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International Fund For Agricultural Development (IFAD) Vietnam Evaluation, Main Mission, 3 – 24 March 2011 – A Preliminary Review of Findings.The evaluation team concluded, based on the evidence on the ground, that IFAD’s programme is adding substantial value to the Government of Viet Nam’s efforts to reduce rural poverty.
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VIET NAM VIET NAM
COUNTRY PROGRAMME EVALUATIONCOUNTRY PROGRAMME EVALUATION
MAIN MISSION MAIN MISSION
3 – 24 March 2011 3 – 24 March 2011
Preliminary Review of FindingsPreliminary Review of Findings
Office of Evaluation, IFAD
21 March 2011
Management and StaffingManagement and Staffing Luciano Lavizzari: Director, Office of Evaluation (IOE)
Anne-Marie Lambert: Lead Evaluator (IOE)
Basil Kavalsky: Consultants’ Team Leader (IOE)
Ganesh Shivakoti: Consultant (IOE), Agricultural Production, Natural
Resource Management and Environment
Jicheng Zhang: Evaluation Research Analyst (IOE), Market Integration
and Enterprise Development
Oanh Nguyen: Evaluation Research Analyst (IOE), Programme
Management
Uyen Vu Ngoc: Consultant (IOE), Gender, Ethnic Minorities, and
Community Development2
Mission ScheduleMission Schedule3-4 March 2011: Meetings with national ministries and
mass organisations in Hanoi6-18 March 2011: Field visits to IFAD Programmes in:
Bac Kan Ben Tre Ha Giang Ha Tinh Quang Binh Tra Vinh Tuyen Quang
21-24 March 2011: Wrap up meetings and remaining meetings in Hanoi
3
Remaining MilestonesRemaining Milestones
5 September: Share draft with Government for comments
3 October: Governments comments to IOE on draft report
End October: Finalise draft evaluation report and share
with all partners
End November: CPE National Roundtable Workshop
January 2012: Finalise CPE Agreement at Completion
Point, publish report
4
Scope of the CPEScope of the CPE
Three COSOPs
Ten projects (recent approvals not covered)
Non-lending activities
◦A large number of grants – global and regional grants
covering Viet Nam and some country specific grants
◦ Policy dialogue, knowledge management, and partnership
building (for the most part not free standing but implicit
in the kind of activities it supports)
5
Evaluation CriteriaEvaluation Criteria Relevance Effectiveness Efficiency
Rural poverty impact◦ Household income and assets◦ Human and social capital and empowerment◦ Food security and agriculture productivity◦ Natural resources and environment (and climate change)◦ Institutions and policies
Sustainability Innovation, replication and scaling up Gender equality and women’s empowerment
Performance of partners
6
Overall finding of the evaluationOverall finding of the evaluation
The evaluation team has concluded, based on the evidence on the ground, that IFAD’s programme is adding substantial value to the Government of Viet Nam’s efforts to reduce rural poverty.
7
Targeting PovertyTargeting PovertyIFAD supports provinces, districts and
communes with a relatively high poverty incidence often associated with a large weight of ethnic minorities in the populations of those localities.
IFAD targets women in many projects because this has been demonstrated as one of the most effective instrumentalities for addressing rural poverty.
8
Integrated Rural Development ModelIntegrated Rural Development Model
IFAD supports poverty reduction through a range of
programmes at the commune level that are undertaken
together so as to derive synergies.
These programmes operate on both the supply side -
building the capacity and providing financial resources
for investment by the rural poor; and the demand side -
linking producers to markets.
It also supports the enabling environment by helping
improve the coordinated delivery of government services
to the poor. 9
1.1. Decentralisation, Coordination and Building Decentralisation, Coordination and Building Management CapacityManagement Capacity
Projects work directly with provinces with PPCUs generally reporting to a
steering committee headed by the Chairman of the Provincial People’s
Committee
Line departments associated with the project at all levels
Project implementation is responsibility of Commune PCU
Project invests heavily in building capacity of staff at all levels to promote
poverty reduction and implement programmes effectively
PCU coordinates contributions to project implementation of line departments
and builds capacity to deliver
Key Issue: How best to institutionalise this integrated approach of
coordinating support provided by the PCU and the line departments to
delivering services for poverty reduction, and make it sustainable. 10
2. Small-Scale Infrastructure using Participatory 2. Small-Scale Infrastructure using Participatory Planning and Commune Development Funds Planning and Commune Development Funds
Villages submit project proposals and commune project unit prioritises on the
basis of established criteria.
Projects are for the most part integrated into the commune SEDP
Resources mainly used for access roads and small-scale irrigation
Programmes use more rigorous procedures than those under Government’s
programme 135
Key Issue: IFAD and the Government need to work towards a uniform
approach to strategic planning and project implementation procedures.
11
3. Demonstration Models of Farm Production3. Demonstration Models of Farm Production
Programmes aim at enhancement of food security and income
diversification through the support of:
◦ Animal breeding and health models including new forages production
◦ Models of major cereals, cash crops and vegetables
◦ Forest production models including issuance of forest land use
certificates
◦ Adaptation trials, farmer field schools facilitated increase in food
production and efficient use of farm labor
Key issue: How to develop market-oriented production models
including private sector engagement.
12
4. Micro-finance4. Micro-finance Savings and credit groups
◦ Provide the poor with a practical means of credit
◦ Enable small-scale farm activities
◦ Create linkage with banks
◦ Institutionalize mutual support mechanisms
Micro-credit through banks◦ Raise attention to the poor
VBSP engages in low-interest lending to SCGs VBARD provides market-interest loans to small business
◦ Go only part of the way in filling the gap in addressing needs for credit
◦ Build formal credit record for the previously unbankable
◦ Provide potential for upgrading the SCGs and CIGs
Key Issue: VBSP provides only very limited amounts of credit – too small for anything beyond the simplest activity; VBARD requires collateral for all loans . This leaves most poor farmers who want to expand the scale of their commercial activities without sufficient credit.
13
5. Market Access and Micro Enterprise5. Market Access and Micro Enterprise• A step forward in market access
◦ Improved awareness through market based planning
◦ Increased market-oriented productions(CIGs)
◦ Inter-village roads connecting to local markets
◦ Gap in supporting physical markets, market information, and enabling
environment
• Micro-enterprise development
◦ Limited capacity at local levels and few successful cases
◦ Gap in food and agri-processing in the value chain
◦ Limited engagement with the private sector
◦ Potential of co-investment with village trade leaders to create employment
Key Issue: How can business capacity for entrepreneurship be
developed and programmes build links with small and medium
private operators?14
Efficiency and Programme ManagementEfficiency and Programme Management Timely project effectiveness and completion
◦ Effectiveness lags are well below the regional average
◦ Projects were either completed by the original closing date or extended but
for no more than one year.
Programme management costs are in line with the region.
Projects are generally multi-components. Decentralization requires lots
of coordination among activities and levels. Effective project
coordination enhances project efficiency.
Some projects cover more than one province, and there is no strategic
basis for the combination of provinces in each project
15
Efficiency and Programme Management Efficiency and Programme Management (cont.)(cont.) Financial management: The authorized allocation into the designated account is
too small and projects tend to run dry during the high implementation phase.
Bottlenecks in the flow of funds impede progress.
Procurement: IFAD thresholds are lower than government standards.
Procurement takes time given the weak procurement capacity at the commune
level, however these rigorous procedures promote better governance and more
efficiency.
M&E system in general has captured financial and physical progress. Indicators
in many cases are still confined to the output level and are quantitative. Efforts
are being made to update the results chain, include more qualitative measures
and aggregate to outcome and impact levels. Overall assessing impact is still
challenging.
16
Impact of the Viet Nam-IFAD CooperationImpact of the Viet Nam-IFAD Cooperation
IFAD looks at impact in terms of a number of domains:
◦ Household Income and Assets
◦ Agricultural Productivity and Food Security
◦ Institutions and Policies
◦ Natural Resource Management and Environment
◦ Human and Social Capital and Empowerment
◦ Gender Equality
Often difficult to attribute impacts to the IFAD programme in a
context of rapid overall growth and an increasing number of
Government programmes to support poverty reduction17
A. Household Income and AssetsA. Household Income and Assets
Accurate data is a challenge given the inflation in Viet
Nam which makes historical comparisons of poverty
difficult
Impact studies suggest projects are raising incomes of
poor households
Greater attention is needed to the near-poor who are at
risk of falling back into poverty
Impact on household assets has been mainly through
livestock and forest land ownership
18
B. Institutions and PoliciesB. Institutions and PoliciesImportant achievements through pioneering:
◦ Participatory planning
◦ Decentralised project management
◦ Improved coordination for poverty reduction at different levels
of government
Programme 135 effectively builds on IFAD’s approach
Focus on forest land use as an instrument for poverty
reduction has been another important contribution
19
C. Food Security and Agricultural ProductivityC. Food Security and Agricultural Productivity
Overall, the projects have helped to increase cereals and
vegetables production both by increasing productivity and
cropping intensity through the provision of both inputs and
infrastructure development
Food security for poor and ethnic minorities have been increased
between 1 to 5 months
In addition, animal and aquaculture development may have
contributed to improved nutrition status of the beneficiaries, but
this needs to be confirmed.
However, there is further scope for adaptive production
technology development at local level suitable for the poor and
marginal farmers20
D. Natural Resources, Environment and Climate Change D. Natural Resources, Environment and Climate Change
A significant development in preparation of land-use maps and distributing land title certificates to the ethnic minorities
Forest land allocated for conservation and management to the individual households in the community
Climate change adaptation mechanisms such as salt tolerant varieties development efforts and shift from rice to coconut planting underway among the poor coastal communities
Adaptation of Good Agriculture Practice through organic farming or IPM for safe use of insecticides and pesticides not to pollute land and water.
However, there is so far a lack of a strategic approach integrating communal planning and land-use planning. There is scope for a number of environmental interventions, such as exploring the potential for bio-gas as a substitute for fuel-wood, promotion of poor farmers’ exploitation of NTFPs, and awareness & participation of poor in understanding role of forest for conservation in a holistic manner.
21
E. Human and Social Capital and EmpowermentE. Human and Social Capital and Empowerment
The capacity building activities result in visible improvement at
individual level (awareness and skills of staff; technical and
managerial capacity of community members; and private
business beneficiaries in some projects);
Community self-management capacity and grassroots democracy
are stronger in project areas, though the degree of improvement
observed varies across projects (commune development board,
CIG, credit-saving groups, women’s livelihood clubs, association
of private producers and traders).
However, the issue is how to improve quality of the organisations
supported by the project (management, sustainability, benefits to
members).22
F. Gender Equality and Ethnic Minority DevelopmentF. Gender Equality and Ethnic Minority Development
Projects have empowered women as well as women’s
organisations at grassroots level through improved living
conditions and livelihoods, access to credit, employment
opportunities and services.
However, women’s business and access to market is
inadequately supported and encouraged overall
The objective for ethnic minority support is not always explicit in
the project guidelines and data are not always separated by ethnic
groups; It could be useful to strengthen monitoring of ethnic
minority participation and development
23
Sustainability, Innovation and Scaling UpSustainability, Innovation and Scaling Up
Issues of sustainability and scaling up have not yet received the attention
they merit
COSOP will need to focus on reaching a consensus on a strategic
approach to IFAD’s engagement in Viet Nam over the long term
IFAD could do more to bring the project and provincial level experience
to the national level
Stronger partnerships with other donors and with the private and
cooperative sectors may need to have more prominence in the strategy
going forward for scale up and sustainability of market integration
programmes
Selection of provinces for engagement seems arbitrary and there is no
exit strategy at the project level 24
IFAD’s non-lending activitiesIFAD’s non-lending activities In addition to its lending, the evaluation covers activities such as:
◦ Policy Dialogue - IFAD could do more to assist the Government to strategise
its approach to rural poverty through building on its project experience
◦ Partnerships - IFAD could do more to promote partnerships for scaling up the
programmes it supports
◦ Knowledge Management – IFAD has a substantial programme of
knowledge management in place, but could promote more systematic sharing of
knowledge across projects through strategic selection of the provinces it supports.
IFAD also provides grants – both regional grants that include Viet Nam
and country-specific grants. These are playing a useful role in building
knowledge sharing and partnerships, especially in the area of
agricultural research, and this role could be further enhanced by
strategic development of a grant programme as part of the COSOP. 25
Key Questions to be Addressed in Upcoming COSOPKey Questions to be Addressed in Upcoming COSOPA. Programme Design QuestionsA. Programme Design Questions
Should IFAD adopt more explicit targeting of the poorest of the
poor, ethnic minorities, women and youth?
Is the model of covering one or two unrelated provinces
efficient and compatible with scaling up IFAD’s programme?
Could these programmes be more closely aligned with GOV
programmes so as to leverage its support more effectively?
How can the important coordination role in addressing rural
poverty of the PPCU, DPCU and CPCU/CDB be
institutionalised?26
B. Programme Content QuestionsB. Programme Content Questions
What is the optimal model for providing credit to the
rural poor and what role should the VBSP, Agribank
and the Women’s Union play?
How can the effectiveness of approaches to market
integration and enterprise development be enhanced?
Is IFAD paying enough attention to issues of
environmental management and climate change in its
programme?
27
C. Programme Management QuestionsC. Programme Management Questions
Should IFAD be doing more to build both financial and knowledge partnerships with other donors?
28
AcknowledgementsAcknowledgements
Government for its support of the mission
Viet Nam Country Presence Office
Project authorities in the provinces visited who
provided extraordinary support to the mission
and whose commitment to the task of rural
poverty reduction made a deep impression
29