subsequent to the launch of the strategy, the first Guidelines for Danida Sector Programme Support (SPS) were published in April 1996. The first revision of the Guidelines was done in 1998, and this document provided the framework for the formulation of a first Environmental Sector Programme (ESP) for Tanzania in 1999-2000.14 The main features of the Guideline approach are given in Box 1.

11 An Informal Donor Group for the Environment (IDGE) was established in the early 1990s and was broadened beyond DPs to include a wide range of other stakeholders mostly from civil society. In 2000 it became the Informal Discussion Group on the Environment and in 2003 the group split into Donor Partner Group-Environment (DPG-E) and the IDGE. The DPG-E consists of those DPs that engage in programmes and activities related to environment and natural resources. A forestry sub-group was also established. 12 Although there is much discussion on the choice and appropriateness of different environmental indicators, with a contrast between those that are simple to measure yet only touch on process to the harder to measure but outcome related ones. See: Daima Associates Ltd. and ODI (2005) „Joint Evaluation of General Budget Support Tanzania 1995-2004.‟ Report to the Government of Tanzania and to the PRBS Development Partners. 13 Outlined in the Danida publication A Developing World, March 1994. Subsequent to this, Guidelines for Sector Programme Support were published in April 1996. 14 Environmental Support Programme Document 2000-04, Tanzania, Danida, no date.

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Box 1. Main features of Danida’s Programme Support Strategy (1998)

1. The measure of success is whether the SPS contributes towards strengthening the capability of the poor;

2. SPS relates directly to established or emerging national sector policies, strategies and programmes. It is of major importance how these are related or linked to other sectors and to the overall national policy framework (macro-economic and budgetary framework);

3. Focus on broader scale capacity development at central, regional and local level with a focus on national ownership.

4. The time perspective for co-operation is 10-20 years; 5. SPS provides support to various levels in the sector, including the central (regulatory/policy) level

as well as regional and local levels; 6. Accountability. Transparent political, administrative and financial accountability is

promoted by gradually, or from the beginning, making the partner institutions fully responsible for the use of the Danish funds;

7. SPS applies various modalities of support in a dynamic manner. The support could include training, technical assistance, operation and maintenance support, investments, commodity and budget support in varying proportions throughout the SPS period;

8. SPS offers room for flexibility within an agreed set of objectives, areas of support, and procedures. Greater attention will be given to building flexibility into the SPS concept, through for example continuous policy dialogue and regular joint reviews;

9. SPS promotes effective coordination by the national partner of support from various donors. Established or emerging national sector policies, strategies or programmes should function as a framework for assistance from various donors. The SPS can therefore include assistance aimed at improving the coordination capacity of the national partner.

20. According to the Guidelines (1998): “SPS is the operational approach applied by Danida for providing sector-wide bilateral development support”. The emphasis is on national ownership of development efforts, not only at the central government level, but also at other levels involved in SPS-related activities. The 1998 SPS Guidelines also emphasize that:

“Compared to the project approach, SPS emphasizes a longer time frame for broader based Danish assistance to a national endeavour in a sector. This in effect means that assistance would be extended to the national policy and strategy level as well as to the programme implementation level…..This represents a significant shift of emphasis in Danida’s strategy compared to the traditional way of defining projects. The project approach focuses on short and medium term results and pays less attention to comprehensive and sector-wide policy development and institutional, organizational and financial management issues (the process and sustainability factors). SPS strategy emphasizes the processes necessary to achieve sustainable results and impacts”.

21. Plus, the 1998 Guidelines emphasize that, “It is recognized internationally that sector programme support is easier to implement in social sectors like health and education compared with the agricultural and environmental sectors”. 15

Further Danida programmatic guidance (2003)

22. A new sector programme guideline was published in 2003, when Danida launched for the first time the “Guidelines for Programme Management” (GPM), which replaced the SPS Guidelines. In the GPM (2003), it was acknowledged that:

15 This same conclusion come out from the ”Aid Effectiveness in the Environmental Sector – Focus on Ownership and Alignment” (April 2009)

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“Conditions for preparation, implementation and monitoring of Danish-supported programmes vary considerably among partner countries. In some cases, the application of the Sector Wide Approach is fairly advanced… In other cases, the conditions for joint arrangements are not yet present, and more comprehensive activities… are implemented in a manner very similar to the traditional project modality, where preparation, implementation and monitoring are separate Danida undertakings”.

23. The Guidelines also highlight, “…the continuing effort to move from separate Danida activities towards the application of the Sector Wide Approach and alignment with procedures and formats of the national partner”. Plus, in terms of monitoring the guidelines stresses the need to, “…integrate programme monitoring into the monitoring system of the partner”. 24. The 2003 Guidelines are more encompassing than the 1998 Guideline. They are written for both MIFRESTA16 (Environment and Disaster Relief Fund) and regular aid programmes above 30m DKK. The documentation concentrates on steps required to prepare and implement a sector programme, but does not really discuss what is meant by a programmatic approach or what elements of such an approach are more critical than others. Rather the emphasis is on flexibility and adapting to local circumstances. 25. Danida also introduced a more thorough Performance Management Framework in 2003,17 which sought to increase the focus on the results of Denmark‟s development cooperation, improve management and continuous learning through better information and reporting, and strengthen accountability through performance assessments and measurement. The key was to link individual interventions more effectively with Danida‟s broader poverty reduction goals. The Framework acknowledged that as Danida‟s support modalities move further towards sector programme support and budget support:

“... it is becoming increasingly difficult to prove a direct cause-and-effect relationship between Danida input and achievement of poverty reduction objectives as reflected by outcome and impact indicators. Nevertheless, analysis of the various performance information generated, e.g. by Annual Business Plans (VPA) and PRS annual reviews combined with qualitative assessments (e.g. performance reviews) will indicate how Danida is contributing towards reducing poverty.”

26. At the same time as these programming and performance guides were being developed, the decentralization of the Danish Aid Assistance took off from 2003. This resulted in a notable shift in authority and decision making from Danida HQ to the embassies for implementation and management of bilateral cooperation and sector programmes.

16 From 1996, the MIFRESTA (Miljø-fred-stabilitet or Environment, Peace and Stability) was approved by

the Danish Parliament to assist countries with the implementation of environmental projects and programmes at both regional and national level. Support through the MIFRESTA funding was to supplement the assistance under regular Danida funding and not substitute it. MIFRESTA funding was initially allocated over a short to medium term planning horizon (2 - 5 years) and therefore provided as a number of individual projects. The special feature of MIFRESTA was also the appropriation method, which was “tilsagn” contrary to other development assistance. This gave a focus on producing appropriations every year rather than on disbursements. MIFRESTA ended in 2003. By then Danida had emphasised Sector Programme Support, and all environmental assistance whether originally from MIFRESTA or from regular Danida assistance was transformed into a sector approach. 17 “Performance Management in Danish Development Assistance – Framework and Action Plan 2003 – 2004”. Quality Assurance Unit, March 2003.

8

Danida‟s Engagement 1996 to 2008 (see Timeline in Sub-Annex 2)

27. In line with the above mentioned central guidance notes, Danida‟s engagement in Tanzania has changed its support modalities throughout the period under evaluation. Between 1996 and 1999, support to the environment was primarily provided via the HIMA project (Hifadhi ya Mazingira or Environmental Conservation) in the Southern Highlands. The project started in 1990 as a water and soil conservation project but gradually developed into an integrated rural development project encompassing agriculture, forestry, soil conservation and general community development programmes. In 1999/2000, there was a dramatic shift in the activity levels when Tanzania was selected as one of the countries in Southern Africa to benefit from the Danish Govern-ment‟s Environment, Peace and Stability Facility (EPSF).18 Within less than two years, and under considerable headquarter pressure to make new commitments to the environment, eight largely independent projects were launched19. 28. In Natural Resources, two projects (the MEMA project in Iringa region, and the UTUMI project in Lindi region) sought to take advantage of the new thinking and trends in the forest policy of 1998 and the Village Land Act and Local Government Act of 1999 – both of which opened the way for greater community and private control of local resources. Danida also introduced a large wetland project, the Sustainable and Integrated Management of the Malagarasi-Muyovozi Ramsar Site (SIMMORS) in Urambo and Kigoma Districts in Western Tanzania. This was in connection with Tanzania‟s ratification of the Ramsar agreement in 200020. SIMMORS also worked with the growing opportunities for community-based resource management that were emerging as a result of the new reform programmes and legislation. 29. The introduction of new projects in the urban environment was even greater. Under the framework of the Sustainable Cities Programme (SCP), and using the Environmental Planning and Management (EPM) process, projects were implemented in individual municipalities in Iringa (2000-06), Arusha (2000-04), Mwanza (2000-02), Moshi (2001-06), Tanga (2001-06), and Morogoro (2003-07). 30. Already back in 2000, the shift towards a more coherent programmatic approach by Danida had started under the Environmental Support Programme (ESP), 2000-04. The programme did not have any funds as such, but instead conveyed the intention of setting out a future strategic direction for the sector. Two components were identified under which current and future projects should fit: (i) a Natural Resource Management (NRM) and biodiversity conservation component; and, (ii) an Urban Environmental Management component for selected municipalities. The ESP was well aligned to national policies and built on the NEP, the National Forest Policy (NFP) the Wildlife Policy and the policy paper on Local Government Reform from 1998.

18 This was a special environmental facility introduced by the then Danish Government to meet commitments made under the Rio de Janeiro accord 1992 – where 0.5% of national GDP should be committed to environmental funding. 19 Also, between 1999 and 2007, under a general Danida NGO window (and not the ESPF funding and programming), Danida supported the Uluguru Mountains Conservation Programme (UMCP), which was implemented as a collaboration between WCST and Danish Ornithological Society. 20 The Convention on Wetlands of International Importance, called the Ramsar Convention, is an intergovernmental treaty that provides the framework for national action and international cooperation for the conservation and wise use of wetlands and their resources. The treaty was adopted in the Iranian city of Ramsar in 1971 and came into force in 1975. It is the only global environmental treaty that deals with a particular ecosystem, and the Convention's member countries cover all geographic regions of the planet (www.rasmar.org).

9

31. Figure 1 gives an overview of Danida‟s disbursements of bilateral assistance to the different sub-sectors in the environment between 2000 and 2008. 32. In 2003 the two major forestry projects, MEMA and UTUMI, were closed and Danida made a first attempt to partially align to a national forestry programme. Denmark, together with Finland, were pioneers in this respect, by supporting the national PFM concept in different regions and in accordance with the Forest Act of 2002 (which provides the legal basis for communities, groups or individuals to own, manage or co-manage forests). The component seeks to support and further advance the national guidelines on Community Based Natural Resource Management (CBNRM), as well as the intentions in the joint forest management guidelines for government forest reserves. SIMMORS continued with several no-costs extensions, and at the same time a new Sustainable Wetlands Management (SWM) Component (mirroring to some extent the PFM journey from MEMA/UTUMI to PFM component) was developed. Wetland support has been anchored under the Wetland Management Unit in the Department of Wildlife since 2000. Figure 1. Danish Bilateral Assistance Disbursements to Tanzania 2000-08

0

5

10

15

20

25

30

35

40

45

2000 2001 2002 2003 2004 2005 2006 2007 2008

Millio

n D

KK

NGO window

Climate Change

Environment Management

Urban Environment

NRM (PFM/SWM)

33. The next landmark change in Danida‟s support to environment took place in 2007. The last sustainable cities project in Morogoro closed and the present Environmental Sector Programme Support (ESPS, 2007-12) was approved. The ESPS is designed around three components:

A component supporting the Environmental Management Act (EMA Component) and anchored in the Vice Presidents Office.

A component supporting the Urban Environment (UDEM component) building on the experiences from the projects under the sustainable cities programme to a large extent, but following the LGCDG system and coordinated by the Directorate for Local Government of PMO-RALG.

A Participatory Management Component (PFM component) that is an extension of the “old” component from 2003. FBD has increasingly been moved towards one of regulation, policy formulation, monitoring and capacity building during the PFM support. The PFM has been described as operating as a „loose‟ SWAp mechanism coordinated by the Directorate for Sector Coordination of PMO-RALG with each participating DP indicating which districts it wishes to

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support.21 The LGs are responsible for service delivery under the component. Financial resources have therefore been, in line with the public service reform, transferred away from central government to local government. The Wetland programme is aligned to the PFM following the same funding and implementation guidelines but was not initially included under the ESPS.

34. An overview of the main policy developments from 1996 to 2009, Danida‟s support to environment in Tanzania, and key staff turnover is shown in the timeline given in Sub-Annex 2. For a more detailed content of the components, please refer to logical models provided in Sub-Annex 3 and Box 2.

35. In the next chapter, the evaluation case study in Tanzania provides the opportunity to compare project intervention approaches with more programmatic approaches and the links between the two different approaches.

21 The PFM review of 2005, Section 4.4 p. 20 noted that it was a loose SWAp in the sense that three donors were coordinating their engagement in forestry in terms of approach, but they still maintained distinct financing arrangements and territory.

Box 2. List of Danida support projects in Tanzania 1996-2009 1. Capacity Building for Environmental Management in Mwanza Municipality Project (1997). 2. MEMA

a. Udzungwa Mountains Forest Management and Biodiversity Conservation Project (1998).

b. Community Based Natural Woodlands Management Project (1998) 3. Capacity Development of the Wildlife Conservation Society of Tanzania Project (1999). 4. Wind Measurements and Wind Power Feasibility at Selected Sites in Tanzania Project (1999) 5. Sustainable and Integrated Management of the Malagarasi-Muyovosi Ramsar Site Project

(1999) 6. Village Based Forest And Woodland Management In Lindi Region (2000) 7. Sustainable Iringa Project (1999). 8. Sustainable Arusha (2000) 9. Sustainable Mwanza (2000) 10. Sustainable Morogoro (2001) 11. Sustainable Tanga (2001) 12. Sustainable Moshi (2001) 13. Wami Mbeki Wildlife Mgt. Project (2001) 14. TA Support Wetlands (2002) 15. TA Support Forestry (2001)

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3. Findings 36. In this chapter, the Danida-supported project and programmes in Tanzania are compared in terms of a range of evaluation criteria. Their relevance is judged against national environmental policy in Tanzania and against Danida‟s own guidance for providing assistance in this area. For efficiency, the evaluation looks at the efficiency of the use of inputs to deliver results and also how well programme formulation was conducted. For effectiveness, impact and sustainability, the assessment focuses on five projects (Participatory Forest Management (PFM), Sustainable and Integrated Management of the Malagarasi-Muyovozi Ramsar Site (SIMMORS), Hifadhi ya Mazingira (HIMA), Uluguru Mountains Conservation Programme (UMCP), and the Sustainable Cities Programme (SCP)). All have been completed except for PFM, which runs until 2011. Finally, the chapter reviews complementarity (especially how project experiences were used in the formulation of broader environmental programmes, and how donors funds have been combined in mechanisms such as basket funding); coordination in terms of donors and GOT work together in the sector, and in line with the Paris principles of aid effectiveness.

3.1 Relevance

37. Danida‟s programmatic approach has evolved over the evaluation period. From the late nineties, when the pressures to design and implement projects under the funding support available from the MIFRESTA period22 led to a portfolio of 15 projects by 2001-02, to a consolidation in 2002 when the first ESP comprised just two components, nevertheless with a number of sub-components, to a further consolidation in 2006 with the second ESPS with three main components (UDEM, EISP and PFM) plus the Wetlands component. 38. In several respects, the Tanzanian aid policy context as described in Chapter 2 and DP relations have evolved to a more „mature‟ stage than in most other countries in the region, at least in terms of progress on alignment and harmonisation with the principles of the Paris declaration. Budget support is the preferred aid modality of most DPs, accounting for 42% of total aid in 2006/7. The Performance Assessment Framework also provides a mutual performance mechanism for the budget support DPs and for the GoT to track progress in key areas of poverty reduction, including a number of environment-related indicators. Danida‟s environmental programme has correctly sought to mirror this evolution 39. The First ESP (2000-04) was prepared under an extensive consultation process in the preceding 2-3 years, and sought to adhere to Danida‟s programmatic guidance at that time. It also was appropriate in choosing two sectors that were considered priorities

22 The key problem was the limited size of the annual allocations (tilsagn) available for each country. The size made it impossible to get approval of larger components (let alone programmes) in one year, because the total frame was only growing at a slow pace and it was decided to start in several countries at the same time. As a result, the initiation of MIFRESTA activities was on a project-by-project basis even if at the time, this was not the preferred modality (according to the Danida guidelines). Today all allocations are made on a “tilsagnsbasis”, but each allocation can be very high (up to half a billion DKK or more), allowing for a full programme running over several years to be approved.

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for its support to the environment: urban environmental management and natural resource management. 40. The first ESP placed a strong emphasis on combining action at decentralised level, as well as national levels – with the former to provide relevant local support but also to act as pilots for lesson learning purposes. As the ESP documentation states, the projects were to, “feed these experiences into the processes of policy re-formulation, attendant legislative reforms and guidelines” (ESP, p.3). The ESP rightly sought to weave together a number of relevant developments taking place in Tanzania at the time, including persistent degradation, national policy frameworks (NEAP and others), the GoT‟s commitment to decentralisation, and the collaborative management of natural resources. It also recognised the importance of ongoing public sector reforms and on the one hand the dramatic reduction in MNRT staff (from 4000 to 2000 between 1991-99), and the existence of a newly created Environment Division in the VPO 1997 (which had very limited capacity yet a key coordinating responsibility for environmental matters). 41. The ESP also explicitly sought a dual approach to balance rural and urban environmental issues. On the one hand, Danida was well-established in the NRM area, with extensive support in the 1990s to agriculture and environment, while urban environmental problems were hitherto an area with limited Danida support – only Mwanza City had a Capacity Building for Environmental Management project that started in 1998. 42. The ESP though well founded on a number of accepted programmatic principles as defined by Danida at the time, nevertheless was also a collection of different components and sub-components with weak cross-linkages or geographical association. This was somewhat inevitable as the ESP was developed at a time when there was considerable pressure to work on a project-by-project basis to meet headquarter MIFRESTA commitments. The forestry and wetland sub-sectors, plus urban support, were to take place in discrete locations: for forestry, in Iringa region (Udzungwa Mountains and the Community Based Woodlands Management Project together called the MEMA project), in Morogoro region (the Uluguru forest conservation project), and in Lindi region (the UTUMI project); while for wetlands, in the Malagarasi-Muyovozi Ramsar Site. The urban environment support sought to roll out the established sustainable cities programme, initially in four cities: Mwanza, Iringa, Tanga and Arusha. While the principle of participatory, local level support for environmental improvement was relevant, the assistance also seems to be scattered across the country with little cross-component or even sub-component linkages. The design actually stresses that each project would: “stand on its own in terms of funding, physical and financial management, contracts for local consultancy services, support from NGOs and other private sector organisations” (ESP, p.56). Some cross-fertilisation did take place e.g. the SCP projects met regularly to exchange experiences. By 2004 it was agreed with PMO-RALG to expand this into a national forum for exchange between municipalities. 43. The second ESPS (2007-12) was prepared at a time when the JAST was in place and DPs had begun to focus their aid programmes. Denmark remains a key partner in environmental activities, and its decision to move from separate projects to three programmes: PFM, UDEM and EISP was a good demonstration of leadership in alignment. The decision to leave the SWM component out of the ESPS though, appears

13

to lack a clear rationale, other than the need to retain the central focus of the ESPS.23 Subsequently the MNRT asked for the Wetlands programme to be included, as they envisioned a broader decentralized NRM programme. Indeed, a 2008 review was then asked to make recommendations on how such an alignment could be better achieved.24 44. Through the ESPS 07-12, Danida demonstrated strong alignment by avoiding external systems or project implementation arrangements, and instead sought to use existing GoT structures and financial systems. The ESPS moreover was correct to bring support to nationally important institutions such as the VPO, who carried the mandate for environmental coordination and mainstreaming, and supporting the new EMA legislation. It was also appropriate to shift from the multiple SCP interventions and try to build a national programme of urban environmental management through UDEM. Using the GoT LGCDG system to disburse funds was in principle a highly aligned strategic choice, and support for urban environmental issues addressed a funding imbalance (Urban LGAs receive 14% of LGCDG, yet have 23% population).25 45. The ESPS appraisal in 2006 found the ESPS design „extremely ambitious‟ and recommended a more cautious approach. It noted that there were no firm commitments from other donors for the proposed basket funds, and rightly suggested that the consequences of this should be further analysed. The number of risks identified in the programme document illustrate perhaps the ambition and possibility of failure. The UDEM component has 23 risks alone, while 17 are mentioned for EISP. For PFM, in contrast – as it was not a new component – only one key risk is identified; the long-timeframe before benefits flow and the need to control illegal activities in the meantime. The risks related to human rights relate to the Strategy for Urgent Action on Land Degradation and Water Catchments (SUALDWC), which entails that EMA can be used to justify forced removal of people from watersheds. HQ reviews have continuously asked for the results of the investigation into human rights violations occurred in Usangu Plains 46. With so many risks, a reasoned discussion of mitigation measures is necessary, and yet the ESPS programme document remains silent on this matter.26 The UDEM component document does however provide a more careful discussion of four of the risks, but the proposed mitigation is not very strong – for example for the risk that other donors will not provide funding, the mitigating action includes: “keeping the Ministry of Finance and potential donors fully informed of the achievements and challenges being faced by the UDEM framework and… ensuring solid achievements that indicate that the UDEM framework is providing value for money”. While this approach correctly places the Government in the led on resource mobilization, the question of whether and how other donor commitment will in future grow is not addressed.

23 Based on recommendations from the Danida Programme Committee in 2006. There was also the issue of limited commitment in the Wildlife Division, with limited staff resources and high staff turnover in the wetlands unit. 24 Joint Review of Participatory Forest Management Programme, 2008, Annex 3. 25 National Framework for Urban Development and Environmental Management (UDEM) In Tanzania, PMO-RALG, 2006. 26 A response note from the Embassy on the Appraisal states that Section 4.3 was adjusted to show risk mitigation, but this section only describes risks in detail and does not offer mitigation actions.

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Table 1. Assessment of use of Programme Approach in Tanzania Criteria 1st ESP

2nd ESP

PFM SCP UDEM EISP

1. Strengthening the capability of the poor

Good Good Fair: support to urban poor in waste management

Fair / Weak – strengthening the legislative framework for environmental management could have an indirect link to the poor in the long-term, but there are concerns over the human rights implications of some aspects of the legislation

2. National ownership

Good Fair: Sustainable cities concept but limited national linkages

Weak – PMO-RALG did not take assume sufficient ownership

Fair: While EMA support was a govt. initiative, the Act was new (2004) and wider govt. commitment less strong

3. Capacity development

Good – building community and district ownership, FBD fully supportive

Fair- training at municipality and community level, though managed by parallel offices rather than the municipal govts. directly

Weak - though criticised for lack of detailed inst. capacity assessment

Fair: ESIP aimed to GoT Capacity Building Programme (2005) in terms of mainstreaming, and relied on GoT structures

4. Long time perspective

Good: the two ESPs continued support over 12 yrs

Weak: each city received a fixed period of support of 3yrs or 5yrs (though further phases envisaged)

Weak – 4 yr time frame Fair – 5 year timeframe (to match MKUKUTA)

5. Coordinated aid support

Fair: Finland, WB and Norway funding in complementary way

Weak: no other donor funded though some coordination between Danida, SIDA, WB and UN Habitat

Weak: although planned for other donors to join, there was no agreement in place at start up

Weak: though basket funding proposed, this has not taken off and funding has been inadequate

6. Works at multiple levels

Good: combined community, district and national actions within policy framework

Weak – mainly at city level, with poor links to PMO-RALG & other national bodies

Good – explicit links between PMO-RALG and LGAs

Fair: focus more on MDAs (mainstreaming of line ministries) and setting up of EMUs at LGA level was deferred to later in the design27.

7. Accountability & Transparency. Use of local systems

Fair: Weak Good: funds flow through GoT systems

Good: funds flow through GoT systems

8. Common programme management

Fair: FBD managed programme,

Weak – each city designed as separate project

The ESPS comprised three different sub-sector components with separate results frameworks.

27 Though in fact EMUs were set up in 90% of LGAs by 2009 and their funding has become a PAF indicator.

15

and result structure

though results framework driven by different donor. Joint reviews were planned and took place

though under Urban Authorities Support Unit

9. Integrated components

Good – local, national and research components integrated in Danida programme and took over from earlier projects

Weak – separate projects were not integrated

Fair: All components were implemented within the GoT systems. But the three components were not particularly integrated. Budgets could be transferred between components if needed, and an ESPS management budget allowed for reviews, studies.

10. Allows Policy dialogue

Fair : dialogue though FBD and national steering committee (NFPSC)

Weak – lack of a channel to influence national policy – no urban ministry as such

Fair: the anchoring of UDEM in PMO-RALG should have brought policy influence, except that PMO-RALG was known to be weak and with a large reform agenda

Good: choosing to work trough VPO and EWG structure

PFM: Participatory Forest Management; SCP: Sustainable Cities Programme; UDEM: Urban Development and Environmental Management Framework; EISP: Environmental Management Act – Implementation Support Programme

Gender and HIV/AIDS and Human Rights 47. Neither gender, nor HIV/AIDS are given sufficient attention in the ESP or ESPS. Under the different PFM projects, there is a recognition that work at the community level should use guidelines that address gender-balanced approaches to the access of forest resources, and particularly so as women are the principle firewood collectors. The 2005 National Strategy for Gender Development is recognised in the ESPS document, and while the national strategy is linked to specific components, no specific actions are proposed – although an indicator for PFM was to be, “the number and proportion of Village Natural Resource/Environment/Forest Committees with women in executive position”. For HIV/AIDS, there is also very little discussion or actions proposed in the Danida documents. For human rights, while the ESPS context includes recognition of human rights issues, no specific actions are included in the programme.

3.2 Efficiency

48. This section looks at how well the executed projects performed in terms of using inputs to achieve outputs, and also how well formulated the programmatic interventions were. As Figure 2 shows, there are some striking differences between the volume of committed and disbursed funds over the period 2000-08. The ratio between committed and disbursed expenditure for the urban environment is low. This is mainly because of UDEM, but even the SCP ratio is 61% (DKK 135 million committed and DKK 82 million disbursed). NRM has been the most efficient in the ratio between committed and disbursed funds (78% overall). 49. Some of the positive aspects of efficiency include the use of long-term Technical Assistance (TA) under PFM, SWM and UDEM as a more cost-effective means to

16

provide technical support instead of the more costly use of Project Management Units (PMUs) as were used before in MEMA and SIMMORS28. The Embassy also managed to deliver a reasonable volume of funding (averaging about DKK 33 million per year) with, for the most part, one international and one national officer. By moving the portfolio from over a dozen projects in the early 2000s to three components of ESPS (plus SWM) in the late 2000s, this has helped reduced the overheads required for the management of individual projects.

0 50 100 150 200 250

NRM (PFM/SWM)

Urban Environment

Environment Management

Climate Change

NGO window

Millions DKK

Total Committed

Total Disbursed

50. Some of Danida‟s investments in the high intensity/high cost projects have been advantageous for the present programmatic approach. The experience gained from both MEMA and UTUMI provided important building blocks for the PFM component; such as the local and national linkages between the foundations laid by the projects over a ten-year period and a number of PFM‟s achievements today. A contributing factor to this has been the continued focus of GoT (due to the strong and coherent forest policy and legislative frameworks) on PFM as a methodology to make CBNRM work beyond the project periods. The projects represent some of the oldest timelines within PFM today, and are therefore often referred to as credible sources of information. 51. On the other hand, some areas of inefficiency can be identified as:

• Formulation costs for programme designs that were subsequently cancelled or modified: extensive resources were used in the preparation of the 2006 ESPS.29 The subsequent slow implementation and possible closure and shifting to a joint funding of the WB Strategic Cities project represents a waste of design effort,

28 However, PMO RALG comments that a PMU approach can be more effective since it brings a more integrated approach in order to cover larger areas (such as under SIMMORS), and also avoids situations where TA, if used, may tend to act on behalf of the financier rather than the government (comments in letter from Mr Kimei, on behalf of Permanent Secretary, 6th August 2010). 29 For example, a three week consultancy was commissioned by the Embassy in 2009 to prepare a no-cost extension for PFM up to the end of the ESPS phase. The Embassy then decided not to proceed with the extension.

Figure 2. Comparison of Committed and Disbursed Danida Funds 2000-08

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with a change in emphasis and scope although Danida‟s funds would still support capacity building.

• The choice of using government systems involves a „cost‟ in terms of

inefficient implementation where GoT systems and capacity are unable to meet the pace of implementation that external projects can deliver. A recent review of EISP questioned the poor use of funds for various coordination activities, and has called for a Value for Money (VfM) study.30 A VfM audit conducted last year of PFM and SWM activities in eight districts highlighted several areas of inefficiency, including serious delays in funding releases, poor record keeping and execution.31 The study however also provides a more detailed insight into how LGAs operate and their relationship with national government systems. Furthermore, the study authors found that the ability of GoT systems to follow the detailed and quite rigorous Administrative and Finance Manual (as prepared by the PMO-RALG) was stretched.32 Indeed, the demands placed on Government are seen as burdensome by others too:

“The review mission finds that the budgeting and reporting system is too complicated and resource demanding seen in relation to the capacities in the LGAs and in the PMO-RALG”.33

Despite the various lapses of underspend, delays and weak reporting, the audit states that progress has been reasonable and the project objectives broadly achieved. The report also does not (or was not required to) compare such inefficiencies with the alternative costs of using a project approach, where additional overheads of setting up PMUs, of duplication of effort with others etc., would be likely to occur34. The report has nevertheless induced a temporary hiatus over the direction of the PFM and SWM35. It seems that these challenges of alignment, though well known, take time to be resolved and present difficulties for a donor that wishes to ensure government leadership but at the same time not lose delivery efficiency. There needs to be a more graduated introduction of improved financial management and reporting that matches local capacity.

• The percentage of total funds reaching beneficiaries is a concern in

Tanzania (as was also the case in Zambia). The VfM study estimated that only 12% of PFM funding was spent on forestry inputs and tools at village level. On the other hand, much of the training for both local officials as well as community members requires field allowances, transport and other recurrent costs. Still, the

30 Joint Technical Review, EISP, 2009 31 Value For Money Audit, Participatory Forest Management and Sustainable Wetlands Management Programme, Enrst & Young, October 2009 (Draft Final) 32 Interview with Director, Ernst & Young. PMO-RALG comment that the manual is being revised and further training will take place. 33 Joint PFM Review, by Denmark, Finland, WB and MNRT, 2008, p.11 34

In terms of overall efficiency, government systems may be better despite some poor use of funds. For example under MEMA, there were two international advisers in one region, working in around 24 villages, while under the PFM Component, there had been two advisers covering for four regions and over 250 villages. 35 The position has apparently been resolved after the ASR 2010.

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PFM project suffers as much as other donor assisted interventions, in that most activities are driven by the „allowances culture‟36.

• Pressure to appropriate and disburse funds. As in Zambia, the MIFRESTA

channel of environmental funding drove the Embassy to identify and implement a number of projects in 1999-2000 – yet this was at odds with the need to build capacity at a much slower pace. Later the pressure to disburse funds in 2007, according to the environmental counsellor at the time, led to a decision to go ahead with the EISP, when another year of preparation might have been more appropriate in order to build VPO capacity and to bring on board other DPs. This was partly also due to pressure from the VPO to start implementation but in essence Danida country staff have been driven by the need to make use of appropriations within the year that they are available, or else face the possibility of losing these funds to other programmes elsewhere.

• The role of the Danish Embassy both before and after the decentralisation of

Danida‟s programme management in 2003, has been significant. The greater influence of the Embassy in designing and implementing programmes since 2003 has allowed them to develop a programmatic approach faster in the case of Tanzania and in tune with local priorities and policy statements. At the same time, this degree of freedom has also allowed programmes to be somewhat over-ambitious in pushing for greater GoT ownership, when the actual leadership from their side was not as strong as needed.

3.3 Effectiveness

Quality of Evidence

52. There is a general lack of independent evaluations of Danida-supported projects or programmes. This makes it difficult to judge the actual effectiveness and impact of the support in any depth. Apart from a series of field interviews and general field observations, the following assessment is therefore based mainly on completion reports (written primarily by responsible implementers), on technical reviews (performed by Danida recruited consultants in close collaboration with embassy staff) and annual reviews undertaken by Danida HQ staff. Where possible, the analysis is further informed by background literature, studies and reports from independent organizations and writers. 53. Table 2 shows the available completion reports and their ratings as judged mainly by project staff just before the projects closed. The on-going ESPS was last reviewed in 2008 and 2010 and the internal ranking from this annual review is also included in the table.

36 A common perception is that the behaviour of most government officials is determined by the availability of various allowances that provide important top-ups to their low salaries.

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Table 2. Project Completion Report Ratings in Tanzania, 2003-09 Fulfilment of

overall objectives37 Fulfilment of objectives on poverty reduction

Mema, Forestry, Iringa Not rated Not rated

Utumi, Forestry, Lindi Report not available Report not available

SIMMORS, Wetlands B Not rated

Wetlands, review 2004 to 2007 C Not rated

Uluguru Mountains, Forestry Report not available Report not available

Sustainable cities, Iringa B B

Sustainable cities, Moshi A B

Sustainable cities, Tanga B B

Sustainable cities, Arusha Report not available Report not available

Sustainable cities, Mwanza Not rated Not rated

Sustainable cities, Morogoro A A

ESPS annual review November 2008 B Not rated

Forestry projects 54. The UTUMI project in Lindi region and the MEMA project in Iringa region both worked with two different concepts: The Community Based Forest Management (CBFM) on village lands (i.e. with benefits and control held by the villagers), and the Joint Forest Management (JFM) on Central and Local Government lands (i.e. shared responsibilities and benefit through agreements with government). 55. Whereas both projects achieved considerable effect within CBFM, though less so within JFM, MEMA performed best – at least in numerical terms. This can be attributed to an extra year of support (four years in total) and not least to a more responsive district staff environment. When MEMA was initiated in 2000, another large Danida funded forestry/agricultural project (HIMA) had operated in the same district and often with the same civil servants for 10 years. As highlighted in the HIMA evaluation38, NRM and agricultural projects succeeding HIMA, whether supported by other donors, INGOs or GoT, were able to benefit from the long term HIMA project support. Local professionals from both outside and inside government were conversant with participatory planning principles and used to working in multidisciplinary teams. 56. When judging the effect, it is important to note that the projects operated in a period where the administrative landscape and the legislative framework was changing and uncertain: The Village Land Act and the Local Government Act had just been approved by parliament, the MNRT was in the middle of a large restructuring exercise, and the final version of the Forestry Act was still in its makings. The institutional knowledge of how to make things work under this new legal framework was, if not absent, then still in process.

37 A = Very satisfactory: No need to adjust plans and strategy. B = Satisfactory: Minor problems may arise and small adjustments may be necessary. C = Less satisfactory: Adjustments to plans and/or strategy are necessary. D = Very unsatisfactory: The sustainability of the activities is questionable. Major adjustments/re-organisations will be necessary in a possible new phase or in the follow up by partner organisations. 38 HIMA was evaluated in 2006/2007. The report can be downloaded from:

http://www.um.dk/en/menu/DevelopmentPolicy/Evaluations/Publications/ReportsByYear/2007/2007-04+HIMA.htm

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57. In such an environment, the projects were essential to create and deliver first hand experiences on:

How to develop meaningful forest management plans with the communities whilst linking them to government authorities, and

How to support further capacity building within the district structures while

responding to demands for rapid changing mindsets amongst a largely conservative cadre of forest officers.

58. This is acknowledged by the projects, as both these points were included in the project design as part of the immediate objectives. The projects were effective and should be judged at two levels:

At the local level, where communities were mobilised by district extension staff and project staff to demarcate village land and discuss and agree on forest management plans

At the national level, where both projects filled a vacuum by stimulating and feeding experiences into an emerging “national PFM identity”.

Box 3: Integrated planning approaches in Kilwa district39 Out of 96 villages in Kilwa district, 43 villages had the possibility of being included in the PFM regime. In 2000, the UTUMI project facilitated PFM preparations in six villages but only two (Kikole and Kipindimbi) managed to complete the full PFM planning cycle.40 Given the holistic nature of the PFM process requiring many different disciplines to collaborate, the project successfully introduced district working teams comprising extension officers from forestry, agriculture, wildlife, community development and health. The team worked closely with the Village Natural Resource Committee of approximately 7 members within the villages over several days. The achievements of the project are, amongst Kilwa district staff, largely subscribed to this integrated approach. A new PFM manager arriving in 2005 dismantled the team, seeing it as being too expensive and unnecessary. Since then, the quality of planning has decreased, and the district authorities now plan to revitalise the previous way of working. Funds for the 2010/2011 budget are expected to be released in July 2010.

59. Both the UTUMI project and the MEMA project managed to take sufficient advantage of new policies and Acts to start a process of handing over forests on village lands to the villagers. Both projects managed to draft the first JFM plans but showed little effectiveness in terms of implementing the plans. This is reportedly due more to delays at the national level, than to ineffective project implementation. 60. Given the limitations of the design that mostly catered for the district level authorities, the effectiveness of the projects‟ to influence national levels was good. MEMA especially hosted numerous visits from central government. When the project managed to obtain land certificates for eight villages from the Office of the Commissioner of Lands, they were the first certificates to be issued under the new Village Land Act. This set a national precedent that later inspired others to follow suit.

39 Based on the Evaluation Mission‟s field visit to Kilwa. 40 Preparing the villages for PFM involves basically 7 distinctive steps which together can take several years to complete: 1) Awareness raising, 2) Preparation of a village land use plan including decision on where the village land boundaries are, 3) Surveying and demarcation of the land, 4) Present the map and results to the village assembly, 5) Write up the management plan, 6)Presentation of the management plan to the village assembly, 7) Presentation of the plan to the ward assembly and the district council.

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The projects navigated through what was regarded as largely uncharted waters, providing ample opportunities for central level staff to gain first hand experience. Interviews with FBD staff and INGO staff indicate that both projects were effective and able to influence national policies where they could. 61. MEMA, who for reasons mentioned above, went furthest in implementing PFM as well as documenting processes and effects, reports that their effectiveness was very much due to the emphasis on correct sequencing. First, local communities were capacity built and made aware of the rights and obligations through a series of advocacy sessions and then the district staff were trained and exposed to “aware and ready” villagers. The PFM Component 62. The process experiences gained by both MEMA and UTUMI were picked up by the PFM component, and together with early experiences from Swedish support to the Land Management Project (LAMP) project in Babati district and Finnish supported projects in Tanga region, they laid the foundations for a country wide roll-out of the concept. 63. The PFM Component is judged to have been effective in a number of areas:

The Component has been effective in delivering a nationally-accepted

understanding of the PFM concept. This is due to a number of lesson learning publications41, and an ability to bring together both conservation and production interests nationally as well as internationally.

From covering only a few districts in 2003, the Component has been instrumental in expanding the national PFM policy to 53 districts. This means that almost half of the DFOs in the country are now, in one way or the other, actively involved in planning and implementing PFM. Creating such an impetus will inevitably lead to new insights and learning, as well as increased pressure from the districts to resolve outstanding issues between MoFEA and MNRT.

More than 234042 village-based natural resource committees under the village assemblies have been invigorated. Although the capacity and performance of these will vary tremendously, it is fair to say that the component has been effective in creating much needed social capital in a large number of villages.

In 2003, the Component set out primarily to establish an outcome with a national PFM framework in place institutionalised at both FBD and in the districts. This has been achieved.

Box 4: PFM progress in Kilwa district UTUMI ended in 2003 but since then an additional 17 villages (making a total of 23 villages within the district) have started on the PFM scheme. Funding from the RDE ended in 2009, and the district has made little progress over the past year. Less than half (10) of the villages have finalised a management plan, and only two of these have made a utilisation plan which stipulates how much can be harvested and where. Seven villages are ready with a Joint Forest Management plan stipulating boundaries, protection schemes, where and how much to harvest from the forest, and how to share the revenues between the government and the villages. However, as

41 For a compilation of experiences see T. Blomley and S. Iddi, Participatory Forest Management in Tanzania: 1993 -2009 – Lessons learned and experiences to date, 2009. 42 The figure is mentioned in an internal WB assessment matrix from November 2009 of the national PFM progress.

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long as the MoFEA and the MNRT has not agreed on how to manage the income from the forests, the management plan cannot be implemented. So far, villagers have seen more burdens than benefits from having entered into a joint management agreement with the government. Meanwhile, the market for illegally cut timber is anything but stagnant undermining the concepts of PFM as the returns generated from the timber trade are rarely captured by the local communities (for an exception to this see Box 8 on the harvesting of Mpingo in Lindi region). The main beneficiaries of both the legal and illegal timber trade remain local and central governments and private businesses. 64. The component has been less effective in supporting the creation of a much-needed national monitoring system. The present National Forestry and Beekeeping Database (NAFOBEDA) (although relevant in the data it seeks to collect) is perceived by most of the people interviewed as inaccurate: many districts fail to submit their data, and the system itself thus fails to inform FBD and other stakeholders. Furthermore, and perhaps not surprisingly, it only focuses on quantifiable data. This means, in effect, that the FBD knows very little about the real state of affairs within PFM. There is a tendency of “over-using” and “over-reporting” the term PFM and its effects, and it is not clear how big a share of the many reported hectares under PFM represent real decentralised forest management principles with representative and active decision-making committees in place. 65. With more than seven years of support, it is reasonable to expect emerging solid research data from the PFM programme. This is not the case. The component has been ineffective and slow in establishing a solid research programme capable of lifting the debate away from anecdotal narratives to more robust natural and/or social science empirical evidence. However, once the research programme was finally launched in 2007, it has produced some interesting and informative short-term research results43. The funding to the research programme was suspended by RDE in mid-2009 and the effectiveness of the research programme is too early to judge. 66. In general it was appropriate to move to a broader scope and scale for PFM, as this supported national policy and the need to reform a national forest service from a conservative and policing mindset to a more devolved advisory and coordination role. But Danida still needs to retain strong linkages with local level initiatives, and to persist with these to ensure that benefits do finally emerge for village actors, and also pursue research to understand how and why. Sustainable Cities Projects 67. The effectiveness of the six sustainable cities projects varied considerably and some disagreement exists between a number of the reviewers and the final completion reports. The completion reports are more positive and optimistic about results than the review reports. In general, the effectiveness of the sustainable cities projects in Tanga, Morogoro, Iringa and Moshi is considered to be good with planned outputs and immediate objectives reported to have been achieved or nearly achieved. Mwanza, and possibly Arusha (the completion report for Arusha was not found), had a low

43 The research programme is a collaboration between Tanzania Forest Research Institute (TAFORI) and the Danish Institute for Forests, Landscape and Planning at Copenhagen University.

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effectiveness.44 Mwanza was closed after only two years of funding. Again however, our evaluation suffers from a lack of systematic assessment of the accomplishments of the projects. The evaluation workshop also had diverse views over the effectiveness of the SCP (Sub-Annex 5, Table 6) ranging from very satisfactory to unsatisfactory. 68. Apart from Mwanza and Arusha, there is a general “cross-municipality” agreement about how the projects displayed a high effectiveness in terms of installing sound and well-founded participatory planning principles. There is also agreement that the projects failed to leave strategic planning capabilities between the various departments in the municipalities behind. The supported GIS units are producing some information for city planners today, but have problems with sustaining themselves. This was confirmed by the evaluation when visiting the GIS unit in Morogoro municipality.

Box 5: Sustainable Cities Project, Morogoro The Morogoro Sustainable Cities project was completed in 2008 after six years of implementation. Some of the physical effects of the project can still be seen in the form of capital investments, e.g. a well maintained extensive rain storm drainage system, and a functioning garbage collection system. Today, the Mayor estimates that about 70% of the municipality is covered by regular waste collection services – though this could not be verified by the evaluation. The project has had success with facilitating the introduction of community-based garbage collection. Today there are still 45 active CBOs with about 10 members each. 37 of these are well functioning and reportedly pay their fees on time to the municipality. One CBO interviewed by the evaluation team had been in business since 2006, and serviced 466 houses/1550 households each week. Each household pays Tshs 1500 per month for the service. The CBO collected an average of Tshs 680,000 per month, but some households were finding it hard to pay and were therefore not regular customers. After the CBO has paid the municipality a fee for removing the garbage from the collection points (Tshs 120,000 per month), and salaries to the garbage collectors (app. Tshs 50,000 per month/person), the CBO was still left with a small surplus. The group comprised five women and six men. About 500 jobs had been created through this scheme.

The UDEM and EISP Components 69. The effectiveness of the UDEM component has been hampered by a slow start (Spring 2008), a lack of personnel for the UDEM secretariat, and lack of support from other donors to join the UDEM basket. A Danida review in 2008 noted:

“The assumption is for UDEM to be part of the Local Government Development Grant (LGDG) facility. As only three of five criteria are fulfilled for a UDEM integration of LGDG … channelling of funds to LGA’s have been uncertain. It still remains to be finally determined that UDEM is part of the LDGD. In addition only Denmark supports UDEM, though an assumption was that more donors would join the UDEM sector window and hence, funds are currently limited to fulfil the objectives of UDEM. UDEM’s secretariat is understaffed and its capacity limited. Hence, strategic management of UDEM is poor.”

44 Sustainable Mwanza Programme, Completion report, 2003, mentions in very direct terms that the project was not effective. The Sustainable Arusha programme review report from 2002 is critical in its assessment of performance and effectiveness.

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70. The situation remains more or less the same in early 2010, as UDEM remains outside of the LGDG, and no disbursement has occurred for the past year. Still some progress has occurred in a few areas: an urban policy document is in draft, support for an environmental information management system has continued, and a tax waiver in place to import equipment for urban waste treatment. Nevertheless, with no other donors bringing support, and the GoT also not increasing funding, the effectiveness of the Danida funding will be modest:

“It was anticipated that several other donors and the GoT would provide a substantial part of the funding needed to reach the target of 1 USD per capita. Unfortunately, these other sources did not materialize, and it is not yet clear to what extent GoT will maintain and/or increase its contribution. This has serious consequences for the scope of the framework, as far less than 1 USD will be available per capita. If all LGAs are included, there will be 0.09 USD available per capita, and if Danida’s more limited eligibility criteria outlined in the component description are chosen, 0.5 USD per capita. This is too little to make a difference on urban issues.” (2008 Technical Review of UDEM, p.6)

71. The UDEM component is currently being reformulated and considered for incorporation within a new WB-funded Strategic Cities Project, which will support seven cities with an average USD 15-18 million for capital works. An assessment of the effectiveness of the component therefore makes little sense45. 72. The effectiveness of EISP is too early to assess. Currently the funding from the RDE has stopped, and none of the newly formed environmental units in the 14 MDAs have received funding for their planned activities in 2009/10. Please see the Relevance section for a fuller discussion of both the UDEM and the EISP components.

3.4 Capacity Development

73. Under the SIMMORS, the PCR notes a number of capacity development achievements such as the skills of district staff in doing participatory assessments, and to conduct training themselves. However an independent evaluation of the benefits of these was not undertaken and would have helped ascertain how far they have been sustained. Under the SCP, while considerable capacity development was provided, an issue common to SCP and to others (such as EISP) is that a „capacity assessment‟ though proposed in the design was not always completed and thus the relevance of subsequent capacity development work is not always clear. A 2005 SCP Technical Review remarked:

“The missed capacity opportunities during the initial project start-up will eventually backfire during project implementation and might in the longer term even endanger project objective of EPM up-scaling all-together.” (p.8)

74. In UDEM, the capacity building was meant to fall under the LGCDG and so use existing GoT systems. A 2008 technical review noted that in reality the UDEM Capacity Building Guidelines were rather too supply driven, because the activities were based on eight standardised modules adopted from UN-Habitat. Moreover the funds available for

45 Although the merger of UDEM and TSCP will increase the budget for capacity development from USD 10 to 12.8 million, with USD 2.8 million specifically added to produce a needs assessment and risk management process, and to add UDEM systems and approaches to TSCP. The capital works funds are much larger.

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capacity building were spread too thinly because of the eligibility criteria allowing nearly all LGAs to apply. Thus there has been limited achievement so far. 75. The ESPS recognised that there were other capacity development initiatives in the environment, and that ESPS should not duplicate these but instead focus on other selective, phased support. The creation of environmental units in MDAs and environmental officers in LGAs has occurred. Meanwhile, at community level, as noted in the Workshop discussions (Sub-Annex 4), there is a range of evidence for improved capacity in both PFM and urban waste management. 76. Long-term technical assistance can be effective in strengthening capacity in different areas including research and up-scaling the concept across districts, as well in building links between national and local agencies. In PFM and in SWM the long term TA provided technical support within government system and in the absence of a separate project management unit. The research activities under TAFORI also benefited and some useful preliminary forest research findings have been produced46. The TA also provided Danida at different times with a channel of information on GoT views and problems, and also helped in reporting and documentation. With the departure of the PFM TA, the FBD have found it difficult to complete the required PCR.

3.5 Sustainability

PFM 77. At the national level, the likelihood of making PFM a sustainable avenue to pursue will depend to a great extent on: (i) the willingness of donors to follow through with long-term, robust and sustained commitments despite the various and inevitable set-backs; and, (ii) the willingness of the GoT to resolve its internal administrative disagreements between MoFEA and MNRT (who should manage the revenues from the forests under JFM), whilst developing attractive incentive structures for districts performing well with regards to PFM47. 78. At the local level, it still remains to be seen whether the fragile and under-resourced district authorities will be capable of meeting the ambitions set forth in their annual plans – especially as the PFM requires new interdisciplinary ways of collaborating48. Experience already shows (from Tanzania and elsewhere) that the viability of the management and utilisation plans will depend on the quality of the participatory planning exercises. As new demands from communities interested in a PFM plan continues to arrive on the desk of the DFO, old plans entered into five years ago have expired and require renewal.

Box 6: District Resources Kilwa District has a total forest area of 800,000 ha of which 210,000 ha have already been put under a PFM regime. This number is planned to reach 250,000 ha covering 20 user groups by

46 For example, see the 2009 Collection of PFM research papers by TAFORI 47 The evaluation workshop survey found that 95% of participants said the community-based model had been effective, while only 55% felt that JFM had been effective (Annex 5, Table 4). 48

The evaluation workshop survey also had mixed responses on the sustainability of PFM with 45% giving a positive score but 35% felt it was not yet sustainable (Annex 5, Table 7).

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the end of the fiscal year 2010. According to the plans for the fiscal year 2010/2011, the area will be doubled to 497,000 ha. The staff is already overstretched and find it difficult to reach the communities even to complete initiated work. Only 10 out of the current 17 groups have a completed and approved management plan. The forest office in Kilwa comprises of one DFO with a diploma in forestry, one PFM focal person (currently on leave to do his MSc) and two mangrove forest officers each with a BSc in forestry. Six divisional foresters are also allocated to the districts but their posts are vacant, as nobody has applied for the positions. The district has two functioning vehicles left behind by the UTUMI project. One is used by the DED and one is shared between the other district offices. The priority sectors of the district are health, education and infrastructure. The situation in Morogoro District is slightly better but, in many ways, mirrors the resource problems of Kilwa. Unless time is allowed to consolidate progress before pushing ahead into new areas, and unless national progress is made in terms of outsourcing some of the tasks to civil society, the sustainability of the whole PFM scheme is questionable (a point confirmed by the ASR 2010).

79. Failing to deliver on promises or failing to follow through on work started with villagers will lead to a further loss of credibility with the district authorities and this will have a negative impact on longer term sustainability of PFM. Examples of this are unfortunately plentiful in Tanzania now. They include the many incomplete management and utilisation plans in CBFM areas at local levels and the outstanding authority issue between MoFEA and MNRT at national level. More concrete examples of how the latter has created some disparity amongst communities was obtained through interviews in Kilwa district: Three years ago, the local mangrove forest officer and the communities concerned had agreed on a feasible harvesting plan of poles from the forests, promising shared revenue (60% to GoT and 40% to the communities) of around TSH 1 million. Due to central ministry disagreements, the plan has yet to materialise. The forester reported dwindling confidence and loss of credibility in the authorities. 80. The sustainability of the introduced Income Generating Activities (IGAs) outside the forest is highly questionable49. After the introduction of micro projects, typically within beekeeping, fish farming or poultry, these were not followed up by extension staff, which left farmers to figure out how to proceed for themselves. More than anything, the projects seem to divert attention away from the real issue of getting the forest resource itself to generate an income thereby making it attractive to manage and conserve. 81. However, early signs of sustainability can be found: MEMA managed to support the design of forest management plans in all 23 villages it worked in. A study entailing 14 MEMA supported villages showed that between 2002 and 2005, forest revenue collected by the 14 villages exceeded by a factor of 3.5 times what the District Council was able to collect from the 153 villages having similar forests outside the CBFM zones50. Through-out the study period, the effectiveness of villagers to collect forest taxes was steadily increasing. The revenue was used for forest-related activities like patrols and meetings, and smaller development projects such as repair of water supply line and construction of a classroom and school furniture.

49 Based on mission interviews (for example the Finnish Environmental Counsellor) and field visits. 50 Jens Friis Lund. Money talks: CBFM and Village Revenue Collection in Iringa District, University of Copenhagen, 2007.

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82. A study conducted in 200851 confirmed the trend showing that whilst introducing CBFM had dire consequences in some instances for those depending most on the forest resource (i.e. the poorest in the community), it had positive consequences for the forest resource itself and for improved forest governance. Some elite capture of the revenues was common and up to 50% was spent on committee meetings and travel52. Interviews conducted by the evaluation team confirmed that the MEMA villages are still active forest managers. 83. Field evidence from the Capacity Building of Wildlife Conservation Society of Tanzania (WCST) project, which involved PFM activities in the Uluguru Mountains, Morogoro District, demonstrates the long time horizon for PFM work. Activities actually began as long ago as 1995 in Mifulu village with the marking of forest boundaries and setting up village environmental committees. The project itself ran from 1999-2007 with the dual objective of building capacity in the WCST and developing a NRM system in Uluguru North community forest reserve. The Completion Report notes that WCST has grown in strength, with regional offices, better fund raising and membership. Meanwhile the report states that 96% of the Uluguru North boundary has been cleared and planted with trees, six forests have been conserved over 8,404 ha, while eight villages have been involved putting PFM into practice. A number of villages and schools have also established woodlots. 84. Based on a brief field visit, in February 2010, three years after the close of the project, the evidence was that some of the woodlots are still in place, but the nurseries visited were in poor condition and there was little evidence new planting. Both the woodlots and village forest reserves visited were not being used for economic gain since the plan was to wait 15 years before starting to harvest. The village committees were still in place but were having to continue to maintain the forest boundaries and patrol for illegal activities with very little income from the reserves to off-set the costs of these duties. There was not much evidence of income generating activities allied to the forest, such as bee-keeping or tourism, although the field visit did not visit all the areas. From an informal assessment of the surrounding slopes in the area, the extent of active cultivation and woodland cleared (outside of the reserves) was extensive – around 80% of land was under pressure from cultivation even on the highest slopes, so one could draw the conclusion that in overall terms, the Uluguru North area was under extremely intense land pressure53.

51 Lund & Treue. Are we getting there: Evidence of Decentralised Forest Management from the Tanzanian Miombo Woodlands, University of Copenhagen, 2008, unpublished. 52 Similar figures were also reported in Zambia under the Community Based Natural Resource Management (see this Evaluation‟s Country Report on Danida‟s environmental programmes in Zambia, p.19) 53 The project relied heavily on the support of an influential local chief, Chief Kingalu, who led many meetings to sensitise the villages in his area. The mission met this Chief in Morogoro and found that he held a remarkable level of discontent about the closure of the project – even after two years – and regarded the lack of recognition by the project over his role as a serious offence. This may have accounted for some of the lack of observed community support for the forest support activities observed by the mission. Nevertheless, the Chief attended the evaluation workshop in Dar-es-Salaam and made a contribution as described in Sub-Annex 4.

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Sustainable cities 85. When the last sustainable cities project was closed in 2007, there was a broad consensus that the model was not sustainable and new avenues for delivering aid to urban environmental management had to be found. Despite apparent unsustainable high costs and support intensity, some of the interventions seem to have been rooted sufficiently to appear relatively sustainable. Apart from observations made by the Evaluation during a field trip to Morogoro, the following is based on project reviews, completion reports, and interviews with key stakeholders who had been involved in the projects.

The introduction of a solid waste collection system as a business opportunity for CBOs is given much credit in completion reports and seems to continue in several of the supported municipalities. In Morogoro, the long term sustainability of the waste collection will be linked to the ability of the Municipality to continue to bear the maintenance costs of the machinery in order to enable them to service the local garbage collection sites.

Several completion reports praise the achievement of the projects in terms of awareness creation at both the municipality and the community levels of correct treatment and disposal of garbage. This is described and stated as something that has come to stay. Observations and interviews in Morogoro partly confirmed this trend. The evaluation workshop participants also felt that the public had shown major improvement in environmental awareness in the past five years (Sub-Annex 5, Table 5).

Some of the infrastructure developments (e.g. road construction and storm-water drainage installed by the project) still looked well-maintained four years after project completion. This indicates a good planning process and strong community commitment to clean and maintain the drainage system.

In other cities, such as Tanga, cleaner technology initiatives that for instance involved small scale private sector receiving assistance for equipment which could limit water, energy and other resource use, proved successful.

Although the projects can be accused for having built capacity over and above the public sector‟s ability to absorb this increased capacity, references were made several times to the success of the projects to institutionalise new participatory planning methods adding quality and depth to the plans.

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Box 7: Maintenance cost and revenue collection

The introduction of expensive machinery with expensive spare parts has turned out to be problematic for the municipality. In Morogoro, some of the equipment left behind by the project is still functioning but with increasing maintenance costs. The waste authorities reported that they found it difficult to keep up with maintenance demands. Morogoro city produces approximately 266 tonnes of waste per day and only about 75 tonnes is collected. Out of 67 skip buckets, 37 were now worn down. Two out of three skip-loaders available had been out of service for more than half a year. The spare parts required to make one of them work again was available in Dar es Salaam, but the municipality could not afford to pay the USD 35,000 that they would cost. This was the case despite the fact that the revenue collection ability of the municipality had improved: In 2005/2006 the municipality collected TSH 750 million per year. This had increased to TSH 1.5 billion in the 2008/2009 fiscal year. Privately hired trucks had to be used, and a large tractor deployed for garbage collection from over filled skips (see photo). Delays in regular council collection have also led to large volumes of uncollected rubbish, causing a health hazard around the collection point.

3.6 Impact

86. In overall terms, based on the priorities discussed in the 2008 GBS report54, there is some satisfactory performance noted in environmental areas. For EMA implement-tation, solid waste and clean water access, positive trends are reported. Data for other indicators such as trends in forest cover are yet to be established, while revenue generation has targets but not yet actual revenue estimates. There has been a gradual increase in GoT funding for the environment – but much expenditure remains off-budget, and fluctuations occur due to large year-on-year changes in development expenditures. The evaluation workshop also recorded a positive response, with 70% of participants taking the view that Government has given greater priority to the environment more in the past five years (Sub-Annex 5, Table 3). It is hard to judge how much is this due to Danida influence, though it can be said that the increase in reporting

54 Final Report, General Budget Support Annual Review, 2008, MoFEA

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on EMA, revenue and solid waste are likely to be partly at least the result of Danida‟s continued support in these areas. Participatory Forest Management 87. As the PFM component has been active in the old MEMA and UTUMI project areas since 2003, it is not possible to precisely attribute impact to one or the other. However, according to several interviews made by the Evaluation, both projects have had an indirect impact on the PFM component. Both have had impact as a source of inspiration, a learning hub, and especially in the beginning of the PFM component, as points of reference where examples could be found with more mature PFM sites. 88. There have been few concerted and sustained efforts to measure the actual impact of PFM. This is despite the fact that the approach has been the prime official forestry policy since 2003 and now covers more than 4.1 million ha55 under either a JFM or CBFM management regime. In 2008 alone, the total GoT and donor investment into the PFM concept amounted to no less than USD 1.9 million. 89. When introduced in early 2000, the PFM idea quickly gained widespread support amongst donors, and by 2004 by large parts of the MNRT as other approaches (such as private sector concessions) were less successful56. Longer term attempts to a make more rigorous analysis of its actual merits have only been recently seen. Especially today, there is a lack of consolidated understanding on the actual livelihood impacts of PFM, with no national monitoring mechanism in place, as well as a very limited understanding of the implications and impact of the PFM policy on local forest governance. 90. However, things are moving and an important contributor to such impact research is the TAFORI/Faculty of Life Sciences, University of Copenhagen partnership funded by Danida through the PFM component from 2007 to 2009 – with USD 200,000, and from the Enhancement of Research Capacity (ENRECA) funds administered from Danida HQ, with USD 1 million over a four-year period (ongoing). 91. Emerging research from here and elsewhere indicates that when a forest is put under the control of the village assembly (following the CBFM regime), there seem to be a positive correlation between the CBFM regime and improved forest condition - meaning a better regeneration of trees, and a harvest (where this takes place) which is in balance with actual yields. The impact of putting a forest under a JFM regime as compared to pure government control is less clear, but the tendency shows an improvement in forest resource quality. However, under both agreements, but especially under the JFM regime, the implementation of the management plans raises questions about the actual livelihood impacts on especially the poorest segments of the community:

“CBFM holds the key to sustainable forest management and significant contributions to rural livelihoods in some of the poorest and most marginalised parts of the country. Despite this, there is little evidence that the legal transfer of areas of forest has so far been accompanied by tangible local economic returns from sustainable forest harvesting and utilisation….. One of the main underlying causes of this trend is weak forest governance.... This is reinforced by a very limited awareness of forest management rights, laws and opportunities among forest dependent communities and weak capacity within local governments.

55 Internal WB paper assessing the TFCMP, 12/2009 56 This scepticism meant that PFM was only allowed in degraded miombo, not in proper forests.

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In both forms of PFM, evidence collected so far would indicate that without deliberate and conscious efforts to avoid elite capture, poorer members of the community may receive minimal benefits from forest management – and in some cases may end up negatively impacted….. a greater share of the benefits from PFM need to be devolved down to the community level (particularly with regard to JFM)” 57

92. Early research on livelihood impacts indicates that under CBFM, where the communities can keep any revenue collected from the harvesting of forest products, the local elite reaps most of the benefits – or in other words, the already marginalised become more marginalised. Such results correlate with research done in Nepal and India where a process of handing over forests to communities was started in the early 1990s58. Empirical evidence shows that the most common early outcome of handing over forests to local communities is that the elite will capture most of the benefits and decide on fairly rigid protection regimes. This sparks off a significant and in East Africa a largely under-researched problem, of resource-use leakage to other areas. Experience from Asia also shows that only good and thorough facilitation of early participatory planning processes combined with long term capacity building efforts of government staff can partly hinder elite capture

57 Participatory Forest Management in Tanzania 2003-09. Lessons Learned and Experiences to Date, Tom Blomley and Said Iddi, 2009, p.41 58 See for example: Dougill A, Soussan JG, Springate-Baginski O, Kiff E, Dev OP and Yadav NP. Impacts of community forestry on farming system sustainability in the middle hills of Nepal in Land Degradation and Development. University of Leeds, NRI and Oxford Forestry Institute (in press, 2010)

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Box 8: Commercial Timber Harvesting in Kilwa District The first example of a commercial harvesting of timber from a CBFM forest took place in Kilwa last year. The villagers of Kikole village made an agreement with a local entrepreneur to harvest 15 m3 of certified (FSC) Mpingo (Dalbergia Melanoxylon), and in turn raising about Tshs 2 million in revenue for local development activities. The harvest was realised according to the forest management plan, and after intensive support from the Mpingo Conservation project. This can also be seen as an indirect impact of the UTUMI project that started working with the village in 2001, and later the PFM component, that has the region and district as one of its focus areas.

The DFO in Kilwa district, Mr. Mfangavo Mustafa, in front of the signboard to the Kikole CBFM forest reserve. The distribution of the benefits from the harvest and the impact on the poorest segments of the community is still unclear. 93. As forest management in rural Tanzania (and elsewhere) is all about good local governance, with the technicalities involved in forest management playing only a supportive role to this, research on “governance impact” ought to be high. Judging from the fairly limited research available, again it looks like the JFM management scheme finds it hardest to deliver on improved governance. Although even amongst this mixed record the trend is still towards improved forest governance. A contributing factor to this is that so far only CBFM has been able to deliver the means and resources to improved livelihood in some communities.

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Box 9: Protection of CBFM and JFM forests in Morogoro District The Evaluation visited Fulwe village and the adjacent Dindili forest reserve that had been under a JFM agreement for the past two years. The forest/environment committee comprised 18 members who had received five-day training in the duties of the forest committee and in the forest policy and Forest Act. Two representatives from the committee had been on two study tours to Singida and Manyara. Elderly villagers met near the forest claimed that the forest was improving as compared to 10 years ago, but they also expressed concern about the growing number of illegal charcoal trafficking from other nearby areas. The villagers explained that one of the unintentional impacts of having been successful with protecting the forest reserve was that nearby areas had experienced an increasing pressure and were in effect being deforested. Contributing to this was a steep population increase within the ward: In 1998 the ward had 5,070 inhabitants, but by 2009 this had increased to approximately 12,000. The forest users were allowed to enter the forest every eight weeks in groups of five to 15 people and take out deadwood, medicine and fruits. The groups would be accompanied by at least one of the members in the environment committee. This tendency was confirmed during a visit to Muhungamkola village also located in Morogoro district. The village has two forests under CBFM, Kila forest reserve of 295 ha and Ngongoro forest reserve of 77 ha. According to the management plans, no harvesting is allowed in the forests at least for the next five years. Due to the local byelaws, which included heavy sanctions on forest intruders, villagers confirmed that they respected the plan and instead got their forest products from forests with open access on the general lands.

One of the important (potential) governance impacts of implementing PFM is the demand on central and local authorities to increase transparency and accountability to their citizens. Here, the village executive officer in Fulwe village, Mr. Kunambi Moris, is searching his filing cabinet for the local forest management plan. Only a few years back such a plan would have been kept in the central District Forest Office.

Sustainable Cities Projects 94. The impact of the sustainable cities projects is difficult - if not impossible - to assess due to the many attributing factors. There has been no documentation or follow-up research after the last project was terminated in 2007, and the impact of stronger

34

participatory planning capabilities cannot be assessed. The transfer of civil servants who used to be involved full time in project implementation has further diluted the institutional sustainable cities memory in the municipalities. 95. In terms of capacity building, while effectiveness has been good in several areas (improving planning systems and systems), a 2005 review judged that this had not „influenced the overall manner in which the municipalities do planning‟. Nevertheless, „the projects have however contributed to cementing the principles of participatory planning in the municipalities and that is not a small achievement on its own‟59. 96. The same 2005 review judged that the SCP had contributed to improved governance and poverty, where poorer communities had space to participate in decision making. Also it recognises the existence of health improvements that are a result of the interventions in sanitation, solid waste management and supply of potable water – a point supported (though statistics are still needed) by the Morogoro field visit (Box 10) and by experience from Iringa, according to a former counsellor. Box 10: Community Based Garbage Collection in Morogoro Municipality

CBO waste collection in Morogoro Municipality has been operational since 2005. According to interviews, the town is visibly cleaner now as compared to 10 years ago. The local public health official stated that this may have contributed to a decline in cholera cases.

59 Technical Review of Danida Support to Sustainable Cities Programme, Draft, June 2005, p.29

35

Gender, HIV/AIDS and human rights 97. Gender is an important crosscutting issue for Danida but the project documents do not contain specific gender objectives. There is some evidence though from review reports that specific progress on gender occurred. The Sustainable Cities Tanga project PCR for example notes the formation of committees in the council with one third women, and in the communities with two-thirds female membership. In Mororogo, the PCR states that HIV/AIDS was addressed through awareness raising and these have continued after the end of the project. 98. The Joint PFM review recognises that gender equity is in the guidelines yet notes that, “it is not evident how gender as a crosscutting issue has been integrated into PFM activities. Issues such as how can PFM activities lead to for example decreasing women’s workload is not specified or monitored – nor is it mentioned how PFM activities might lead to marginalisation of some groups such as widows”. The NAFOBEDA system does not appear to capture gender reliably, though one indicator include in the database was the number of women on the executive of local PFM committees. On the other hand, increased used of improved cooking stoves through PFM support appears to have been valuable to women. Impact on HIV/AIDS is absent under PFM, UDEM and EISP as there has been little explicit recognition or any actions taken. 99. On human rights, while reports comment on activities to sensitise beneficiaries about human rights issues (workshops etc.) there is some though limited evidence of impact. In the SCP, poorer communities have had greater voice in urban planning decisions, and Danida‟s support to the first MKUKUTA led to greater recognition of human rights as well as environment. The Embassy has been a continuous voice in raising human rights concerns in areas where pastoralist communities have been affected by conservation measures – such as in Ereto, Ngorongoro Pastoralist Project60. The 2008 ESPS review rates human rights progress as „less satisfactory‟, focusing on slow progress under PFM, and lack of reporting on the resettlement of pastoralists with the implementation of the SUALDWC.

3.7 Coordination

100. Coordination in the sector involves the Government-led Environment Working Group (EWG), and a donor group, the DPG-E, for which Denmark has been the chair since 2005, a considerable period of time, due it seems to the energy and willingness of Danida to play this role. 101. Table 3 shows the pattern of DP involvement in different areas of environmental support in 2006, albeit a snapshot for that year only. The picture is complex with so many areas covered and few of these involve any form of basket funding arrangements. The most popular sub-sectors are wildlife and forestry. For forestry the earlier period from 2001 on was, in the view of a former Embassy Environmental Counsellor, a period of good coordination with leadership from FBD and active donors committed to PFM. 102. In the past three years, climate change adaptation interventions have increased, such as the Reduced Emissions from Deforestation and Forest Degradation (REDD) initiative (strongly promoted by Norway in Tanzania), and this brought in new donors such as the UK. Geographically, there is broad yet uneven coverage, as noted in the ESPS 2007 programme document (p.xi): “All regions receive some assistance and 94 out of 120

60 http://www.ereto-npp.org/

36

districts receive assistance. Nevertheless, the overall picture is that development assistance is very unevenly distributed nationwide among the regions/districts.” Table 3 Key DPs current engagement in the Environment Sector (2006) E

C

WB

UN

DP

FA

O

UN

Hab

itat

UN

IDO

/IL

O

Bel

gium

Den

mar

k

Fin

lan

d

Ger

man

y

Net

her

lan

ds

No

rway

USA

To

tal

Beekeeping x x 2

Wildlife x x x x x x 6

Ecosystems x x 2

Biodiversity x 1

Wetlands x x 2

Forestry x x x x x x 6

Fisheries x x x x 4

Land management x 1

Water management x 1

Energy x 1

Marine/ Coastal x x x x 4

Lake management x x 2

Sanitary control x 1

Water/ sanitation x x 2

Urban environment x x 2

Sewerage x 1

Waste management x 1

Rural development x 1

Source: ESPS 2007-12 Programme Document, p.43

103. As of 2010, there are seven active members in the DPG-E: World Bank, Finland (co-chair), Norway, Denmark (Chair), UNDP and (since 2010) Belgium and EU. In addition, there are the following contributing members: DFID (considered “active” in climate change) (Focal point Climate Change), CIDA, SIDA (energy, climate change only), UNEP, FAO, USAID (focal point Wild Life), France (focal point tourism). 104. Co-funding has been limited, and although steps to operate a SWAp in forestry have occurred, including an MoU signed in 2005 by donors and Government, the overall the degree of harmonisation is modest. Coordination in the urban sub-sector in contrast to forestry has been difficult – with the multiple and separate city programmes not helping to strengthen coordination, and though UDEM brought a national level of dialogue, still there was little success in building coordination either amongst DPs or with GoT. 105. Coordination has been an important issue for Danida who have invested considerable energy in leading the DPG-E over several years. The aim of the group was to improve DP coordination and to create a platform to build policy influence and raise the effectiveness of aid funding on environmental issues. 106. One view is that, “the dominance of a project approach and lack of harmonised work-plans amongst members of the DPG-E restricts their impact in policy dialogue in the EWG”. Yet the DPG-E has made continuous efforts to build shared positions amongst its members, and there are examples of policy discussion with senior GoT officials based on agreed DPG-E positions. The group has held retreats to discuss a range of issues and commissioned

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studies, for example on how to build a common approach to climate change.61 The DPG-E would count as a success that the climate change agenda is higher on the GoT agenda and will likely feature in the new MKUKUTA, and that DP actions are more coordinated. Also that the PAF now includes more environmental indicators, with important ones such as revenue generation from concession and licences in forestry, fishery, wildlife and minerals, budgets allocated to EMA implementation in districts62. 107. Engaging with GoT on environmental issues is handicapped by the continuing low capacity of the key office, the VPO, and minutes of DPG-E meetings refer to frustrations in achieving quality dialogue. At the same time, the minutes indicate that the DPG-E could be more innovative and learn from other sectors how the DPGs successfully work with their respective ministries, and that it needs review its approach63.

108. In terms of wider and more inconclusive dialogue, the IDGE (which split from the DPG-E in 2003, when donors reportedly felt the need for a donor-only forum for their discussions and also to allow civil society to have a separate forum) fell somewhat into abeyance, and it seems that not enough has been then done since then to encourage a more inclusive debate on environmental issues between DPs, GoT and non-governmental organisations. The EWG may be the main forum for leading on this, but it seems that it in general it has not been sufficiently active64 or strategic65. This is a crucial issue for Danida, because of the central role that the EWG was foreseen to play under the EISP. 109. In conclusion, Danida did well to bring environment into the GBS/PAF process, and to increase mainstreaming through complementary support in other sectors (e.g. in roads). The DPG-E has not however been as harmonised as other DPGs, with a large number of members (15) and many pursuing a strongly project-led approach, and with insufficient involvement of other stakeholders (NGOs, CBOs, LGAs) in discussions. Danida has played a strong and active DP coordination role, but has not always been successful on strategic issues (for example in building in a more pro-active way a richer MKUKUTA II review process and in improving civil society engagement on policy on advocacy). However, work on the MKUKUTA is continuing and the Embassy has provided detailed comments on the draft. 110. Danida has sought to make increasing use of GoT systems, but this programmatic trend has received limited support from other DPs in the environment66. The slow pace of local government reforms, particularly on financial flows, and the poor management and reporting of fund use, has led to efficiency concerns by Danida and others, and to a slowing of the development of programmatic approach in recent years.

61 Report from DPGE workshop on climate change coordination in Tanzania By Anders Arvidson, Stockholm Environment Institute, Africa Centre, Dar es Salaam, March 2009 62 The 2010 PAF includes2 Underlying Processes, 2 Temporary Process Actions and 2 Outcome Indicators related to environmental issues. 63 See for example the Minutes of DPG-E November 2009 64 “Since November 2006 only 11 EWG meetings has been held during the three years, and only four meetings have been held during the past 18 months” (EISP Joint Technical Review, Nov 2009) 65 According to the Danida Assessment in 2008: “the EWG, the formal forum for coordination (chaired by VPO and delegated to DoE), meets irregularly and often with representatives of line ministries that rarely express their views of sector interests in environment. Strategic discussions on e.g. urban environment or natural resource management issues do not take place in the EWG”. 66 Both Norway and Finland have had reason to suspend their support following concerns over misuse or poor administration of funds in the forest sector.

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3.8 Complementarity

111. Amongst the EU members states involved in the environment, there have been regular meetings and information sharing. Efforts to build a complementary approach in the sense of avoiding overlapping support or in sending different messages on policy matters have been pursued and instigated largely through regular meetings and retreats. These events have helped to analyse issues and to discuss various thematic papers that have been prepared, such as on climate change adaptation. Such meetings have been used to form a common position for subsequent discussions with senior Government officials. 112. To a certain extent, individual donors remain more driven by their country policies and priorities and this has prevented them working towards closer co-funding or joint programmes. The majority of DPs involved in the environment have limited staff in country, and this has also restricted the time that they can spend on joint working as well as managing their own portfolios. Nevertheless, Denmark has committed consider-able time to managing the DPG-E, which can have an attendance from nearly 20 agencies (when the UN organisations are counted separately).

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4. Lessons and Recommendations Conclusions 113. The two phases of introducing a programmatic approach (2000-04 and 2007-12) reflected the circumstances and adhered in part to the Danida guidance available at the time. The ESPS was able to take advantage of an improved national assistance strategy (the JAST) and achieved more in terms of alignment and linking to national strategy but was still not fully programmatic (in terms of a longer time frame, strong national ownership, joint funding). 114. In relation to sustainability and impact, interventions would have been more effective if designed with: a longer time-frame, better harmonization with other donor interventions, better match of programme ambitions with local authority capacity, better synergies between the programme components 115. As lead donor, Danida coordinated the donor group on environment well and used the group to produce documents and agree on positions. But the group could have sought more strategic engagement with a wider group of stakeholders, including government and non-government actors, around environment mainstreaming and links to poverty reduction. 116. Finally, apart from the PFM experience – which has been longest in duration - there is limited evidence that the shift to a programmatic approach, though relevant as an aid modality, has yet to prove effective in delivering benefits. This judgement should take into account the fact that the support to UDEM and to EISP is still quite recent. However, the most recent ASR (March 2010) recommends that (i) the plans to merge the balance of UDEM funds with the WB Strategic Cities Project should go ahead and (ii) that Danida prepares an exit strategy for EISP and focuses on specific results for the final three years of support. With these decisions, Danida has signalled a move away from its programmatic ambitions to a more pragmatic approach in the sense that it will seek to make best use of its existing funds in more conventional aid approaches such as projects, and will at least for the present, seek specific short-term results rather than pursue a more ambitious policy role. Lessons

1. Long term engagement can bring benefits when shifting to a

programmatic approach. Thus, the national forestry programme has benefited from earlier Danida projects, which though relatively high cost have helped underpin the present PFM approach. The experience gained from both MEMA and UTUMI provided important building blocks for the PFM Component of ESPS. There are clear local and national links between the foundations laid by the projects 10 years ago and a number of PFM achievements today. The projects represent some of the oldest timelines within PFM today, and are often referred to as valuable sources of information and points of reference for FBD staff.

2. Unrealistic assessment of donor intentions to join basket funds and over-

ambitious timeframes can inhibit a successful transition to a programme approach. The basket funds under the ESPS hinged on additional funding from

40

other donors being available to fulfil the scope of the design, but these funds did not materialise.

3. Complementary support in other sectors (such as in roads) together with support for the lead coordinating government agency for the environment can build mainstreaming approaches.

4. Long-term uninterrupted commitments are essential. The long-term commitment and stamina of Danida is crucial. Setbacks are to be expected, both financial and technical, but rather than deterring the donor from continuing their support, the setbacks should be used to intensify the dialogue on the way forward. The renewal of funding of the PFM programme (following the ASR 2010) should strengthen the credibility of local government structures in their attempts to profile themselves as accountable to citizens.

5. Establishing a link to poverty reduction is not easy in the environment sector.

There have been documented changes in village ownership and control of forest and wetland resources, but there is also evidence of elite capture and of minimal transfer of assets to the poorer members of the community. At the same time research is still ongoing and time horizons are long. In urban environmental management, a lack of ex-post evaluation makes judgements on poverty reduction difficult.

6. There is a trade-off to be made between obtaining fast results and building ownership and alignment. Developing a programmatic approach in the environment requires increasing reliance on Government systems that in turn brings with it slow disbursement and the imposition of complex administrative and financial guidelines for districts who have limited capacity to implement environmental programmes (which often have to cover immense areas with few staff).

7. Implementing an environmental programme can be relatively more successful

where strong government leadership and consistent DP engagement occurs (as in PFM)67, even though here too implementation may be slowed by less efficient government systems.

8. Size and ambitions of programmes should match the means available. The current stalemate of several of the components under the ESPS can be attributed to a tendency of Danida to overestimate its own weight during the design phase. Although Danida is a major donor in environment and has the chair in the DPG-E, its national leverage is limited if it acts alone. Assumptions that other donors would be attracted to fund the UDEM and EMA components have turned out to be inappropriate under the prevailing conditions, thereby wasting valuable time for both GoT and for the RDE.

9. Stronger long-term, component-specific research programmes are necessary. The ESPS, as it is currently designed, services the intentions in the

67 The conclusion that a programmatic approach can be better applied to for instance NRM sector, but that support to environment, with a Ministry of Environment, is less suited for a programmatic approach was also a lesson learnt from the most advanced of Danida‟s programmes (in that context), Para el Apoyo Danes al Sector Medio Ambiente in Nicaragua.

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MKUKUTA (PRSP) but does not inform it very well. Although environmental indicators are included in all three clusters (1: growth and reduction of income poverty, 2: quality of life and social well-being, 3: governance and accountability), empirical studies at programme level are also required to better inform future PRSPs. Therefore, long term and uninterrupted quality research is important when working in areas requiring a deeper understanding of slow dynamics like biomass increments, governance effects and poverty impacts. Had such research programmes been implemented throughout the sustainable cities projects and the PFM component, both GoT and Danida would have had a better understanding of what works, which would strengthen their position to design next generation programmes and PRSPs.

10. Capacity assessments and strengthening of administrative bottlenecks Late disbursements from the Treasury have been detrimental to the PFM and Wetlands programmes. The reasons identified have either been slow processing of the funds from the MoFEA to the local governments (transfer time of up to 215 days), or a slow compilation of consolidated progress and financial reports from the regions.68 Delayed funding to line agencies working with NRM has in some instances meant that the opportunity for implementation in a whole financial year has been lost due to the onset of the rainy season where only limited field work is possible. The lesson for Danida is that more thorough assessments of the capacity of MoFEA and local governments, targeted capacity development of these institutions to handle flow of funds should be included in the design of new programmes, and a more gradual roll out of activities be planned commensurate with the expected release of funding.

11. TA can still play an important role in complex programmes

In an environment where the civil service system over a prolonged period has experienced a number of paradigm shifts in terms of public service reform, financial reforms and a local government reform programme, the value of a TA facility should not be underestimated. When introducing rather complex programmes into fragile government institutions undergoing fundamental reform changes, the TA can act as a buffer to the donor, a bridge-builder to the Embassy and above all, as an important technical resource that can document, reflect and provide independent advice to both the Government and the Donor. It is also important in this context to also ensure that the role of the TA serves the partner government‟s interests first.

Recommendations The Embassy may find the following recommendations useful:

1. With a decision to agree a new phase of funding for PFM, if necessary facilitate the slow GoT reporting by providing assistance upon request.

2. Make strong efforts to seek broader donor support as well as GoT ownership for the ongoing EISP component. This is a critical intervention to support environmental mainstreaming and requires constructive efforts to put it back on track. One practical step would be to convene a retreat on progress and future

68 Ernst & Young, Value for Money Audit, p. 6 revised draft final report, 12 October 2009

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direction of the EMA, and include DPs, GoT and relevant NGOs. Help to further strengthen links between VPO, MoFEA and line ministries on the EMA implementation: Danida is in a unique position because of its links in both the central environment coordinating body and its other support to roads, governance, business and health.

3. There are a wide range of civil society actors in environmental issues, but typically they act as implementers and are not well linked to policy and strategy for a. Danida should actively support mechanisms to bring about wider environment consultation (such as fora like IDGE69), using the resources ear-marked under the ESPS).

4. The preparation of the new MKUKUTA will determine how environmental issues are funded and mainstreamed over the next five years. Danida should seek ways to (i) support a more robust MKUKUTA review of environment performance leading to better future strategy, and (ii) support better review, monitoring & dissemination of the relevant environmental indicators in the MKUKUTA and the Poverty Environment Initiative

5. Capitalise on experiences already gained by undertaking independent evaluations. The sustainable cities projects hold much more experience than has been documented in mid-term reviews and completion reports. Although Danida invested nearly DKK 95 million in these projects between 2000 and 2007, there has been no concerted effort made to make an independent consolidated review of achievements and experiences gained. Both the current UDEM component and the possible future engagement with the largely WB funded strategic cities projects would benefit from such an assessment.

6. Given that there have been few concerted and sustained efforts to measure the actual impact of PFM (para. 86), Danida needs to retain strong linkages with local level initiatives in PFM, and to persist with these to ensure that benefits do finally emerge for village actors. Danida should also renew its support for extended research partnerships to understand how and why PFM has (or has not) worked. As forest management in rural Tanzania (and elsewhere) is all about good local governance, with the technicalities involved in forest management playing only a supportive role to this, research on “governance impact” ought to be higher on the research agenda.

7. Interventions at the local level will be more effective if designed with a longer time-frame and where programme ambitions are better matched with local government capacity.

69 The IDGE currently has very modest support from IUCN, with only a part-time staff operating the Group. It could be made much more effective with some additional funding.

43

Sub-Annexes

1. List of Persons Met

2. Time line

3. Logic Model

4. Workshop Results (with list of participants)

5. Workshop Questionnaire Results

44

Sub-Annex 1 List of Persons Met

Date Institution Name Designation

22nd February 2010

Royal Embassy of Denmark Royal Embassy of Denmark

Lars Mikkel Johannessen DPG-E Chair

Jema J. Ngwale Program officer, environment

Vice President‟s Office Ms. Ruth Mollel Permanent Secretary

Vice President‟s Office, Division of Environment

Richard Muyungi Ag. Director of Environment

23rd February

Forestry and Beekeeping Division (FBD)

Ms. Khadija Ramadhani Former coordinator of PFM/Assistant Director, Utilization

Ministry of Natural Resources and Tourism, Forestry and Wetlands

Isabell von Oertzen Natural Resources Management Advisor

FBD Joseph J. Kigula PFM Coordinator

Royal Embassy of Denmark

Lars Mikkel DPG-E Chair

Jema Ngwale Program officer, environment

Sustainable cities program

Richard Musingi Consultant, Former PMO-RALG Director of Sector Coordination

24th February

Wildlife Conservation Society of Tanzania (WCST)

Lota Melamari CEO

Wildlife Division John Balarin TA, Sustainable Wetland Management

Herman Keraryo Head of Wetlands unit

Embassy of Norway Ivar Jorgensen Counsellor, environment/climate change

25th February RDE Jema J. Ngwale Program officer, environment

World Bank Barjor Mehta urban environment program

UNDP Gertrude Lyatuu, Gemma Alitit

Responsible for Environment and poverty reduction

PMO-RALG, City Council

Michael Mwalukasa UDEM, Dar es Salaam City Council

26th February

Informal Discussion Group on Environment (IDGE)

Jessica Campese Coordinator in Informal Discussion Group on Environment (IDGE)

TFCG Charles Meshack CEO

Nike Doggart Technical Advisor

WWF Peter Sumbi Program Officer/Forestry

HTSPE

Kahana Lukumbuzya Consultant/Former Danida programme officer concerned with environment

28th February Dege consulting Per Tidemund Formerly PEM consult

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1st March Ministry of Finance and Economic Affairs

Jason Bagonza Senior Economist

Mr Saidi Magonya Commissioner for External Financing

Anna Mwasha Coordinator of MKUKUTA Environment and Poverty Cluster

Kilwa District Council Godfrey January Act DED, Kilwa District

Kilwa District Forest Office

Mfangavo Mustafa DFO, Kilwa District, Lindi Region

Ernst and Young-Tanzania

Glenn Scott Director

World Bank Christian Peter Environmental Adviser

2nd March Kilwa District Agricultural Office

Chalamila Tabson Kilwa Divisional Agricultural Officer

Kilwa District Forest Office

Mr. Chikira Hassan Senkondo

Mangrove Forest Management Project

DoE Joseph Kihaule Senior Environmental and Natural Resources Officer

Blandina Cheche Poverty and Environmental Officer

CARE Tanzania Paul Barker, Tabid Masoud, Balaram Thapa

Director and staff

Canadian Embassy Victoria Mushi Program Officer, gender and environment

3rd March DoE Joseph Kihaule

TNRF Carol Sorensen Coordinator

4th March Morogoro District Council

Edward Kimweri DFO, Morogoro

Ande Mailango DNRO, Morogoro

TAFORI Dr. Lawrence Mbwambo Director of Forest Utilisation

Morogoro Municipal Council

Prof. Ishengoma Mayor

Thomas Ngaliela, Isaac Kihama

Waste Management Unit, Ag. Director, City Council

Eastern Arc Mountain Forest Endowment Fund

Francis Sabuni CEO

SUA Prof Mununishi Forest Biology Dept

5th March Morogoro Rural District Mikese Ward, Fulwe village

Mr. Kunambi Moris Village Executive Officer

Fulwe Village Shabari Bwengo Chairman, Village Natural Resource Committee

Fulwe Village Iddi Beya Secretary, VNRC

Fulwe Village Ali Fundi Member, VNRC

Muhongamkola Village Abdala Galisa VNRC, Chairperson

Muhongamkola Village Selemani Kinongo Village Council, chairperson in planning, economics and finance

Muhongamkola Village Rehema Said VNRC, Member

Kinole Ward, Morogoro Rural District

Chief Kingalu the 14th of Uluguru

Community leader

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Visit to Mifulu village Kalungwa Primary School

Enos Eliakim Lilian Masaki

Forestry Officer Forestry Officer

10th March Danida Merete Petersen Former RDE Counsellor

12th March Embassy of Finland Merja Makela Environment Counsellor

Danida Lone Thorup Former RDE Counsellor

16th March European Commission Tanzania

Anne Clair Leon Baptiste Bobillier

Counsellors, Rural Development

Interviews were also conducted in Copenhagen with Danida staff involved in the Tanzania programme including: Søren Vium Andersen, Elsebeth Tarp, Merete Pedersen.

47

Sub-Annex 2 Timeline – Danida Support to the Environment 1996 to 2009, Tanzania ´96 ´97 ´98 ´99 ´00 ´01 ´02 ´03 ´04 ´05 ´06 ´07 ´08 ´09

Tanzanian national policies & strategies Com.

Dev. policy

Env. Policy

Forest Policy

Vil. land act & local gov act. MNRT restruct.

Forest Act + Structural review of ministries

Rural dev. policy

EMA MKUKUTA

JAS

Wildlife Policy

Wetland revised act

Danida policies, strategies and guidelines

Revised guideline on progr. Mgt.

Aid Mgt Guidel.

Env. Strategy 04-09

Lessons learned Env. Sector programming

Africa strat.

Lessons learned Urban Env.

NRM support

Forestry MEMA, Iringa (36 mill. DKK) Participatory Forest Management Component (57.5 mill. DKK)

UTUMI, Lindi (20 mill DKK)

Wetlands SIMMORS (31 mill DKK) Wetland Management (34 mill. DKK)

RAMSAR admin support (4.3)

Other donors World Bank, Finland, Belgium, UNDP, Norway

Urban support UDEM (100 mill DKK) 2007 to 2012

Sustainable cities Iringa (58 mill DKK)

Moshi (19.8 mill DKK) Tanga (23.1 DKK)

Arusha

Mwanza (9 mill DKK)

Morogoro (19.8 mill DKK)

Other donors UNDP / World Bank

Env. Mgt. Act EMA-ISP (35 mill. DKK) 2007 to 2012

Programme Support docs

ESP ESPS (2007 to 2012)

Key Positions

Minister MNRT A Diallo Z Meghji J Maghe. Mwanu.

PS MNRT Phillemon Luhanjo Odunga Salehe Pamba Blandina Nyoni

DK Ambassador

Counsellor RDE Søren Vium Andersen Lone Thor & J. Henningsen Merete W Pedersen Lars Mikkel Johannessen

Program officer Kahana Lukumbuzva Jema Jacob Ngwale

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Sub-Annex 3 Logic Models

49

LOGIC MODEL 1. EISP, 2008 TO 2012 (EMA) Model based on ESPS programme document 2007 and EISP component document 2007

INPUTS

OUTPUTS OUTCOMES………IMPACT

Partners

Short to

Medium term Long

2007 to 2012: DKK 35 million

Policy and planning: 1.1.1 EMA associated regulations, standards, guidelines and manuals prepared and disseminated to implementing institutions (some already done, some underway); 1.1.2 NEAC established; 1.1.3 National Environment Fund established 1.2 EIAs and SEAs: 1.2.1 EIA and SEA experts registered, EIAs and SEAs reviewed and acted upon; and Environmental audits conducted 1.3 Reporting, monitoring and enforcement: 1.3.1 Central Environmental Information System established and State of the Environment Reports prepared and disseminated; 1.3.2 Environmental inspectors, Analysts, and Reference Analysts designated/appointed; 1.3.3 Environment Appeals Tribunal established and functioning. 1.4 Information and awareness: 1.4.1 Awareness of EMA and Multilateral Environmental Agreements amongst all stakeholders increased.

Coordinating forum: EWG Executive agency: VPO Secretariat: DoE NEMC will play a complementary role in line with their enforcement mandate. MoF, PO-PSM, and PMO-RALG will undertake supporting functions.

1) Coordination of environmental management in Tanzania improved; and

“State of Environment in Tanzania improved through implementation of EMA, contributing to growth and income poverty reduction, social well being, and improved governance and accountability”

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The outputs under the immediate objective 2 will primarily be implemented by MDAs and at the local level through PMO-RALG: 2.1: Policy and planning:

2.1.1 EMA mandates specified and internalised within implementing partners; 2.1.2 Environment sections and committees established (reviewed, where they exist) in MDAs and LGAs 2.1.3 Sector specific and LGA environmental action plans/strategies developed, implemented and monitored; 2.1.4 Sector legislation, policies, strategies, plans/strategies reviewed and harmonised, and implemented where necessary. 2.2: EIAs and SEAs: 2.2.1 Sector specific EIA guidelines produced (reviewed if in place) and implemented for approval; 2.2.2 Compliance inspections conducted; 2.2.3 SEAs of legislation, policies, strategies, plans and programmes conducted and submitted for approval 2.3: Reporting, monitoring and enforcement: 2.3.1 Sector and LGA (consolidated report from PMO-RALG) State of Environment reporting system established; and reports produced and disseminated; 2.4: Information and awareness: 2.4.1 Information on EMA and sector specific implications disseminated to all stakeholders in respective sectors;

2) Effective implementation of environmental mandates.

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LOGIC MODEL 2 UDEM 2007 to 2012 Model based on ESPS document 2007 and UDEM component document 2007

INPUTS

OUTPUTS OUTCOMES………IMPACT

Partners

Short to

Medium term

Long

Total Budget: National component: DKK 8 mill Local components: DKK 90 mill Long term adviser: DKK 2 mill.

Output 1: Framework consolidated through – insertion of the framework in MTEFs & pre studies for the UDMP Output 2: Existing laws, guidelines and strategies harmonised Output 3: UDMP developed Output 4: sustainable long term responsiveness to LGAs operational National Level Capacity Building Output 1: Capacity of national level institutions to serve LGAs for UDEM enhanced Output 2: Platform to coordinate and enhance all national efforts strengthened and operational LGA Level Capacity Building Component Output 1: CBG for UDEM established and operational Output 2: Improved implementation of UDEM activities in LGAs‟ through increased capacity for using the EPM process UDEM Funding Framework Output 1: National level CBF established and operational Output 2: UDEM CDG established and operational Output 3: Utilisation of other sources of funds for UDEM activities promoted

UDEM Steering Committee comprising of Key Government Ministries, Departments and Agencies collaborating in the implementation of the UDEM framework Representatives from relevant national level Civil Society Organisations Representatives from relevant national level Private Sector Organisations Local Government Authority representatives National and International Development Partners involved in the field Service Provider representatives

1) To provide coordinated financial and technical assistance to relevant LGA sector institutions at the national and regional levels to create an enabling atmosphere for implementation and monitoring of urban development and environmental management activities at the local levels through a supportive legal and policy framework; 2) To provide nationally compatible assistance for the effective management of the supply and demand sides of capacity building of relevant stakeholders at both national and urban local government levels to facilitate the implementation of local level UDEM initiatives; 3) To provide financing to national and local level LGA sector institutions to operationalise a UDEM supportive national Local Government sector and enable the LGAs to make investments in improved urban development and environmental management through nationally compatible intergovernmental transfers.

Improved living conditions of the urban communities in Tanzania by facilitating decentralised implementation and monitoring of sustainable urban development and environmental management in the Local Government Authorities sector.

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LOGIC MODEL 3 PFM, 2008 TO 2012 Model based on ESPS programme document 2007 and PFM component

document 2002

INPUTS

OUTPUTS OUTCOMES………IMPACT The programme assumptions are: (1) GoT continues to provide policy, legislative, strategic and fiscal support for PFM over the next decade (2) LGRP will result in a progressive strengthening of Regional Administrative Secretariats and District Councils through the devolution of human and fiscal resources (3) PFM can demonstrably reduce poverty and improve livelihoods (4) PFM results in the sustainable management of forest and woodland resources, and (5) Women, the poor and other disadvantaged groups will be involved in PFM planning and management including the negotiated sharing of benefits. Key Risks identified as: (1) HIV/AIDS pandemic, (2) Restructuring and multiple “transitions” confronting the GoT at all levels, (3) Reticence to change „organisational cultures‟ and management styles, (4) Continued use and/or expropriation of forest and woodland areas outside the network of PFM areas by external groups, (5) Macro-economic instability and/or the vagaries of climate, and (6) Forest revenue collection and retention schemes are not reformed effectively.

Partners

Short to

Medium term Long

Total Budget: 2003 onwards to 2012?: DKK 57.5 mill Extended 2009 to 2012: DKK 18 mill

1.1 A national framework for PFM implementation developed and institutionalised. 1.2 Applied research and development to facilitate PFM supported. 1.3 National PFM monitoring system developed and dovetailed to Poverty Monitoring Master Plan, National Forest Programme (NFP) and Local Government Reform Programme (LGRP). 1.4 Manual of PFM „best practices based on simple and practical handbooks developed and published. 2.1 Local Government Authority human resources capacity and financial ability to support PFM enhanced. 2.2 Village, sub-village and user group committees promoted and strengthened to support implementation of PFM. 2.3 PFM plans in selected districts developed and under implementation. 2.4 Private forestry initiatives enhanced.

Executing & Coordinating: FBD and MNRT Cooperating institutions: PMO-RALG and LGAs in Iringa, Morogoro, Mbeya and Lindi

1) A national framework for PFM under implementation 2) PFM developed and operational in selected districts in four regions.

Improved and sustainable management of Tanzania‟s diverse forests and woodlands resources contributing to the maintenance and development of sustainable livelihoods especially among the poor rural communities.

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Sub-Annex 4 Workshop Report

Tanzania Draft Workshop Report March 8th, 2010 Introduction 30 participants attended a workshop to discuss the findings of the evaluation held at the Movenpick Hotel on 8th March 2010. The workshop drew participants from Dar es Salaam, Morogoro, Mbeya and Iringa. There was a wide range of attendees including representatives from MNRT, the Danish Embassy, District officials, NGOs and consultants. About half the attendees were from a NRM or PFM background, and hence the discussions were richest in this area. The team presented their preliminary findings, while the Danish Embassy gave a presentation on the background to the evaluation, and an ex-Director of PMORALG gave a presentation on Local Government Reform and its relationship to the environment management. Appendix 1 is the list of workshop participants. The workshop was chaired in turns by the Lead Consultant and Richard Musingi, an independent consultant and former PMO-RALG Director of Sector Coordination. Official welcome remarks were made by the Director of Forest and Beekeeping Division in the Ministry of Natural Resources and Tourism, Dr. Felician Kilahama; an overview of the evaluation by the Counselor for Development at the Royal Danish Embassy Lars Mikkel Johannessen, and the presentation of preliminary findings by the Evaluation Team. This was followed by a question-and-answer session. After the presentation and discussion of preliminary findings, the participants were organized into 4 working groups to examine impacts of projects/programme evidence of such impacts on the beneficiaries with respect to themes listed below and lessons learnt::

1. Poverty alleviation 2. Programmatic approach/mainstreaming 3. Capacity building 4. Local Government

The questions were:

Impact – What has been the change as a result of intervention?

Evidence – What kind of information and where to find it

Lessons learnt – What do we learn from the experience The working groups were in general positive over the local results of the PFM, highlighting improvements in community confidence, land rights and forest cover, and some of the group members were critical of Danida‟s decision to suspend further support for these interventions. But also the need to address the means to recover income from better managed forest resources was highlighted, especially with regard to MoFEA‟s awaited agreement to income sharing in JFM areas. The discussions on programmatic approaches centred around the need for flexibility and patience on the part of DPs, the complex institutional landscape in Tanzania, the importance of adopting GoT systems and encouraging more proactive leadership and not just „paper‟ ownership on the part of national institutions.

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On capacity building, the discussants endorsed the view that over the past ten years, community understanding and participation around PFM has changed significantly and these have become linked under the Mijumita (Mtandao wa Jamii wa Usimamizi wa Misitu) or Tanzania Community Forestry Network. Good capacity building takes years, and DPs need to plan for this long-term engagement. Equally, it was argued that the ambitions of Danida to introduce challenging programmatic approaches should be matched by sufficient capacity at the Embassy to deliver. Finally, the findings on local government stressed that districts had begun to change their approach and to include communities in decision making, but that there are substantial costs and time needed for introducing environmental mainstreaming and setting up PFM. Below is a summary of the outcomes of the group exercise:

Group A: Poverty Group Impact

People are more aware of potentials of forests to reduce poverty

Increased engagement of communities in alternative income generating activities (that usually come with forest management projects/programs)

Communities get revenue from forest resources and use it for social economic activities such as building schools, dispensaries etc

Land tenure security (as a result of land use planning, which is part of PFM) Evidence

Village land use plans in all villages with PFM projects

651 Beekeeping groups (about 12940 individual beneficiaries)

660 households growing mushrooms

Increasing tree planting on village and private lands and people are selling seedlings, timber and poles

Rural credit and saving schemes (VICOBA) functioning

Non-wood forest products are harvested from protected forests.

Fish farms

Livestock schemes Lessons

Project period is very short and thus when communities become aware and start demanding the services, the project is already gone.

The ability of FBD could improve if the payment of the environment services is done e.g. the electric company, TANESCO and the Ministry of Water should pay for resources obtained from forests

There is a need for devolution of power, responsibilities and resources so as to enable implementers at district and village level to operate effectively e.g. cost/benefit sharing in JFM scheme should be done so as to enable villages to benefit and have motivation to manage protected forests.

Lack of clear line of commands e.g. Forest management involves personnel from MNRT, PMO-RALG and VPO

Conflicting laws and policies e.g. Agricultural Policy advocate for more land for agriculture, whereas Forest Policy advocate for more land for forest conservation.

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Group B: Programmatic Approach There needs to be adjustment of generic guidance on programmatic approaches

to the local context. Need to judge attempts at introducing prog. approaches against guidance at the time (1990s versus 2003 on).

Key elements of success need to be determined: national ownership is not the same as leadership

Tanzania represents a particularly complex institutional landscape to introduce a new programmatic approach. Communications between 4 relevant ministries (VPO, PMORALG, MNRT and MoFEA) complex

Danida has tended to be over–ambitious and impatient in pushing for a programmatic approach.

Different DP interpretations of programmatic Approach affect how fast one can proceed

Need to avoid a strait-jackets approach and try to adhere as far as possible to key. principles

Transitions & phasing: take into account the need to shift from a past project approach – over time and not too rapidly

Using Govt systems is a central feature of programmatic approach

Role of Tech Ass should not be ignored – it has been effective in PFM where low govt. capacity means new approaches need support

NGO advocacy window is important

Group C: Capacity Building

Impact Evidence

Environmental activites increased

10 district had PFM in 1998 now 60 districts, 2 with wetland today 14 districts,

Waste collection increased, dumpsite in Morogoro

Monitoring abilities increased

NAFOBEDA collecting data,

Mijumita networks exists

Replicability happening Use of Training of trainers sessions, (E.g. DFO in Mufindi organizing a number of trainings after his own study tour)

Enhanced government and institutional capacity

VNRC established,

Raising numbers of Ugs HH increased that integrate conservation

initiatives,

VNRC byelaws made,

Forest Mgt plans made

CP in planning increased PFRA capacities in communities increased,

VLFR declared,

Increase in number of women involved in NR Committees,

Number of villagers participating in PFM increased,

Reports of illegal activities increased from communities,

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Improved organisation system at local level with communities coming together with now 82 networks supported by Mjumita

Lessons

Danida should be patient-it takes time to see the impact of PFM projects. Often at least 10 years.

Capacity at the Embassy should match the level of ambition of Danida‟s HQ

Danida to open more windows to NGOs /CSOs support on NRM

To improve the quality of new “recruits” support should be provided to more training institutions as well as curriculum development

Capacity building at MoFEA /PMORALG to improve regularity of flow of funds is necessary.

Support required for more reorientation/skills development of government staff.

Expanding the number of districts to implement PFM projects may not bring good results, it would be better that an expansion focus on an increase of villages within a district.

Better baselines are required so support to research is necessary

Group D: Local Government Impact

Establishment of village forest land reserves because capacity of local government staff has increased.

Encouraged participating approaches

Encouraged integrated way of doing things among different sectoral departments

Enhanced community involvement in development processes.

Strengthened coordination and communication at district and local level.

Institutionalization of environmental issues into district planning and budgeting

Increased community environmental awareness in terms of costs and benefits.

Improved urban services through UDEM Project and sustainable program Evidence

Increase in the number of forest reserve e.g. Old Danida PFM Districts:

Training, study tours and workshops and learning events. Reference: PFM facts and Figures of 2008

VNRC Environmental planning and Management (EPM), Environmental management act (EMA), Forest Policy (2004).

MTEF Annual Planning and budget book holistic planning approach.

Community can communicate illegal activities

Establishment of District PFM Team.

Community protecting their forests against investors. Egg. MJUMITA Lushoto. Lessons

Public involvement in decision making process is possible once the community is empowered

When funds are made available at community level, the bottom-up planning approach to development is catalysed /steered.

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It has been evidenced that environment is a cross-cutting issue that concerns each sector through promoting the integrated planning, budgeting approach in district development process.

It is easier for community to adopt PFM once the IGA initiatives are supported equally

Sectoral guidelines help to improve performance

[Programmatic approach is] time consuming during planning stage

Requirement for counterpart funding excessively high thus exhausting district budgets especially on unplanned work.

[Programmatic approaches] involve long administrative procedures in decision making.

Closing remarks After group presentations, Chief Ngalu the 14th was requested and agreed to make closing remarks. The Chief used the opportunity to highlight his experience with projects funded by Danida and proposal for the way forward. The chief outlined the achievements that had so far been made by villages within his Division and the difficulties community leaders had run into in mobilizing communities during and following closure of the phase and requested for greater recognition and equity by partner NGOs and a follow-on project from Danida. He emphasized the latter was necessary if the outcomes of past interventions had to be sustainable.

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Appendix 1: Danida Evaluation Workshop Participants- March 8, 2010 S/N Name Of Participant Organisation Telephone And Email Address

1. Lars Mikkel Johannessen

Danish Embassy, Counsellor for Development

larjoh@um.dk

2. Lars Jacobsen Danida Evaluation Consultant/Orbicon

lars@thehyphen.dk

3. Nick Chapman Danida Evaluation Consultant/ ITAD

nick@kercombe.co.uk

4. Cassian Sianga TNRF c.sianga@tnrf.org

5. Thabit Masoud Care-Tanzania Thabit.Masoud@co.care.org

6. Kahana Lukumbuzya HTSPE-TZ, Managing Director

Kahana.lukumbuzya@htspe.co.tz

7. Dr. Felician Kilahama MNRT-FBD-Director fkilahama@gmail.com

8. Lawrence Mbwambo TAFORI lrmbwambo@yahoo.com

9. Thomas Ngaliela Morogoro Municipal Council-0754-566326

ngaliela@yahoo.com

10. Carol Sorensen Tz Natural Resources Forum (TNRF), Coordinator

c.sorensen@tnrf

11. Stephen Mariki WWF, Country Representative smariki@wwftz.org

12. Gilbert Myonga Ernst & Young gilbert.l.myonga@tz.ey.com

13. Yohana Mtoni NEMC ymtoni@hotmail.com 0716136760

14. Francis Sabuni EAMCEF Chief Executive eamcef@morogoro.net 0787996277

15. Abel A. Mgimwa Iringa District Council deiringa@yahoo.com 0715402734

16. Bettie Luwuge TFCG bluwuge@gmail.com

17. Shima Sago TaTEDO energy@tatedo.org

18. Richard Musingi Freelance Consultant musingi@yahoo.com

19. Peter J.N Bitwale Mbeya City Council bitwalepeter@yahoo.co.uk

20. Bernadetha Kadala MNRT-FBD benakadala@yahoo.com 0782515188

21. Ibrahim Hussein MNRT-FBD ibrasaichy@yahoo.com 0784646564

22. Joseph J. Kigula MNRT-FBD jjkigula@yahoo.co.uk 0784-468043

23. Hadija Ramadhani MNRT-FBD 0784468039

24. Isabela von Oertzen MNRT-BTC-TA isabell.vo@gmail.com 0784664713

25. Alphonce Mayala MoFEA Representing Commissioner of External Financing

amayala@mof.go.tz

26. Herman Keraryo WD-Head of Wetland Unit hkeraryo@yahoo.com

27. John D. Balarin WD-Wetland Unit-TA swmtanzania@gmail.com

28. Lota Melamari WCST Chief Executive melamarilota@yahoo.co.uk

29. Anni L Danish Embassy annlyn@umdk

30. Jema Ngwale Danish Embassy jemngw@umdk

31. Edward Kimweri DFO, Morogoro DC ekimwery@yahoo.com 0713843131

32. Chief Kingalu W 14 Morogoro 0712235352

33. Theonestina Kaiza-Boshe

Danida Eval Consultant tkaiza@gmail.com 0784463723

34. Ande Samwel Mallango Morogoro District Council, DNRO

andemall@yahoo.com

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Sub-Annex 5 Workshop Questionnaire Results

Introduction A questionnaire was administered at the Evaluation Workshop to capture individual responses to a set of questions concerning the general improvement in environmental regulation in Tanzania, the success and sustainability of the PFM, UDEM, SCP and EMA-ISP, and the performance of Danida compared to other development partners. In total, 20 responses were collected and detailed results are presented here. The sample is small and subject to the bias of the particular representatives who attended the workshop event. Nevertheless the results do provide a further set of evidence that can be used to triangulate other findings based on evaluation interviews and literature. Results The majority of the sample (45%) felt that there had been minor improvement in Tanzania in the enforcement of environmental legislation in the past five years (Table 1). The majority (70%) also felt that cooperation between line ministries and VPO had shown at least some improvement in the past five years. Most of the sample (70%) also felt that Government has prioritised the environment more over the same period. In terms of the improvement in effectiveness of different participatory forest management approaches, there was a strong difference in success between the two models (community management of village or district forest versus joint forest management of govt. owned reserves). 95% said the community-based model had been effective while only 55% felt that JFM had been effective. For JFM, responses from GoT participants were more positive than those from non-government. Three-quarters of the sample felt that the public had shown major improvement in environmental awareness in the past five years (though civil society gave a less positive view than others on this point). In terms of rating how well the projects had achieved their objectives (using the Danida scale of A, B, C, D) most respondents were unable to give a score, but for those that did the most successful in reaching its objectives were PFM (55% rated it satisfactory or very satisfactory). Of those respondents giving ratings, more were satisfactory than not satisfactory. The most diverse view was over the Sustainable Cities programme which had views ranging from Very Satisfactory to Unsatisfactory. In terms of how sustainable the projects were thought to be, PFM received the most positive score (45%) although a large group (35%) also felt it was not yet sustainable. The workshop attendees were asked to rate Danida against other development partners in terms of flexibility, alignment, receptivity and environmental knowledge. Danida scored best on alignment (50% rating them A, and 45% B) and environmental knowledge (50% A, or and 40% B). Danida was rated somewhat less strong – though still satisfactory – on flexibility. Scores tended to be more critical from non-government respondents – particularly civil society – than from GoT.

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Workshop Questionnaire - TanzaniaSample of 20 respondents

1.      Has the enforcement of environmental legislation in Zambia improved compared to five year ago?

Institution Don’t know Major Minor

No

improvement Worse Total

Institution

Civil Society 29% 57% 14% 100%

Consultant 50% 50% 100%

District govt 60% 40% 100%

Donor 100% 100%

MNRT 67% 33% 100%

Private Sector 100% 100%

VPO/DoE 100% 100%

Total 5% 40% 45% 5% 5%

2.      Has the cooperation between different line ministries and the Ministry of Environment improved in the past five years?

Institution Don’t know Major Minor

No

improvement Total

Civil Society 14% 71% 14% 100%

Consultant 50% 50% 100%

District govt 20% 80% 100%

Donor 100% 100%

MNRT 33% 67% 100%

Private Sector 100% 100%

VPO/DoE 100% 100%

Total 10% 15% 70% 5% 100%

3.      Has Govt prioritisation of environment improved in past 5 years?

Institution Increased Same Reduced

Civil Society 71% 14% 14%

Consultant 100%

District govt 60% 20% 20%

Donor 100%

MNRT 67% 33%

Private Sector 100%

VPO/DoE 100%

Total 70% 20% 10%

4. Is there improvement in the effectiveness of CBFM or JFM the compared to five years ago?

Community Based Forest Management

Institution Improved (blank) Improved

No

improvement (blank)

Civil Society 100% 57% 43%

Consultant 100% 50% 50%

District govt 100% 80% 20%

Donor 100% 100%

MNRT 100% 67% 33%

Private Sector 100% 100%

VPO/DoE 100% 100%

Total 95% 5% 55% 30% 15%

5.      Has the public awareness of environmental issues risen in past five years?

Public awareness risen?

Institution Major Minor Don’t know (blank)

Civil Society 57% 43%

Consultant 50% 50%

District govt 100%

Donor 100%

MNRT 100%

Private Sector 100%

VPO/DoE 100%

Total 75% 15% 5% 5%

Joint Forest Management

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6. What score would you give the Mema, PFM, Utumi, SIMMORS, SCP and EMA-ISP for achieving objectives?

Intervention A B C D (blank)

Mema 30% 15% 55%

Part. Forest Mgt 15% 45% 20% 20%

Utumi 10% 15% 5% 70%

SIMMORS 30% 5% 65%

Sust Wetlands 25% 10% 65%

Sust Cities Prog 5% 25% 10% 5% 55%

A.      Very satisfactory: Has achieved the majority of its objectives OR has Strong Sustainability

B.       Satisfactory: Has achieve more than half of its objectives, OR Fair Prospects For Sustainability

C.      Less satisfactory: Has achieved less than half of its objectives. OR Weak sustainability

D.      Unsatisfactory: Has achieved few or none of its objectives. OR Sustainability of the activities is poor.

7. What score would you give the Mema, PFM, Utumi, SIMMORS, SCP and EMA-ISP for achieving sustainability?

Sustainabilty Mumbwa

Intervention A B C D (blank)

Mema 35% 5% 5% 55%

PFM 5% 40% 35% 20%

Utumi 25% 5% 70%

SIMMORS 10% 20% 70%

Sust Wetlands 15% 15% 65%/1

Sust Cities Prog 25% 10% 10% 55%/1

5% stated 'pending'

8.      How do you rate Danida support to the environment compared to other development partners in terms of

Flexibility

Institution A B C

Civil Society 86% 14%

Consultant 100%

District govt 20% 60% 20%

Donor 100%

MNRT 67% 33%

Private Sector 100%

VPO/DoE 100%

Total 20% 70% 10%

Alignment

Institution A B C

Civil Society 14% 71% 14%

Consultant 100%

District govt 60% 40%

Donor 100%

MNRT 100%

Private Sector 100%

VPO/DoE 100%

Total 50% 45% 5%

Receptive

Institution A B C ?

Civil Society 14% 43% 43%

Consultant 50% 50%

District govt 80% 20%

Donor 100%

MNRT 100%

Private Sector 100%

VPO/DoE 100%

Total 5% 70% 20% 5%

Env Knowledge

Institution A B C ?

Civil Society 43% 57%

Consultant 50% 50%

District govt 80% 20%

Donor 100%

MNRT 33% 67%

Private Sector 100%

VPO/DoE 100%

Total 50% 40% 5% 5%