evaluation of undp contribution to ssc 2008.pdf

7/29/2019 Evaluation of UNDP contribution to SSC 2008.pdf

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Evaluation Office, December 2007

United Nations Development Programme

SOUTH-SOUTHPARTNERSHIPS

UNDP CONTRIBUTION TO SOUTH-SOUTH COOPERATION

EVALUATION OF


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Copyright UNDP 2007, all rights reserved.Manufactured in the United States of America

Design: Suazion, Inc. (NY, suazion.com) Production: A.K.Office Supplies (NY)

Team Leader Talaat Abdel-Malek, Executive Director, Project Evaluation &Macro-economics Analysis,Government of Egypt andProfessor of Economics, American University in Cairo

Team Members A.K. Shiva Kumar, Professor,Institute for Human Development, New Delhi, India

William Tabb, Professor Emeritus,City University of New York

Peter Metcalf, UN Resident Coordinator andUNDP Resident Representative (Retired)

S. Nanthikesan, Senior Evaluation Advisor, UNDP

With participation by Professor Celina Sousa, University of Bahia,Brazil, and editorial contribution from Alex Marshall

Evaluation Office Task Manager S. Nanthikesan, Senior Evaluation Advisor, UNDP

Advisory Panel Stephen Brown, Deputy Executive Director,International Trade Center,Geneva

Mary Chinery-Hesse, Vice-Chairman,National Planning Commission,Ghana

Jose Antonio Ocampo, former Under Secretary General, UN DESA

Sanjay Reddy,Professor, Barnard College, Columbia University

Research Support Maggie KamelTega ShivuteMichelle SyNayma Qayum

Editor Jeffrey Stern, Suazion

EVALUATION TEAM

EVALUATION OF SOUTH-SOUTH COOPERATION IN UNDP


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F O R E W O R D i

Over the past 30 years, there has been a remark-

able upsurge in South-South cooperation. Sustainedeconomic growth since the late 1980s has led toan increasing number of developing countriesbecoming regional centres of economic dynamism.

To support emerging needs, member countriesexpect the United Nations development systemto mainstream South-South cooperation as across-cutting theme in its work.

Promoting and supporting South-South cooper-ation has been an expressed priority for UNDP for

many decades, most recently with the 20042007Multi-Year Funding Framework. The Frameworkexplicitly states that South-South Cooperation

would be a driver of development effectiveness inall areas of work. In 1974, the General Assemblyestablished the Special Unit for South-SouthCooperation within UNDP, in order to spearheadsupport to South-South cooperation withinUNDP and the UN system. The programmatic

work of the Special Unit has been guided in recentyears by a South-South Cooperation Frameworkthat is approved by the Executive Board of UNDP.Prior to the approval of a fourth cooperationframework for South-South cooperation in 2008,the Executive Board requested the EvaluationOffice to conduct an independent forward-lookingevaluation of results achieved.

This report presents the outcome of the evalua-tion, which looks at the effectiveness of the ThirdCooperation Framework managed by the SpecialUnit, and also assesses the results achieved by theinclusion of South-South cooperation as a driver

in UNDP programmatic work. The scope of theevaluation covers relevant UNDP-supportedprogrammes at the country, regional and globallevels in all geographic regions from 1996 to thepresent. The analysis is based on evidencecollected from case studies in seven countries(Barbados, Brazil, China, Guatemala, Mali, SouthAfrica and Thailand), an in-depth desk review in

India, consultations with headquarters of UN

system agencies in New York and Geneva, anelectronic survey of UN country teams in allregions, consultations with Permanent Missions inNew York, and is supplemented by a desk reviewof related evaluative material. Altogether, 248stakeholders were interviewed, and 149 responsesfrom 51 UN country teams were analysed.

A key issue faced by the evaluation was the lackof an agreed definition of South-South cooperation

within UNDP. In the absence of a common

understanding, the evaluation uses the definitionadopted by the General Assembly in 2003,describing South-South cooperation as a processby which two or more developing countriesinitiate and pursue development through thecooperative exchange of multi-dimensionalknowledge, resources, skills and technical know-how through different types of cooperation.

The evaluation reaches four important conclu-sions. First, while the conceptual areas of the

Third Cooperation Framework for South-SouthCooperation were valid, the effectiveness ofthe framework was constrained by a mismatchamong the mandate, resources and implementationstrategy adopted by the Special Unit. Second,UNDP has not developed a robust and proactivecorporate strategy to promote South-Southcooperation. There is a lack of common under-standing, no incentives and little systematiccodification of experience. Third, at the countryand regional levels, UNDP has been responsive

to demand, and a number of initiatives wereundertaken. But the results of these initiativeswere affected by the absence of a corporatestrategy that commits capacity and resources andenables learning from experience. Fourth, theSpecial Unit and UNDP have not leveraged theirparticular and combined strengths and capacitiesto serve countries more effectively.

FOREWORD


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F O R E W O R Di i

The evaluation recommends that the SpecialUnit pay particular attention to achieving moreeffective and sustainable results. While the areasof the Fourth Cooperation Framework maybroadly remain the same, there needs to be afundamental change in the implementation

strategy. The strict criteria established by inter-governmental processes should be used inselecting initiatives under the cooperationframework, and transparent and systematicconsultations should precede implementation.

The evaluation strongly recommends that theSpecial Unit work closely with appropriate UNsystem agency(s) in developing pilot initiatives,so that the Special Unit can have an exit strategyafter playing a catalytic role, and that govern-ment(s) concerned can continue to draw on UN

expertise from a UN agency, if so required.The evaluation recommends that UNDP urgentlydevelop a corporate strategy on South-Southcooperation that builds on positive initiatives atthe country and regional levels, addressesemerging issues, integrates all programme frame-

works, and is underpinned by resources, incentivesand accountability. And finally, the evaluationstresses the need for UNDP and the Special Unitto define clear collaborative arrangements to

work more effectively in order to codifyknowledge and leverage the UN developmentsystem in supporting South-South cooperation.

The insights provided by Executive Boardmembers, governments, international partners,members of civil society and colleagues in theUN system enabled the team to collect and

validate a rich set of perceptions and evidence onpast performance and future directions forUNDP in South-South cooperation. I wouldparticularly like to thank colleagues in the Special

Unit, the Resident Representatives and theircolleagues in the case study countries, andUNDP colleagues in New York for their unstint-ing collaboration during this evaluation.

This report is the result of the professionaldedication of a number of people.The EvaluationOffice acknowledges the contributions of the

independent evaluation team that was led byTalaat Abdel-Malek and included A.K. ShivaKumar, William Tabb,Celina Souza,Peter Metcalfand S. Nanthikesan. Experts from the case studycountries where case studies were conducted,Kamal M. Chenoy (India), Cecilia Skinner-Klee

(Guatemala), and Humphrey Wattanga (SouthAfrica), contributed to the evaluation.

The Evaluation Office invited leading experts toserve on an independent advisory panel for theevaluation. I would like to express our gratitudeto Stephen Brown (Deputy Executive Director,International Trade Center, Geneva), MaryChinery-Hesse (Vice-Chairman, NationalPlanning Commission, Ghana), Jose Antonio-Ocampo (former Under Secretary General, UN

Department of Economic and Social Affairs) andSanjay Reddy (Professor, Barnard College,Columbia University) for their advice andsuggestions which strengthened the report.

The evaluation was task-managed in the EvaluationOffice by S. Nanthikesan, Senior EvaluationAdvisor and Khaled Ehsan, Evaluation Advisor.Research support was provided by Maggie Kamel,

Tega Shivute, Michelle Sy and Nayma Qayum.Michelle Sy handled administrative support and

Anish Pradhan provided information technologyand technical support to the electronic surveyand the publication process. I would also like toexpress my appreciation to Alex Marshall, for hisextensive editorial contribution, and to JeffreyStern of Suazion, Inc., editor of this report.

As the report underlines, South-South cooperationis rapidly taking centre stage in developmentcooperation. We hope that this evaluation willenable UNDP to respond more systematically and

effectively in supporting developing countries touse southern knowledge and solutions to enhancethe well-being of their people.

Saraswathi MenonDirector, UNDP Evaluation Office


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C O N T E N T S i i

Acronyms and Abbreviations iv

Executive Summary v

1. Introduction 1

1.1 Rationale and Objectives 11.2 Scope, Approach and Methodology 4

2. UNDP and South-South Cooperation since 1996 7

2.1 History 72.2 Mandate 7

2.3 Programmatic Activities 93. Key Findings 21

3.1 Approaches to Promote South-South Cooperation 223.2 Making the Most of Strengths and Institutional Capacity to Promote

South-South Cooperation 253.3 Incentive Structures and Resources to Promote South-South Cooperation 283.4 Preparedness to Meet Emerging Challenges 29

4. Conclusions and Recommendations 31

4.1 Conclusions 314.2 Recommendations 33

Annexes

1. Terms of Reference 372. People Consulted 413. References 494. Survey Questions and Responses 515. Indicators 55

Tables

Table 2.1 Distribution of Special Unit Projects under the Third Cooperation Framework 10Table 2.2 Resources for the Special Unit 12Table 2.3 Summary of Resources Managed by the Special Unit

for South-South Cooperation, 20052007 13Table 2.4 Special Unit Staffing 13Table 3.1 Effectiveness of the Activities of the Special Unit to Mainstream

South-South Cooperation in UNDP 26

CONTENTS


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A C R O N Y M S A N D A B B R E V I A T I O N Si v

ASEAN Association of Southeast Asian Nations

BAPA Buenos Aires Plan of ActionBCPR Bureau for Crisis Prevention and Recovery

BDP Bureau for Development Policy

CPD Country programme document

GCF Global Cooperation Framework

GEF Global Environment Facility

HDR Human Development Report

HDRO Human Development Report Office

HLC High-Level Committee (on the Review of TCDC/SSC)

MDG Millennium Development Goal

MYFF Multi-Year Funding Framework

NEPAD New Partnership for Africas Development

NGO Non-governmental organization

NHDR National Human Development Report

SGP Small Grants Programme

SMEs Small and medium enterprises

TCDC Technical Cooperation among Developing Countries

SURF Subregional resource facility UN United Nations

UNCT United Nations Country Team

UNDAF United Nations Development Assistance Framework

UNDP United Nations Development Programme

WIDE Web of Information for Development

ACRONYMS AND ABBREVIATIONS


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E X E C U T I V E S U M M A R Y v

I . INTRODUCTION

This report sets out the findings and recommen-dations of the evaluation of UNDP contributionto South-South cooperation. This evaluationfocused on: the assessment of the Third CooperationFramework for South-South Cooperation,managed by the Special Unit for South-SouthCooperation; UNDP efforts in promoting andsupporting South-South cooperation; and theeffectiveness of the collaboration betweenUNDP and the Special Unit. The assessment issituated within relevant intergovernmental

mandates for UNDP and the Special Unit, aswell as the emerging realities of South-Southcooperation. The scope of the study covers theperiod 1996 to 2007 and all geographic regions.

I I. CONTEXT

Over the past 30 years, there has been a remark-able upsurge in South-South cooperation.Sustained economic growth since the late 1980shas led to an increasing number of developing

countries becoming regional centres of economicdynamism. South-South trade has been growingand made up 26 percent of developing-countryexports in 2004, and many developing countrieshave accumulated large financial surpluses.During the 1990s, South-South foreign directinvestment flows grew faster than North-Southflows. The number of large Southern transna-tional corporations grew from just 19 in 1990 to58 by 2005.

Much of the growth in South-South cooperation

is happening without the participation of theUnited Nations development system, providing a

welcome indication of effective leadership andcapacity in the South. Nevertheless, the changinginternational environment has increased demandson the United Nations system. While mutualcooperation between developing countries isgrowing, there is concurrent demand for

multilateral organizations to: support efforts to

guide the flow of resources, in order to ensurethat everyone benefits from South-Southcooperation; draw attention to the problemsand challenges faced by developing countries;and encourage mutual support. Given itsuniversal presence and neutrality, membercountries expect the United Nations system tomainstream South-South cooperation as a cross-cutting theme in its work. In addition, membersexpect the UN system to respond robustly toreports of slow progress in many developingcountries towards the Millennium DevelopmentGoals (MDGs) and other internationally agreedupon development goals.

UNDP is expected to help build capacities incountries of the South in order to support theachievement of their development goals, includingthe MDGs. South-South cooperation is expectedto be an integral part of UNDP work, given thestated UNDP positioning as a knowledge-basedorganization, its role in the exchange of develop-ment experience through its global network of

country offices and its support to the SpecialUnit for South-South Cooperation.

RATIONALE AND OBJECTIVE

This evaluation was requested by the UNDPExecutive Board and is part of the agenda of theUNDP Evaluation Office, approved by theBoard in June 2006. The evaluation underpinsthe Administrators substantive accountability tothe Executive Board. Findings of the evaluation

will provide substantive inputs to the Fourth

Cooperation Framework for South-SouthCooperation (20082010), to be presented to theBoard in January 2008, and to the implementa-tion of the UNDP strategic plan, 20082011.

The objective of this evaluation was to assess theUNDP contribution to South-South cooperationover the past decade and the performance of

EXECUTIVE SUMMARY


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the Third Cooperation Framework for South-South Cooperation. The evaluation sought toprovide major lessons learned by assessing

what worked and why. As such, this reportoffers recommendations for strengthening theeffectiveness of future programming efforts in

South-South cooperation.

III. APPROACH AND METHODOLOGY

This evaluation addressed the organizationalstrategy of UNDP and its initiatives to promoteSouth-South cooperation at the global, regionaland country levels. At the same time, theevaluation assessed the implementation of the

Third Cooperation Framework for South-SouthCooperation, as well as the nature and extent of

interaction between the Special Unit and UNDP.The evaluation did not cover the full mandate ofthe Special Unit for South-South Cooperation,detailed subsequently.

This evaluation addressed key issues, including:

The nature and extent of support provided bythe Special Unit and UNDP in promotingand expanding South-South cooperation;

The ability of UNDP and the Special Unit

to learn from experience in South-Southcooperation, in order to strengthen andinstitutionalize support to such cooperationacross all UNDP practice areas;

The appropriateness, relevance, effectivenessand sustainability of UNDP efforts to meet

varied and evolving demands, in order tostrengthen and expand South-South cooper-ation; and

UNDP preparedness to address emerging

demands in South-South cooperation.

The evaluation gathered evidence through eightcountry case studies.The process included: a deskstudy; a desk study of relevant secondarymaterial; interviews with staff in Geneva andNew York; and an electronic survey of UnitedNations units in programme countries. Given

wide variations in the practice of South-Southcooperation and limited time and resources,random selection was not feasible. Adopting apurposive approach, Barbados, Brazil, China,Guatemala, Mali, South Africa and Thailand

were selected to reflect varied experience in

South-South cooperation, regional distributionand geographical constraints (e.g., Small IslandDeveloping States and landlocked developingcountries). An in-depth desk study was alsoconducted in India, and Brazil was chosen as thepilot study.

The evaluation consulted over 248 stakeholdersin Geneva, New York and case study countries. Ineach case study country, stakeholders includedthe United Nations Country Team, government

officials, bilateral donors, members of civilsocieties and UNDP country office staff. Otherstakeholders included UNDP headquarters units,United Nations organizations in New York andGeneva, and permanent missions of the UnitedNations Member States.

The electronic survey was designed to gatheressential information about South-South cooper-ation activities and perceptions. The survey

was addressed to United Nations ResidentCoordinators, who in turn forwarded it to othercountry team members. Responses were receivedfrom 149 members of United Nations Country

Teams from 51 countries, including all ResidentRepresentatives from these countries.

Secondary evidence was gathered from previousUNDP evaluations of the Second GlobalCooperation Framework and four regionalframeworks, including Africa, Arab States,Asia and the Pacific, and Latin America andthe Caribbean.

IV. HISTORY AND MANDATE

In response to mounting pressure for a neweconomic order during the 1970s, and in supportof the principle of collective self-reliance amongdeveloping countries, United Nations GeneralAssembly resolution 3251 established the Special


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Unit for Technical Cooperation amongDeveloping Countries (TCDC) within UNDP.In 1978, following a conference on TCDC, theBuenos Aires Plan of Action proposed a set ofguiding principles and an action plan forpromoting and implementing TCDC, with

specific recommendations for the United Nationsdevelopment system.

General Assembly resolution 33/144 (sub-sequently elaborated by the High-LevelCommittee on South-South Cooperation andthe UNDP Executive Board) charged the SpecialUnit with:

Facilitating coordination of the promotionaland other TCDC activities of the UnitedNations development system;

Coordinating TCDC matters within UNDP;

Carrying out research studies and analyses ofTCDC issues and problems;

Promoting wider use of the capacities ofdeveloping countries;

Developing and strengthening the informa-tion referral system, now known as the Webof Information for Development (WIDE),and the inquiry service, and promoting their

broader use through appropriate linkageswith information systems in other organiza-tions of the United Nations developmentsystem and in national institutions; and

Mobilizing resources for TCDC.

The High-Level Committee on the Review ofTCDC was established in 1980 as the highestpolicy and oversight body under and reporting tothe General Assembly. In addition to its respon-sibilities as the global and UN system-wide

advocate, catalyst and resource mobilizer of South-South cooperation, the Special Unit for South-South Cooperation was charged with being thesubstantive secretariat for the Committee.

The Executive Board of UNDP, in its decision2004/32, stated that South-South cooperationshould be considered a driver of development

effectiveness and be incorporated in the SecondMulti-Year Funding Framework (20042007).

More recently, the Executive Board, in itsdecision 2007/32, reiterated that UNDP shouldpromote South-South cooperation by stepping

up efforts to seek South-South solutions in all itsfocus areas as a way of enhancing the exchange ofbest practices and support among developingcountries, regardless of their levels of develop-ment. The decision also required the UNDPAdministrator, in consultation with the ExecutiveBoard, to establish measurable targets for theSpecial Unit for South-South Cooperation. Inaddition, the decision emphasized that UNDPshould take a human development-based approachto programming.

V. PROGRAMMATIC ACTIVITIES

Three cooperation frameworks approved by theExecutive Board of UNDP have provided thestructure for the work of the Special Unit since1997. The three key elements of the ThirdCooperation Framework for South-SouthCooperation are: policy advocacy, dialogue andpromotion; public-private partnerships; andsharing Southern development knowledge.Funding comes from three sources: UNDPregular (core) resources; resources mobilized bythe Special Unit; and funds managed by theSpecial Unit. In real terms, annual resourcesavailable to the Special Unit have declined overthe past decade, though the nominal value hasnot changed. Regular resources available to theSpecial Unit have also declined.

UNDP pursues South-South cooperation inglobal, regional and country programmes, eitheras a modality to improve programme perform-

ance or with South-South cooperation as theprogramme goal. Global initiatives come underthe global programme managed by the Bureaufor Development Policy; regional programmes aremanaged by the regional bureaux; and countryprogrammes are developed and implementedby country offices in close partnership withnational governments.


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Communities of practice, or knowledgenetworks, are linked to the global programmeand are designed to position UNDP as aknowledge-based organization. Knowledgenetworks help those working in similar practiceor thematic areas to share Southern experience

and knowledge. The networks are continuing togrow and are widely used by members.

Regional programmes seek to address challengesin areas such as: regional public goods; trafficking;drugs; HIV/AIDS; disaster prevention andresponse; water supply and use; and environmen-tal management. Regional programmes enablecountries to advocate collectively for equitableand transparent trade regimes and other areas ofcommon interest.

Responses to surveys and case studies show thatit is common for country offices to seek solutionsand expertise from developing countries withsimilar experience, often through knowledgenetworks or communities of practice, and, insome instances, through face-to-face exchanges. Insuch examples, South-South cooperation serves asa modality to identify best development practices.

Institutional links between the operations ofUNDP and the Special Unit for South-SouthCooperation have evolved over the years. Since1997, three cooperation frameworks have formal-ized collaborative arrangements. The SecondCooperation Framework, for instance, sought todevelop a strategy to mainstream South-Southcooperation within UNDP, as part of theFrameworks efforts to mainstream South-Southcooperation in the United Nations system.

The Special Unit provides guidance forpromoting South-South cooperation in UNDP.

Revised Guidelines for the Review of Policies andProcedures Concerning TCDC, issued by theSpecial Unit in 1997, has been in use by UnitedNations organizations ever since. This evaluationnoted that the Director of the Special Unit hadpreviously been a member of the ExecutiveCommittee of UNDP, but was not a member ofthe Operations Group that replaced it.

UNDP commitments to support and promoteSouth-South cooperation included:

In the 19921996 programme cycle, UNDPidentified TCDC as one of its six priorityprogrammes and allocated resources to theSpecial Units activities.

In response to the request from the High-Level Committee for South-South Cooperationat its 10th session, UNDP allocated 0.5 percent(an estimated $15 million) of overall pro-gramme resources to the Special Unit underthe First Cooperation Framework for

TCDC, 19971999.

The UNDP Administrator announced in1997 that, as a matter of corporate policy,

TCDC would receive first consideration

in UNDP programming and be main-streamed in all UNDP programmes andprojects. The Administrator also statedthat support to TCDC would become oneof the core responsibilities of UNDPResident Representatives in the 19971999programme cycle.

The UNDP 20042007 Multi-Year FundingFramework recognized South-South cooper-ation as one of the six drivers of develop-ment effectiveness, to be consciouslyintegrated into UNDP programming.

VI. KEY FINDINGS, CONCLUSIONSAND RECOMMENDATIONS

This evaluation recognized that the effectivenessof UNDP programmes in promoting andsupporting South-South cooperation dependsupon: the priority each country places on South-South cooperation; the demand from programmecountries to involve UNDP; and UNDP capacity

to provide support. The governmental expertpanel convened by the Administrator in 1989identified the following constraints to realizingthe full potential of TCDC in countries and theUnited Nations system: lack of awareness ofpotential, as well as lack of information onusefulness and applicability; lack of effective focalpoints; lack of policies and procedures; and


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shortage of funds. This evaluation found thatsuch constraints persist.

UNDP and the Special Unit have amassedconsiderable experience in South-South cooper-ation and are well positioned to play a more

active and effective role in supporting andpromoting it. UNDP has expressed a strongcommitment to South-South cooperation in itsstrategic plans. However, UNDP and the SpecialUnit have been unable to fully deliver on theirmandate to promote and support South-Southcooperation. The electronic survey showed thatonly 19 percent of responding United NationsCountry Team members and 22 percent ofresponding Resident Representatives felt thatthe overall UNDP contribution to promotingSouth-South cooperation over the past five yearshad been effective or very effective. Thefollowing discussion presents the conclusions ofthis study in understanding the performance ofUNDP and the Special Unit in contributing toSouth-South cooperation.

A. CONCLUSIONS

Conclusion 1: The effectiveness of supportunder the Third Cooperation Framework forSouth-South Cooperation is constrained by themismatch among the mandate, resources andimplementation strategy of the Special Unit.

The mandate of the Special Unit for South-South Cooperation is extensive, not only relativeto UNDP but in absolute terms. Evolving andexpanding over time, the Special Unit functionsto: act as secretariat to the High-LevelCommittee on South-South Cooperation;coordinate United Nations system-wide South-South cooperation efforts; mobilize resources andmanage funds for South-South cooperation; and

support South-South cooperation within theUnited Nations development system. TheSpecial Unit has difficulty in managing all theactivities needed under such a broad mandate

with its 15 professional staff members andavailable fiscal resources of $3.5 million perannum in regular resources and $5.5 million perannum in other resources.

The three platforms of the Third CooperationFramework for South-South Cooperationprovide a useful conceptual tool for identifyingareas of intervention: a platform to support policydialogue, with emphasis on mainstreamingSouth-South cooperation as a driver of develop-

ment effectiveness; a platform to help create anenabling environment for public-private partner-ship mechanisms for South-South businesscollaboration and technical exchange; and aplatform to manage and share developmentknowledge. However, in developing initiatives,evidence indicates that the Special Unit paidinsufficient attention to assessing and prioritizingdemand from consultations with target countries.Consequently, the Special Units activities are toonumerous and diffused, further constraining its

resources and capacity and limiting its ability torespond to requests for support.

In 2003, the High-Level Committee and theGeneral Assembly approved the Special Unit-developed Revised Guidelines for the Review of Polices and Procedures Concerning South-SouthCooperation (document TCDC/13/3 of theHigh-Level Committee on the Review of

TCDC), including a common results frameworkfor the United Nations development systemengaged in South-South cooperation. However,the Special Unit itself continues to report activi-ties as results and has not produced a resultsframework that ties outputs and outcomes toclearly defined qualitative and quantitativeindicators. Consequently, its reviews offer limitedevaluative evidence and learning opportunities.

Conclusion 2: At the corporate level, UNDPhas not developed a robust and proactiveapproach to South-South cooperation.

UNDP is mandated to support and promoteSouth-South cooperation by hosting the SpecialUnit for South-South Cooperation and throughall relevant UNDP-supported programmes.

UNDP does not have a clear strategic frame-work to leverage the Special Unit and otherprogrammes to support South-South coopera-


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tion. South-South cooperation was declaredto be a driver of development effectiveness inthe Second Multi-Year Funding Framework(20042007), and as a principle of developmenteffectiveness in the UNDP Strategic Plan(20082011). Yet these plans did not articulate

the UNDP strategic priorities, deliverablesand modalities of engagement in South-South cooperation.

There are no clear strategies or institutionalmechanisms to adequately respond to thedynamic changes occurring in South-Southcooperation. Examples of such changes includethe rapid expansion of interregional exchangesand trade, and massive trade surpluses in pivotalcountries (countries that, by virtue of their

capacities and experience in promoting South-South cooperation, are positioned to play alead role in the promotion and application ofSouth-South cooperation) that result in newfinancing arrangements and opportunities topromote South-South cooperation. There iscontinuing demand from developing countriesfor support that would permit them to benefitfrom these opportunities.

In addition, UNDP has no clear partnershipstrategies to support or strengthen South-Southcooperation within the United Nations develop-ment system or among countries of the South.Case studies show that other United Nationsorganizations are actively involved in South-South cooperation, yet in many countries,coordination of United Nations system-wideefforts to prioritize South-South cooperationin national development agendas remains ad hocand inadequate.

The development context varies among the

countries of the South. Some countries havetaken a lead in South-South cooperation and donot require support from the United Nationssystem; others have requested UNDP support fortheir initiatives. Some countries have yet to fullyrecognize the potential of South-South coopera-tion and require encouragement to stimulatedemand. Clear strategies to partner with govern-

ments to support and promote the demand forSouth-South cooperation are not fully in place,especially in pivotal countries.

UNDP, with its global presence, has yet to adopta robust approach to supporting a two-way flow

of knowledge and multi-dimensional experienceamong all the countries in the South.

Conclusion 3:UNDP is a responsive partner at thecountry level. However, its effectiveness in South-South cooperation is constrained by unevenrecognition, inadequate resources and incentives,and an inability to systematize learning.

Though many UNDP initiatives currentlyunderway have South-South elements, they are

not corporately recognized as such. There islimited shared understanding of the concept ofSouth-South cooperation across the organization,and inadequate recognition of the value added bySouth-South cooperation at the operational level.

UNDP has not provided adequate resources tomainstream South-South cooperation in itsprogramming. While UNDP provides theregular (core) resources for the Special Unit, theorganization has not been able to sustain thecommitment (1997) to allocate 0.5 percent of itsannual programme resources to the Special Unit(support is currently fixed at $4.5 million).

Much of what UNDP is doing on South-Southcooperation is the result of individual initiativesand leadership. There is a lack of clear incentivesand guidance to integrate South-South coopera-tion in global, regional and country programmes.

The accountability and reporting systems ofUNDP do not adequately reflect the priority of

support for South-South cooperation.

UNDP does not conduct systematic analysis ofthe information contained in its knowledgenetworks. Such analysis might help to distilmodalities of engagement in South-Southcooperation, with a view to mapping demandareas, identifying capacity needs and codifying


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the wide experience of UNDP. Similarly, UNDPhas not built a body of evaluative evidence on itscontribution to South-South cooperation, which

would have enabled the organization to learnfrom its own experience.

Conclusion 4: UNDP and the Special Unithave not fully leveraged their collectivestrengths and capacities.

The Special Unit has convening power andspecialized knowledge to facilitate interest andcatalyze demand among partner countries.UNDP has a networked global presence, amandate to coordinate at the country level and, ingeneral, close interaction with programmecountry partners. Yet the Special Unit and UNDPhave not fully leveraged each others strengths.

There are no clear collaborative arrangementsbetween the Special Unit and UNDP at differentoperational levels. The UNDP Strategic Plan,20082011, does not reflect the areas of collabo-ration spelled out in the Third CooperationFramework for South-South Cooperation.UNDP has not worked with the Special Unit tocodify relevant experience emerging from theUnits practice networks. In addition, the SpecialUnit has not leveraged the UNDP network of

country offices to identify areas of focus orcoordinate South-South cooperation efforts ofthe United Nations system at the country level.

B. RECOMMENDATIONS

The rapid evolution of South-South cooperationhas opened a window of opportunity for develop-ing countries to use such cooperation as a meanstowards achieving internationally agreeddevelopment goals, including the MDGs. TheUnited Nations development system has an

important partnership role. Within this partner-ship, UNDP must clearly define the contours ofits engagement with South-South cooperationand revamp its institutional arrangements,including its relationship with the Special Unit.

This evaluations recommendations address:the cooperation framework for South-South

cooperation and the role of the Special Unit;the responsibility, strategic approach andinstitutional arrangements of UNDP; and collab-orative arrangements between UNDP and theSpecial Unit. These recommendations areintended to be mutually reinforcing and should

be treated as a whole.Recommendation 1: The Fourth CooperationFramework for South-South Cooperation(managed by the Special Unit) should be shapedaround three activity streams: knowledgesharing; policy development and advocacy;and catalyzing innovation. Initiatives in eachof these streams should be time-bound andresults-oriented.

The evaluation found that the thrust and the keyelements of the Third Cooperation Frameworkfor South-South Cooperation are still relevant,and that the Special Unit had achieved most ofthe outputs. However, the full potential of resultshas not been attained, due to the Special Unitslimited capacity and inadequate leveraging of thestrengths of the United Nations developmentsystem. Specific recommendations made in thisarea do not envisage a fundamental change in thecontent of the Third Cooperation Framework,but rather enable the Special Unit to engage

more closely with the United Nations system toincrease the effectiveness of country support.

Knowledge sharing for South-South experienceThe Special Unit should continue to serve as therepository of knowledge on South-South cooper-ation for the United Nations system and theinternational community. The Unit shouldsystematically engage with governments and allUnited Nations organizations to distil goodpractices, identify proven solutions and expertise,

and codify experience in a user-friendly interac-tive system accessible by the internationaldevelopment community at large.

The Special Unit should conduct research andanalysis of key emerging trends in South-Southcooperation. This exercise should gaugeemerging needs by assessing the outcomes of the


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deliberations of relevant intergovernmental fora,as well as by pooling and synthesizing the experi-ence of United Nations system organizations.

Policy development and advocacy forSouth-South cooperation

The Special Unit should continue its advocacyefforts through intergovernmental fora, regionalbodies and national-level stakeholders. TheSpecial Unit should document outcomes fromthese efforts to influence the future practice ofSouth-South cooperation.

The Special Unit should more effectively engagewith all United Nations development organiza-tions in order to mainstream South-Southcooperation as a modality for developmenteffectiveness. The Unit should establish amechanism or mechanisms for systematicengagement with partners to address sharedpriorities and action plans. These could includeupdating the policy and procedural guidelinesrelated to South-South cooperation and periodicconsultations within the United Nationsdevelopment system.

Catalyzing and innovating to meet emergingdemands of South-South cooperation

The Special Unit should:

Identify appropriate priorities for action inemerging areas of South-South cooperationby mapping demand through consultation

with target countries and the United Nationssystem, supplemented by analysis;

Develop a select portfolio of time-bound,results-oriented pilot initiatives to addresscritical issues in the areas identified, with theobjective of defining effective South-Southsolutions that can be scaled up and/or

replicated by countries with the support ofthe United Nations system as appropriate.

This portfolio should be of a manageablesize, and should be flexible enough toaccommodate additional demands as theyemerge. The Special Unit should undertakeonly a limited number of pilot activities atany given time;

Support countries in developing policyframeworks to enable them to addressopportunities and constraints in theexpansion of South-South cooperation inareas such as public-private partnerships andcivil society engagement; and

Manage funds for South-South cooperationon behalf of countries of the South within anaccountable and clearly defined results-oriented framework.

The Fourth Cooperation Framework for South-South Cooperation and its components shouldbe built around clear outcomes that are linked tothe mandate of the Special Unit. The results chainshould logically link the outputs to outcomes.

Recommendation 2: In programming initiatives,the Special Unit should adopt strict criteria andleverage the capacities of UNDP and otherrelevant United Nations organizations toenhance the contribution of South-Southcooperation to development effectiveness.

The evaluation found that the Special Unit isneither sufficiently using criteria established byintergovernmental fora nor adequately leveragingthe global networked presence of UNDP andthe specialized mandates of organizations of

the United Nations development system. Therecommendations of this evaluation envisage thatthe Special Unit will continue using its conveningpower and specialized knowledge to initiate pilotactivities, and will expand its partnerships withrelevant United Nations organizations.

The initiatives under the Fourth CooperationFramework for South-South Cooperation shouldstrictly adhere to criteria including:

Strong demand from member countries

(Buenos Aires Plan of Action); Defined impact on a large number of

countries (New Directions for TechnicalCooperation among Developing Countries,1995); and

A clear results framework, with a resultschain linking outputs of initiatives to


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E X E C U T I V E S U M M A R Y x i

outcomes sought by the cooperationframework (TCDC/13/3).

The Special Unit should partner with govern-ments and relevant United Nations agencies inits pilot initiatives from the outset, with a view to

mutual learning, codification and integration ofthe pilot experience into the programming of therespective government or organization.

The Special Unit should have a clear exit strategyfor each pilot project. The government or partnerorganization should be prepared to scale up andreplicate successful activities, and to providefeedback on programme experience and results tothe knowledge base of the Special Unit.

Recommendation 3: UNDP should develop a

corporate South-South cooperation strategythat: addresses emerging issues; draws on itsown experience; integrates all of its programmeframeworks; and is underpinned by resources,incentives and accountability.

UNDP has islands of success in South-Southcooperation; however, these have not beenintegrated into the corporate approach. As such,this evaluation recommends prioritizing South-South cooperation in programming and taking

steps towards institutionalizing South-Southcooperation approaches, including:

At the corporate level, UNDP shouldrespond to the dynamic changes taking placein South-South cooperation, as well as toemerging priorities. In so doing, UNDPmust consistently and fully reflect the humandevelopment mandate and the rights-basedapproach to development. UNDP shouldidentify key partners and modalities ofpartnership in diverse contexts, including

pivotal countries. UNDP should identify a clear set of deliver-

ables on South-South cooperation for whichit assumes responsibility. This should be donethrough an internal discussion with theSpecial Unit, as well as in consultation withpartner countries and other United Nationssystem bodies.

UNDP should develop a results frameworkfor South-South cooperation initiatives inits strategic plan, with clear benchmarksand indicators to assess its contribution toSouth-South cooperation. To support thisassessment, an effective monitoring and

evaluation mechanism must be put in placeto track performance of all related program-ming activity.

UNDP should identify South-South cooper-ation priorities based on: its own program-ming experience at the country, regional andglobal levels; findings from the analysis of theSpecial Unit; and systematic consultations

with programme countries. In particular,UNDP should mine the experience gained insupporting conflict prevention and recovery,

disaster preparedness, climate change, tradeand intra-South development cooperation.

UNDP should: develop an approach tosystematically link South-South considerationsin practice areas and programming at thecountry, regional and global levels; proactivelyrequire all practice areas to have South-South concerns as an element; develop clearguidance material in the Results ManagementGuide based on TCDC/13/3; and ensure

support to South-South cooperation at alllevels of UNDP programming.

UNDP should reflect the priority placed onSouth-South cooperation in allocating andtracking of resources, developing perform-ance incentives, and implementing accounta-bility and reporting systems.

Recommendation 4: UNDP and the SpecialUnit for South-South Cooperation shoulddefine clear collaboration arrangements.

This evaluation found that collaboration betweenUNDP and the Special Unit is not adequatelyinstitutionalized. UNDP needs to recognise thatthe Special Units mandate goes beyond the workof UNDP, and that the cooperation frameworkshould support the full mandate. In this area, theevaluations recommendations address roles and


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E X E C U T I V E S U M M A R Yx i v

responsibilities, resource allocation and jointefforts at codification and coordination.

The Director of the Special Unit should be amember of the Operations Group. Clearcollaborative arrangements between theSpecial Unit and the regional and practicebureaux of UNDP need to be established.Periodic reporting and discussion of theimplementation of the Fourth CooperationFramework for South-South Cooperation, as

well as the results of collaboration withUNDP regional bureaux, corporate units andcountry offices, should take place in theOperations Group.

UNDP should revisit its 1997 commitmentto provide 0.5 percent of its total program-

ming resources to South-South cooperationand ensure that predictable and adequateresources are made available to both UNDPand the Special Unit, in order to fulfil theSouth-South cooperation mandate.

UNDP should provide the Special Unit witha platform on which to engage with UnitedNations Country Teams with regard toSouth-South cooperation at the country level.

UNDP and the Special Unit should worktogether to codify existing experience relatedto South-South cooperation by analysing trends,capacity needs and demands. This informa-tion should be made accessible to partners.


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C H A P T E R 1 . I N T R O D U C T I O N 1

1.1 RATIONALE AND OBJECTIVES

South-South cooperation has been a priority forUNDP since the early 1970s. Requested by theUNDP Executive Board,1 this evaluation is partof the UNDP Evaluation Office agenda, approvedby the Board in June 2006. This evaluationsupports the UNDP Administrators substantiveaccountability to the Executive Board. Findings

will provide substantive inputs to the FourthCooperation Framework for South-SouthCooperation (20082010), to be presented to theBoard in January 2008,2 and to the implementa-

tion of the UNDP Strategic Plan 20082011.3

The objective of the evaluation was to assess theUNDP contribution to South-South cooperationover the past decade and the performance of the

Third Cooperation Framework for South-SouthCooperation, managed by the Special Unit forSouth-South Cooperation (referred to in thisdocument as the Special Unit). The evaluationaimed to provide major lessons learned throughassessing what worked and why, as well as to offer

key recommendations for strengthening the

effectiveness of future programming effortsin South-South cooperation.4 The intendedaudience for this evaluation report includes theUNDP Executive Board, senior management,the Special Unit, country offices, nationalgovernments and the international developmentcommunity at large.

South-South cooperation is a process wherebytwo or more developing countries pursue theirindividual or collective development through

cooperative exchange of knowledge, skills,resources and technical expertise. Ideally,developing countries themselves should initiate,organize and manage South-South cooperationactivities, with their respective governmentsplaying a lead role, and with the support andinvolvement of public and private institutions,non-governmental organizations and individuals.South-South cooperation is multidimensional inscope and can include all sectors and kinds ofcooperation activities among developing countries,

Chapter 1

INTRODUCTION

The thrust of international technical cooperation should be increasingly directed towards enhancing the capacitiesof developing countries to help themselves and each other. The use of the resources of the UNDP and other multilateraland bilateral agencies should reflect this change in emphasis. The Buenos Aires Plan of Action, 1978

Building bridges across the Southhas always been our objective since the inception of the South-Southcooperation. Our aim today must be to further strengthen and widen those bridges to reach our developmentobjectives and influence the processes that shape the new international economic relations of the 21st century.Marrakech Declaration on South-South Cooperation, 2003

1 Statement to the UNDP Executive Board by Zephirin Diabre, Associate Administrator, 17 June 2004, Item 5: CountryProgrammes and Related Matters, Geneva.

2 UNDP Evaluation Office, Terms of Reference: Evaluation of UNDPs Contribution to South-South Cooperation.Evaluation Office. March 2007.

3 Statement to the UNDP/UNFPA Executive Board by Ad Melkert, Associate Administrator, 19 June 2007, Item 4:UNDP Strategic Plan, 20082011, New York.

4 UNDP Evaluation Office, Terms of Reference: Evaluation of UNDPs Contribution to South-South Cooperation.Evaluation Office. March 2007.


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whether bilateral or multilateral, subregional,regional or interregional. The challenge is tomarshal innovative approaches, methods andtechniques particularly appropriate to local needs.5

The 2003 Marrakech Declaration6 states that the

objective of South-South cooperation is to buildbridges across the South, and to strengthen andwiden those bridges to reach our developmentobjectives and to be able to integrate into the

world economy and influence the processes thatshape the new international economic relationsof the 21st century. South-South cooperationis not an option but an imperative to complementNorth-South cooperation in order to contributeto the achievement of the internationally agreeddevelopment goals, including the MillenniumDevelopment Goals. No single country, eventhe most advanced among developing countries,has much hope of reaching individually expectedgrowth and development and influencing theoutcomes of the international agenda. However,the Declaration says that collectively, the countriesof the South can play a more effective role inachieving development objectives and shapinginternational relations.

The Buenos Aires Plan of Action (BAPA)7

provides guidelines for South-South cooperation.

The thrust of South-South cooperation shouldbe directed towards enhancing the capacities ofdeveloping countries, in order to help themselvesand each other to enhance national and collectiveself-reliance. The measures must favour econom-ically or geographically disadvantaged developingcountries and aim to maximize the use of thesecountries capacities.

Adopted by the High-Level Committee for theReview of South-South Cooperation (HLC) andendorsed by the General Assembly in 1995, the

New Directions for Technical Cooperation amongDeveloping Countries report8 recognized thechanging development context. The report

highlighted increasing globalization, challengesresulting from liberalization, and the need tointegrate technical and economic cooperationamong developing countries. In addition, thereport emphasized that South-South cooperationshould focus on strategic initiatives that are likelyto have a major impact on a large number ofdeveloping countries. Themes identified forstrategic intervention included: trade and invest-ment, debt, environment, poverty alleviation,production and employment, macro-economicpolicy coordination and aid management. TheRevised Guidelines for the Review of Policies andProcedures Concerning Technical Cooperationamong Developing Countries (TCDC/13/3)9

reiterated these areas and added education,health, transfer of technology and rural develop-ment to this list of shared priorities.

United Nations declarations and the spirit of BAPAassign primary responsibility to the developingcountries for organizing, managing and financingSouth-South cooperation, in order to meet their

development needs and attain self-reliance. Thefunction of the United Nations system is largelysupportive, and all its organizations should play aprominent role as catalysts and promoters.10

Over the past 30 years, there has been a remarkableupsurge in South-South cooperation. Sustainedeconomic growth since the late 1980s has led to

5 High-Level Committee on the Review of Technical Cooperation among Developing Countries, 2003. Revised Guidelinesfor the Review of Policies and Procedures Concerning Technical cooperation Among Developing Countries.TCDC 13/3, 13th

Session, 2027 May 2003. New York.6 The High-level Conference on South-South Cooperation, held in Marrakech, Morocco, 1619 December 2003, adoptedthe Marrakech Declaration. http://www.un.org/special-rep/ohrlls/ohrlls/SouthSouth%20Marrakech_Declaration.htm

7 United Nations Conference on Technical Cooperation among Developing Countries, 30 August 12 September, 1978,Buenos Aires, Argentina.

8 See http://tcdc.undp.org/knowledge_base/new_direction1.html.9 High-Level Committee on the Review of Technical Cooperation among Developing Countries, 2003. Revised Guidelines

for the Review of Policies and Procedures Concerning Technical cooperation Among Developing Countries.TCDC 13/3, 13thSession, 2027 May 2003. New York.

10 Ibid.


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an increasing number of developing countriesbecoming regional centres of economic dynamism.Many countries have become increasinglyspecialized in their manufacturing, trading andinvestment activities. This has dramaticallyreshaped the global economic landscape, creating

new dynamics in trade, investment and develop-ment assistance flows both from and withineconomies in the South.11 In short, an increasingnumber of countries have become both benefici-aries and benefactors in South-South exchanges.

Growing faster than trade between developingand developed countries, South-South trademade up 26 percent of developing countriesexports in 2004. In addition, many countries ofthe South have accumulated large financialsurpluses. According to 2006 data, more than50 percent of all foreign direct investmentinflows to Botswana, the Democratic Republic ofthe Congo, Lesotho, Malawi and Swazilandcome from South African investors.12 During the1990s, South-South foreign direct investmentflows grew faster than North-South flows. LargeSouthern transnational corporations grew from

just 19 in 1990 to 58 by 2005.

Many cities, countries and regions in the Southare emerging as new leaders in technology,

research and development. Southern innovationsare making their mark, for instance, on issuessuch as access to medicines and health, cleandrinking water and sanitation, food and basiceducation. Low-income countries have also madegreat strides in a number of other areas, such asdisaster prevention and relief, health, educationand microfinance.

Regional and subregional economic communitiesare playing a valuable role in development in

Africa and other regions. Leading examples and

drivers of this regional integration movementinclude: the Southern African DevelopmentCommunity, the Common Market for Easternand Southern Africa, the Economic Communityof West African States, the Economic Communityfor Central African States, the Community of

the Sahel Saharan States, the Association ofSoutheast Asian Nations, the Gulf CooperationCouncil, the Andean Community, the SouthernCone Common Market and the CaribbeanCommunity. Most technical cooperation amongdeveloping countries occurs within the frameworkof these regional and subregional agreements,

which provide the most meaningful approachand effective conduit for the South to face thechallenges of globalisation.13

Triangular cooperation14

by developed countrieshas provided supplementary resources for South-South cooperation. It is important to note,however, that South-South cooperation supportby Northern countries does not fulfil theirprevious commitments to increase officialdevelopment assistance. As countries accumulatetrade surpluses and foreign reserves, new fundsand modes of development financing, such as thesovereign funds, continue to appear. An increas-ing number of developing countries are providing

triangular support.

Despite growing solidarity among Southerncountries, emerging trends in South-Southcooperation have given rise to some concerns. Forexample, the economic benefits of foreign directinvestment tend to be concentrated in a fewcountries. While the benefits of South-Southcooperation as a whole are more widespread, theyare not flowing adequately to the poorer andmore disadvantaged nations of the South, which

include the least-developed countries, landlocked

11 United Nations, 2007. The State of South-South Cooperation. Report by the Secretary General. A62/150.12 Statement of Dr. Z.S.T. Skweyiya, South African Minister of Social Development to the United Nations General

Assembly Informal Thematic Debate on Development, NY, 27 November 2006.13 Statement of Ambassador Mohamed Bennouna, Ambassador and Permanent Representative of Morocco to the UN and

Chair of the Group of 77 in 2003,Journal of the Group of 77, Volume 16, No. 3, December 2003.14 Triangular cooperation is South-South cooperation among two or more developing countries supported financially by

bilateral donors or international organizations.


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developing countries and Small Island DevelopingStates. Not enough progress is being made,for example, in mobilizing Southern supportfor reducing widespread human poverty anddeprivation in poor countries, or in addressingpockets of poverty and discrimination in the

better-off developing countries.

Much of the growth in South-South cooperationis happening without the participation of theUnited Nations system, providing a welcomeindication of effective leadership and capacity inthe South. Nevertheless, the changing interna-tional environment has increased demands on theUnited Nations system. While mutual coopera-tion between developing countries is growing,there is concurrent demand for multilateral

organizations to support efforts to guide the flowof resources, in order to ensure that everyonebenefits from South-South cooperation. Givenits universal presence and neutrality, membercountries expect the United Nations systemto mainstream South-South cooperation as across-cutting theme in its work.15 In addition,members expect the UN system to respondrobustly to reports of slow progress in manydeveloping countries towards the MillenniumDevelopment Goals (MDGs) and other interna-

tionally agreed upon development goals.

UNDP is expected to help build capacities incountries of the South in order to support themin achieving their individual development goalsand the MDGs. South-South cooperation isexpected to be an integral part of UNDP work,given the stated UNDP positioning as aknowledge-based organization, its role in theexchange of development experience through itsglobal network of country offices, and its support

to the Special Unit.Against such backdrop, this evaluation assessedthe contributions to South-South cooperation byUNDP and the Special Unit it hosts.

1.2 SCOPE, APPROACH ANDMETHODOLOGY

This evaluation addressed UNDP organizationalstrategy and initiatives to promote South-Southcooperation at the global, regional and countrylevels. In doing so, it assessed the performance of

the Special Unit against the Third CooperationFramework for South-South Cooperation, as

well as the nature and extent of interactionbetween the Special Unit and UNDP. Theevaluation did not cover the full mandate of theSpecial Unit, which is detailed subsequently.

The evaluated period of 1996 to the present wassuggested by the New Directions for TechnicalCooperation among Developing Countries report.Endorsed by the General Assembly and HLC in

1995, its implementation by the Special Unit forSouth-South cooperation began in 1996.

To assess UNDP contribution to South-Southcooperation, the evaluation examined ongoing andemerging trends in global South-South cooperation,the role of the UN system and the main priorities,decisions and recommendations affecting theUN mandate for South-South cooperation.

Inquiries were designed to address the keyissues, including:

The nature and extent of support provided bythe Special Unit and UNDP in promotingand expanding South-South cooperation;

The ability of UNDP and the Special Unit tolearn from experience in South-Southcooperation, in order to strengthen andinstitutionalize support to South-Southcooperation across all practice areas;

The appropriateness, relevance, effectivenessand sustainability of UNDP efforts to meetthe varied and evolving demand to strengthenand expand South-South cooperation; and

UNDP preparedness to address emergingdemands in South-South cooperation.

15 Such views were expressed by several member-countries during the Meeting of the High Level Committee on South-South cooperation, 29 May 2007, United Nations, New York.


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The evaluation gathered evidence through eightcountry case studies.The process included: a deskstudy; interviews with staff in Geneva and New

York; an electronic survey of United NationsCountry Team (UNCT) in programme countries;and a desk study of relevant secondary evidence.

1.2.1 SELECTION OF CASE STUDY COUNTRIES

Extensive consideration was given to the selectionof case study countries. Given wide variations inthe practice of South-South cooperation andlimited time and resources, random selection wasnot feasible. Adopting a purposive approach,countries were selected to reflect:

varied experience in South-South cooperation;

regional distribution; and

geographical constraints, including Small IslandDeveloping States and landlocked countries.

Based on such criteria, the evaluation selectedBarbados, Brazil, China, Guatemala, Mali, SouthAfrica and Thailand. An in-depth desk study wasalso conducted in India, and Brazil was chosen asthe pilot study.

The evaluation assessed the contribution toSouth-South cooperation of the Special Unit and

UNDP by examining: Relevance: Are efforts addressing the key

priority areas identified by external claimholdersat the national, regional and global level?

Appropriateness: Are efforts creatingsynergies with other ongoing South-Southcooperation efforts? Are efforts the mostsuitable for the context?

Effectiveness: Are efforts making a difference?If so, what is their influence?

Sustainability: Are UNDP-funded South-South cooperation initiatives sustainable?(This aspect was considered within theconstraints of available data.)

Over 248 stakeholders were consulted in Geneva,New York and case study countries. In each casestudy country, stakeholders included the UNCT,

government officials, bilateral donors, membersof civil societies and the UNDP country officestaff. Other stakeholders included UNDPheadquarters units, UN agencies in New Yorkand Geneva and permanent missions of UNMember States.

The electronic survey was designed to gatheressential information about South-South cooper-ation activities and perceptions. The survey wasaddressed to UN Resident Coordinators, whoin turn forwarded it to other country teammembers. Responses were received from 149members of UNCT from 51 countries, includingall concerned Resident Representatives.

Secondary evidence was gathered from previousUNDP evaluations of the Second GlobalCooperation Framework and four regional frame-

works, including Africa, Arab States, Asia and thePacific, and Latin America and the Caribbean.

There were some methodological constraints:

There is a serious shortage of documentationon South-South cooperation initiatives andon assessments of their outcomes;

Given the many partners and factors involved,it is difficult to assess UNDP contribution todevelopment outcomes. It is even moredifficult to make a definitive identification of

value added by South-South cooperation todevelopment outcomes, and more difficultstill to identify value added to South-Southcooperation by UNDP;

Initiatives of UNDP and the Special Unit forSouth-South Cooperation do not havetracking or monitoring systems in place toprovide reliable data. Moreover, costs associ-

ated with South-South cooperation initia-tives are not recorded separately, ruling outthe possibility of assessing efficiency;

There are also limitations in relying on inter-views as a source of evaluative information.Given staff turnover, it was not alwayspossible to reach key stakeholders, making itdifficult to assess past experiences. In many


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instances, the evaluation team had to relyentirely on UNDP country offices to identifystakeholders and set up interviews. This limitedthe validity of the information collected; and

Resources and time available imposed

further constraints.

Chapter 2 presents the roles and responsibilitiesof UNDP units in promoting South-Southcooperation, as well as the South-South cooper-ation initiatives undertaken by the Special Unitand UNDP. Chapter 3 outlines the evaluationfindings and lessons learned. Chapter 4 presents

the recommendations of the evaluation.


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C H A P T E R 2 . U N D P A N D S O U T H - S O U T H C O O P E R AT I O N S I N C E 1 9 9 6 7

2.1 HISTORY

In response to mounting pressure for a neweconomic order during the 1970s, and in supportof the principle of collective self-reliance amongdeveloping countries, United Nations GeneralAssembly resolution 3251 of 4 December 1974established a Special Unit for Technical Cooperation

among Developing Countries (TCDC) withinUNDP. In 1978, following a conference onTCDC, the Buenos Aires Plan of Actionproposed a set of guiding principles and a plan ofaction for promoting and implementing TCDC,

with specific recommendations for the UnitedNations development system.

The High-Level Committee on the Review ofTCDC was established in 1980 as the highestpolicy and oversight body under and reporting to

the General Assembly. In addition to its respon-sibilities as the global and UN system-wideadvocate, catalyst and resource mobilizer ofSouth-South cooperation, the Special Unit forSouth-South Cooperation16 was made thesubstantive secretariat for the HLC.

The 1995 report, New Directions for TechnicalCooperation among Developing Countries, includeda strategic orientation for TCDC. It focused onhigh priority areas, identifying 22 developingnations as pivotal countries (now designatedprime movers) for the promotion of regional andinterregional TCDC, and stressing the need for

operational integration between technical andeconomic cooperation among developing countries.

The report defined pivotal countries as developingcountries that, by virtue of their capacities andexperience in promoting South-South cooperation,are positioned to play a lead role in the promotionand application of TCDC, by sharing theircapacities and experience with other developing

countries in their region or in other regions.17

The Marrakech Framework, adopted at the2003 High-Level Conference on South-SouthCooperation, invited the Special Unit to work

with developing countries in order to formulateand help implement programmesand invitedUNDP to mainstream a South-South dimensionis in all its activities. The Framework also calledfor the strengthening of the Special Unit as afocal point for South-South cooperation within

the UN system.The New Directions for Technical Cooperationamong Developing Countries report, MarrakechFramework, and subsequent General Assemblyresolutions and HLC decisions point to emergingchallenges and opportunities in South-Southcooperation, as well as to the need for the UNsystem to address them.

2.2 MANDATE

Following the mandate emanating from BAPARecommendation 34, UN General Assembly

Chapter 2

UNDP AND SOUTH-SOUTHCOOPERATION SINCE 1996

16 The name was changed from Special Unit for TCDC to Special Unit for South-South Cooperation in 2003 by the HLC(HLC/TCDC 13/2).

17 See http://tcdc1.undp.org/faqDetail.aspx?faq_id=6. The 22 pivotal countries are Brazil, Chile, China, Colombia, CostaRica, Cuba, Egypt, Ghana, India, Indonesia, Malta, Malaysia, Mauritius, Mexico, Nigeria, Peru, the Republic of Korea,Senegal, Thailand, Trinidad and Tobago, Tunisia and Turkey.


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resolution 33/144 of 19 December 1978(subsequently elaborated by the HLC and theUNDP Executive Board), charged the SpecialUnit with:

Coordinating the activities of UNDP in thefield of South-South cooperation with thoseof the participating and executing agencies,as well as with regional commissions;

Preparing modifications in the policies, rulesand procedures of UNDP, in accordance withrelevant decisions of the General Assemblyand the UNDP Executive Board, in order toimprove capacity to implement South-Southcooperation initiatives and assist, at theirrequest, other UN organs and organizationsin this regard;

Assisting governments to undertake South-South cooperation programmes and activi-ties, in order to achieve the objectives ofSouth-South cooperation;

Developing new ideas,concepts and approachesfor promoting technical cooperation amongdeveloping countries, and for this purpose,arranging for the necessary studies andanalyses to be undertaken and submittedto the governments for consideration and

approval in the HLC;

Expanding, strengthening and promotingthe efficient use of the Web of Informationfor Development (WIDE, previously knownas INRES or information referral system)and establishing appropriate linkages withnational and regional information systemsand focal points;

Generating financial and other support forSouth-South cooperation activities; and

Servicing the HLC by preparing progressreports on the implementation of the BuenosAires Plan of Action for HLC consideration.

This mandate of the Special Unit involves twosets of functions:

1. As the secretariat of the HLC; and

2. As the UNDP and UN system-wideorganizer, mobilizer and coordinator of

South-South cooperation.

The governing body of the Special Unit is theHLC, comprised of representatives of allcountries participating in UNDP. The SpecialUnit has reported to HLC biennially since 1980.

The Unit also reports to the Executive Boardof UNDP and the General Assembly annually,preparing all substantive reports18 and providingsupport to the office of the chairman of theGroup of 77 and China. In addition, the Special

Unit coordinates the system of national South-South focal points and organizes the annual UnitedNations Day for South-South Cooperation(19 December).

Regular resources for the Special Unit areprovided by UNDP (see discussion in section2.3.1.1, Special Unit Resources and Capacity),and the Unit mobilizes additional resources toconduct its activities. It also manages fundsallocated to carry out South-South cooperation,

including the United Nations Fund for South-South Cooperation, the Perez-Guerrero TrustFund of the Group of 77 and China, and theIndia-Brazil-South Africa Facility for Povertyand Hunger Alleviation.

BAPA and subsequent UN resolutions require thatSouth-South cooperation focuses particularly on theneeds of economically or geographically disadvan-taged developing countries (Recommendation 28of BAPA). These include, for example, the least

developed countries, landlocked developingcountries, Small Island Developing States and theentire region of Sub-Saharan Africa. Recent workhas stressed private-sector development and business

18 These include the report of the Secretary-General on the State of South-South Cooperation on 19 December ofeach year, as well as the report of the UNDP Administrator on the implementation of the South-South CooperationFramework every three years.


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collaboration for development. Further, theNewDirectionsreport emphasized the importance ofeconomic cooperation in South-South coopera-tion and proposed that the Special Unit focus onstrategic initiatives likely to have a major impacton a large number of target countries.

General Assembly resolution 60/212 (2005)19

invited the HLC and the UNDP ExecutiveBoard to consider measures to further strengthenthe Special Unit within UNDP. Positioning theUnit as a separate entity and a focal point forSouth-South cooperation in the UN system

was intended to enable it to carry out its fullresponsibilities, in particular through mobiliza-tion of resources for the advancement of South-

South cooperation.

The UNDP Executive Board decision presentedin E/2004/35 (2004) stated that South-Southcooperation was to be considered a driver ofdevelopment effectiveness and was to be incorpo-rated in the multi-year funding framework.20

More recently, the Executive Board, in its decision2007/32 (2007),21 reiterated that UNDP shouldpromote South-South cooperation by stepping

up efforts to seek South-South solutions in all itsfocus areas as a way to enhance exchange ofbest practices and support among developingcountries, regardless of their levels of develop-ment. It also required the UNDP Administrator,in consultation with the Executive Board, toestablish measurable targets for the Special Unitfor South-South Cooperation. Finally, thedecision emphasized that UNDP should take ahuman development-based approach to its

South-South cooperation programming.

2.3 PROGRAMMATIC ACTIVITIES

2.3.1 SPECIAL UNIT FOR SOUTH-SOUTH COOPERATION

Since 1997, three cooperation frameworksapproved by the UNDP Executive Board have

provided the framework for the work of theSpecial Unit. The Unit reported that theThird Cooperation Framework was prepared inconsultation with UNDP units and countryoffices, organizations of the UN system, memberstates, development partners and businessexecutives. To the extent possible, the frameworkincorporated the views expressed by members ofthe UNDP Executive Board.22 Progress onimplementation of the framework is presented tothe Executive Board annually and reported to the

HLC biennially.

The First Cooperation Framework for TCDC(19971999) was based primarily on the analysisand recommendations contained in the 1995report, New Directions for Technical Cooperationamong Developing Countries. The programmefocused on:

Support for sustainable human developmentthrough TCDC, covering poverty eradication;

environment; production and employment;and trade, investment and macroeconomicmanagement; and

The promotion of TCDC, including policyformulation and coordination; capacityenhancement for the management of TCDC;and information and support services.

The Second Cooperation Framework forTechnical Cooperation (20012003) had two

strategic focuses:

19 Resolution adopted by the General Assembly during its 60th session (December 2005) on South-South cooperation:www.un.org/Depts/dhl/resguide/r60.htm.

20 United Nations Economic and Social Council, 2004. Executive Board of the UNDP/UNFPA, Report of the ExecutiveBoard on its work during 2004, ECOSOC Official Records, Supplement #15, E/2004/35, September 2004.

21 www.ppccc.com/execbrd/word/SSC15L5.doc, 5 October, 2007.22 Third Cooperation Framework for South-South Cooperation (20052007), First Regular Session, 2028 January 2005,

New York.


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1. Mobilizing global support for South-Southcooperation; and

2. Acting as a catalyst for the development ofinnovative models of South-South technicalcooperation for partnering, resourcemobilization and mainstreaming.

The Third Cooperation Framework for South-South Cooperation (20052007) accordinglyidentified three policy and operational supportplatforms as the main building blocks of South-South cooperation. These include:

Policy dialogue and promotion: A platformto support policy dialogue and follow-up tomajor intergovernmental conferences, withparticular emphasis on mainstreamingSouth-South cooperation as a driver ofdevelopment effectiveness;

Fostering public-private partnerships: Aplatform to help create an enabling environmentand public-private partnership mechanisms forsustained intra-South business collaborationand technology exchanges; and

Southern development knowledge exchange:A platform to support a more robust informa-tion system for managing and sharing develop-ment knowledge throughout the South.

Special Unit support to HLC, Group of 77 andChina, as well as resource mobilization, is listedunder Platform 1. Table 2.1 summarizes thenumber of projects and resource distribution

among the three platforms. It should be notedthat 11 of the 29 projects under the thirdplatform have budgets of under $200,000 for thethree-year period.

The strategy for implementing the Third

Cooperation Framework involves six elements:1. Establish three flagship programmes to

accelerate South-South cooperation;

2. Assist countries to develop policies and mobilizeglobal support for South-South cooperation;

3. Strengthen collaboration with other UNDPbureaux and units, country offices, andregional centres;

4. Strengthen partnerships with governments,civil society and the private sector, as well as

with the UN development system to generatemore impact;

5. Establish intraregional and interregionalmechanisms to ensure the smooth implemen-tation of the South-South programme; and

6. Remodel and expand the capacity of WIDEto provide an online venue enabling partnersand other users to interact and exchangeknowledge and information.23

Three major programmes, each representing arespective operational platform, have beeninitiated. The Special Unit is working towardsthe creation of a global South developmentforum to bring together governments, private

Number of Projects Total Resources (US$ Millions)

Platform 1 14 14.4

Platform 2 9 12.8

Platform 3 29 15.8

Table 2.1. Distribution of Special Unit Projects under the Third Cooperation Framework

23 Third Cooperation Framework for South-South Cooperation, 20052007; presented to the Executive Board, FirstRegular Session, January 2005, DP/CF/SSC/3/Rev.1/.

Source: Special Unit for South-South Cooperation,UNDP


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sectors and civil societies of developing countriesworking on South-South cooperation. Topromote public-private partnerships, SpecialUnit launched Technonet Africa in 2004. Theflagship programme for the third platform is theupgrade of the WIDE network, a medium for

knowledge sharing and exchange of experience.

To assist intergovernmental bodies in developingpolicies on South-South cooperation, the SpecialUnit has:

Monitored progress on the implementationof the Buenos Aires Plan of Action on TCDCand theNew Directionsstrategy for TCDC;

Conducted related research and preparedreports, submitted biennially to the High-

Level Committee for South-SouthCooperation; and

Published the development journalCooperation South (produced through 2005)and other publications including Sharing

Innovative Experiences.

To assist countries in developing policies andmobilizing global support for South-Southcooperation, the Special Unit collaborated with

country offices in order to provide advisoryservices to countries such as Tunisia and Egypt.The Unit also conducted needs assessmentstudies in 15 countries of the EconomicCommunity of West African States, fivemembers of the East African Community and 16members of the Caribbean Community tostrengthen South-South focal point networks inthe three subregions.

To advance policy dialogue, the Special Unit

focused on the issue of remittances. It co-sponsored a ministerial conference on thedevelopment impact of remittances in least-developed countries to create a supportiveenvironment for safe and cost-effectivemechanisms for transfer of remittances. TheSpecial Unit, with the Bureau for DevelopmentPolicy (BDP) and the Rockefeller Foundation,

organized the first UNDP roundtable onremittances in 2006 as an input to the high-leveldialogue on migration and remittances held inSeptember 2006 in New York.

To improve collaboration with other UNDP

bureaux, units, country offices and regionalcentres, the Special Unit has: posted two advisorsin the UNDP Regional Centres in Bangkok and

Johannesburg; jointly held roundtables onremittances; jointly with UNDP Brazil, initiateda creative economy and technology transferprogramme in Brazil; and consulted with relevantbureaux to identify appropriate partners forregional initiatives. The UN Day for South-South Cooperation on 19 December was anopportunity for networking with UNDP and

other agencies in the UN system.

To strengthen partnerships with governments,civil society and the private sector, as well as withorganizations of the UN system, the Special Unitdeveloped the South-South Global Asset and

Technology Exchange System, the purpose ofwhich is to transfer technology among develop-ing countries and mobilize resources for under-funded development and infrastructure projects.In the longer term, the Special Unit will be

working towards a Global South DevelopmentForum. The Creative Economy Report 2007 willbe produced in collaboration with the UnitedNations Conference on Trade and Development,the United Nations Educational, Scientific andCultural Organization and the WorldIntellectual Property Organization.

To establish intra- and interregional mechanismsto implement the South-South programme, theSpecial Unit used the Africa Rice Initiative to

link West African countries to information onnew rice varieties. The Unit also oversaw theglobal facility for disaster risk management at thecommunity level, implemented by the RegionalCentre in Bangkok.

A major initiative under the second platform ofthe Third Cooperation Framework is Technonet


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C H A P T E R 2 . U N D P A N D S O U T H - S O U T H C O O P E R A T I O N S I N C E 1 9 9 61 2

Africa,24 which promotes small and medium-sized enterprises (SMEs) in partnership with

Technonet Asia, an Asian network with a 30-year history in promoting SMEs. Launched in2004 in Johannesburg, South Africa, the project

has an allocation of $4.3 million, or over 14percent of the Special Units total resources. It isactive in seven pilot countries, includingCameroon, Ghana, Mozambique, Nigeria, SouthAfrica, Tanzania and Uganda.

Thus far, outputs have included: inputs to policyframeworks to establish SME development banks;studies on the SME environment in Africa; settingup networks of participants; a symposium on SMEfinancing; a study tour and training session for

African policymakers and business leaders toMalaysia, Thailand and Vietnam on how to startand manage an SME bank; and training of trainerson entrepreneurship development, in partnership

with Japan International Cooperation Agency.

Among concrete outputs are: a clearer under-standing of the SME environment amongpolicy-makers in Africa; training of trainers inSouth Africa; and action by governments in pilotcountries on policy and institutional reforms andfinancial discipline.

The Special Unit launched a new version of theWIDE network in December 2006. Thisbenefited from knowledge sharing and exchangesof experience at a WIDE roster users workshop

sponsored by UNDP. In addition, trainingsessions on the use of WIDE were held in theRegional Centres of Bangkok and Sri Lanka.Partners built 40 rosters using the updatedroster platform.

2.3.1.1 Special Unit Resources and CapacityTable 2.2 shows the Special Unit fundingallocated from UNDP regular (core) resources,as well as resources mobilized by the Special Unitunder the three cooperation frameworks. Annualresources available to the Special Unit havedeclined in real terms over the past decade,though the nominal value has not changed.Regular (core) resources available to the SpecialUnit have also declined. As UNDP resourcesdeclined in the late 1990s and early 2000s, there

was a policy shift regarding the allocation of0.5 percent of UNDP programme resources tothe Special Unit. To ensure predictability, theExecutive Board fixed support for the Special Unitat $3.5 million for the programming period 20032007 (Decision 2002/1), raised to $4.5 million underthe current UNDP Strategic Plan (20082011).

Managing funds and cost-sharing provides nearlyhalf of the funds available to UNDP ($13.4 millionfor the cycle), of which contributions from

developing countries to tsunami relief efforts are$3.5 million.

The Special Unit budget is comparable to thatof the Human Development Report Office

24 Report on the Implementation of the Third Cooperation Framework for South-South Cooperation (20052007).Annual Session 2007, 1122 June 2007, New York, DP/2007/30.

19972001a 20012003b 20042007c

Core Non-Core Core Non-Core Core Non-Core

Total 1

evaluation of undp contribution to ssc 2008.pdf

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