I. Basic project data

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1 Project Completion Report Validation Al-Dhala Community Resources Management Project Republic of Yemen Date of validation by IOE: December 2015 I. Basic project data Region Country Approval (US$ m) Actual (US$ m) Near East and North Africa Total project costs Republic of Yemen Loan number 638-YE IFAD Grant Type of project (subsector) RURAL IFAD loan and percentage of total % % Borrower % % Financing type Loan AFPPF 0.6 3% % Lending terms * Highly concessional CAC Bank % % Date of approval 09 September 2004 Cofinancier 4 Date of loan signature 04 March 2005 Beneficiaries % % Date of effectiveness 26 February 2007 Other sources Loan amendments Loan closure extensions 0 Country programme managers Regional director(s) Project completion report reviewer Project completion report quality control panel 1 Number of beneficiaries Cooperating Institutions 30,000 households 300,000 rural poor World Bank IFAD Mohamed Abdelgadir (Current) Omer Zafar Loan closing date 31 March March 2014 Khalida Bouzar (Current) Nadim Khouri Mona Bishay Mid-term review October 2010 Tony Deyemo Ashwani Muthoo Simona Somma IFAD loan disbursement at project completion (%) 98% Date of the project completion report October 2014 Source: Project Completion Report; IFAD President s Report, EB 2001/74/R.17/Rev.1, Yemen CPE, December 2012 * There are four types of lending terms: (i) special loans on highly concessional terms, free of interest but bearing a service charge of three fourths of one per cent (0.75 per cent) per annum and having a maturity period of 40 years, including a grace period of 10 years; (ii) loans on hardened terms, bearing a service charge of three fourths of one per cent (0.75 per cent) per annum and having a maturity period of 20 years, including a grace period of 10 years; period of five years; (iv) loans on ordinary terms, with a rate of interest per annum equivalent to one hundred per cent (100 per cent) of the variable reference interest rate, and a maturity period of years, including a grace period of three years. 1

2 II. Project outline 1. The Al-Dhala Community Resource Management Project (ADCRMP) was approved in Sept 2004 and the loan became effective in February Objectives. The overall goal of the project is to enhance family food security for subsistence farmers, raise incomes and improve the living conditions and development participation of small households and village communities in the project area. The specific objectives of the project are to: i) empower communities, including women and the poor, to mobilize and organize themselves to participate in, and gain direct benefits from, development planning and project execution; ii) remove critical physical and social constraints to productivity and advancement; and iii) equip and support households to enhance outputs so as to secure basic food supply, produce marketable surpluses, and pursue income-raising opportunities. 3. Target group. The President s Report 1 stated that the programme would be implemented in 100 village units throughout Al-Dhala Governorate s nine districts, with emphasis on the poorest districts (Al-Azzarik and Demt). It specifically targeted poor rural people and smallholder rain-fed farmers, livestock owners and women. Each village unit included a number of small villages comprising an average of 300 households (approximately 2,100 individuals). In order to represent marginalized people who were not considered in the appraisal document, four village units were added to the original Project components. At design 2, the project had five components: a) Land and water resource management This component aimed to (i) provide drinking-water supply through the construction of covered cisterns and other surface water schemes identified by the communities; and (ii) land and water-management structures within community- identified, small surface-water irrigation schemes (water-harvesting structures, on-farm storage tanks, small dams for direct use for irrigation) where crops other than qat will be grown, and soil conservation measures, particularly terrace rehabilitation and catchment- area protection for existing dams. b) Agriculture and livelihood development This component aimed to (i) support livestock and range management by means of, inter alia: improved access to veterinary care through training of village animal-health workers, establishment of private veterinary practices and vaccination campaigns; (ii) apiculture development through the introduction of modern hives and improved honey-processing techniques; (iii) crop production focusing on onfarm adaptive research for rainfed and irrigated crops, involving testing of drought-tolerant varieties of cereals for rainfed farming, and technology transfer through demonstration programmes (iv) community-based microfinance facilities through community credit funds established with initial share capital raised in the community, matched by funds from the project as a grant, with additional resources sourced through a bulk loan from CACB to in turn provide loans to members, with priority on the credit requirements of poor households and women; and (v) non-farm employment through provision of vocational training in a range of skills. c) Community development. This component aimed to enable capacitybuilding of communities by prioritizing their development needs through a participatory planning process and (ii) strengthening women s development capacity through the provision of literacy and life skills training and promotion of new technology. 1 IFAD President s Report, EB 2001/74/R.17/Rev.1 2 EB 2004/82/R.18/Rev.1 2

3 III. d) Development initiatives facility. This component aimed to provide additional funding for those successful activities for which there are high demand from the communities and for new activities identified as feasible and attractive in the course of project implementation. e) Institutional Support and Project Management. This component aimed to (i) provide institutional support to the restructuring of the Governorate Agricultural Office through provision of technical assistance for organizational development, funding of office buildings and equipment and staff training; and (ii) project management through funding management staff and operating costs. 5. Implementation arrangement. The World Bank was the Cooperating Agency from start-up to May 2010 and responsible for supervision. IFAD took over direct supervision and provided formal and informal implementation support from HQ and IFAD s country office in Sana a, with some interruptions due to security conditions in the country. The project was managed by the Ministry of Agriculture and Irrigation (MAI) through an independent and efficient PMU in close collaboration with Al-Dhala Agricultural Office. The PMU was headed by a competent and wellexperienced Project Manager and staffed by a core team of management, fiduciary (financial and procurement), planning and M&E staff. The PMU was supported by a Technical and Support Team (TST) comprising of competent and technical specialists to provide the necessary technical conceptual and backstopping support for implementation of the project activities. 6. Project cost. The total cost of the project, at design, was estimated at USD million. The proposed IFAD loan of USD million will finance 63 per cent of total project costs. The Government of the Republic of Yemen will contribute USD 3.06 million (13 per cent), with the Cooperative and Agricultural Credit Bank (CACB) additionally contributing USD (1 per cent) to the credit line and the Agriculture and Fisheries Production Promotion Fund (AFPPF) contributing USD (3 per cent) to irrigation infrastructure. The beneficiary communities will contribute USD 4.54 million (20 per cent) to total project costs, through voluntary labor contributions and local materials for drinking-water and small land- and water-development infrastructure, and through the equity contributions and savings of community-association members with the community credit funds. 7. Significant changes during implementation. According to the MTR & PCR, the project cost increased due to the late commencement of activities. IFAD and the government agreed to a number of cost reduction measures which included: (i) reducing the project timespan from eight to seven years; (ii) reducing the number of vehicles from 27 to 14; (iii) eliminating one of the epidemiology laboratories; (iv) eliminating the honey-quality control laboratory in Aden; and (v) cancelling the applied research activities that were planned in Al-Dhala. The savings compensated for the increase in prices while maintaining other planned activities. Review of findings A. Project performance Relevance 3 8. In line with the definition of relevance, the PCRV assesses and reports on the: (i) relevance of project objectives; and (ii) relevance of project design. 9. Relevance of objectives. The Project objectives were highly relevant, both to the Government of Yemen and to IFAD. The project was designed in line with the Government of Yemen development and poverty reduction strategies outlined in 3 The definition of each evaluation criteria may be seen in Annex 2 of the PCRV. 3

4 the 2002 PRSP 4 and the Five Year Socio-economic development plan ( ), which set out four main pillars for intervention: achieving economic growth, human resources development, improving infrastructure and ensuring social protection. It was also in line with the IFAD s 2000 COSOP ( ), which emphasised the need to assist the Government of Yemen in its effort to alleviate rural poverty by providing rural poor people with the means to enhance productive activities and improve social infrastructure, especially the supply of drinking water. 10. The programme was also in line with IFAD Strategic Framework and IFAD s strategy in Yemen as addressed in the third country strategic opportunities programme (COSOP), which covers the period , and includes three basic strategic thrusts: (i) empower rural communities; (ii) promote sustainable rural financial services and pro-poor rural small and medium-sized enterprises; and (iii) enhance the food security of poor households. The COSOP also identifies a number of key cross cutting issues such as gender balance and environmental sustainability for consideration in all IFAD initiatives. 11. Relevance of design. The project had a complex design, as it contained three objectives, five components and a diversity of outputs and activities, with major emphasis on addressing access to water to the rural poor. At design, the project included a risk analysis, which identified, inter alia, environmental and cultural issues as the main risk to the project. In hindsight, insecurity in the programme areas posed the greatest risk and delayed its effectiveness, and this was not identified during the risk analysis. The design also failed to acknowledge the limited implementation capacity in the programme area, which caused delay, even after the programme became effective. 12. Safe water, or the lack of it, was considered a priority, both in Yemen generally and in the targeted areas in particular. It was noted in the Yemen CPE 2012 that the successful approach used under the ADCRMP to set up drinking water schemes through community contracting arrangements should be adopted across projects in the country s portfolio. The project also adopted a good level of flexibility in responding to the additional four communities demands that were not included in the appraisal document. Originally, the project targeted 100 village units. In order to include marginalized people who were not taken into account at appraisal, 4 more village units were added with additional 1,200 beneficiaries. 13. Targeting approach. The project s targeting strategy adopted a locally sound and economically effective approach for targeting poor people, particularly vulnerable groups (women and youth) in the isolated and remote areas in Al-Dhala governorate. It has helped the targeted Community Associations (CAs) build their capacity and enabled them assess their social and economic potentials, prioritize their needs and prepare their local development plans and take part in the implementation process and carry out management responsibilities. 14. Overall, the project was relevant to both national and IFAD strategies. It contributed to helping poor people in rural areas overcome some of their challenges relating to land and water management. It also empowered them to make decisions for the benefit of their communities. However, the design was too complex and the risk analysis carried out failed to address insecurity in the programme areas. Problems inherent to the social and political landscape of the region were particularly apparent, which delayed the start off of the project and some components re-costed and on this basis, The microfinance component did not achieve the expected results due to cultural and religious beliefs issues, which were not taken into account at design. In light of the above, PCRV rates relevance as moderately satisfactory (4). 4 IMF Republic of Yemen PRSP

5 Effectiveness 15. In line with the IOE definition for effectiveness, the PCRV assesses and reports on effectiveness by each of the three project objectives, as outlined in paragraph 4 above. Empower communities, including women and the poor, to mobilize and organize themselves to participate in, and gain direct benefits from, development planning and project execution 16. The project has helped the beneficiaries to organize themselves in CAs and empowered them in planning, designing and implementing community projects. It has also ensured women take proactive roles in decision-making and the project s activities as they have a significant representation in the CAs. According to the 2012 Supervision mission, the project has paid particular attention to women and implemented a sound program for strengthening women s development capacity through literacy classes and life-skills training. Under this component the total number of literacy classes implemented was 818 (136 per cent of the target) and the total number of women who attended and graduated from literacy classes is 15,879 (174 per cent of the target); 5,980 graduated only from level 1, 5,718 completed level 2 and 4,181 completed level 3. In total 2,207 women attended life-skills training in sewing, handicrafts, food processing, midwifery and other topics (74 per cent of the target). 17. The project was designed to work through registered associations with a view to instilling more permanent responsibility for the maintenance and continuity of subprojects. The project is planned and implemented in a participatory and demand-driven manner, on the basis of community action plans formulated by community associations. This has led to empowerment of marginalised groups, such as women and youth in the remote areas proved to be an efficient mechanism as shown by the level of the beneficiaries contributions to the infrastructure works (35-50 per cent). It is currently providing services to communities covering about households. About 5,000 women and men smallholders are benefitting from community-led advisory services focusing on improved technologies (crop varieties, protected horticulture, drip irrigation), and adoption rates are very high. 18. Due to extensive capacity building, formal and on-the-job training extended by the project, almost all CAs are now able to prepare their Community Action Plans (CAPs) and Annual Work Plan and Budget (AWPB) using Participatory Rural Appraisal (PRA) techniques to analyze their potentials, identify their development needs and set priorities for intervention. During the life time of the project, CAs have prepared so far 106 local development strategies (LDSs) and 157 AWPBs. Remove critical physical and social constraints to productivity and advancement 19. The project made water its top priority and allocated considerable funds for the implementation of water-related activities, conducting public awareness and training programs on water conservation, hygiene and water-borne diseases, and the need to make potable domestic water available to beneficiaries in the targeted remote and very dry districts in order for them to stay in their villages and live decent lives. At project closure, the total achievement of 13,088 individual HH drinking water tanks (241 per cent of initial target) and HH benefitting from small dams for irrigation was 253, appraisal target of Moreover, the project contributed to construction/rehabilitation of 126 communal open drinking water reservoirs benefiting an additional 1,662 HHs with a total investment cost of USD 0.92 million and implementation rate of 49 per cent up to June 30, In the communal and open drinking reservoirs the beneficiaries contributed to construction cost at a rate of between 25 per cent and 30 per cent, somewhat below their contribution to individual HHs tanks due to the fact that 5

6 these are perceived as common goods and are more complex to manage and maintain than individual HH tanks. The project helped 14,750 Households access sufficient clean drinking water to last through the dry seasons through construction of individual and communal rainwater harvesting systems. The total number of beneficiaries of capacity development activities doubled the target at appraisal (260 per cent). The project reached all 104 targeted village units; including an additional 4 village units home to marginalized communities, and individuals (143 per cent of the appraisal target). 335 literacy teachers were also trained (168 per cent of the appraisal target) 21. Unfortunately, the micro-finance sub-component faced implementation constraints and did not achieve the expected target due to lack or non-existence of sound and responsive microfinance institutions MFIs in the governorate. Despite the fact that the PMU provided adequate training to Savings and credit groups (SCG) members and Community credit funs (CCF) leaders, the outputs delivered through this subcomponent were less than expected. The main reason, as explained in the PCR, is due to misconceptions about the religious beliefs related to this activity. It is clear that promoting microfinance activities requires greater awareness of beneficiaries beliefs and practices. This has had an impact on the effectiveness and sustainability of the CCFs as they cannot grow fast enough to meet the increased demand for loans in their communities. Total value of loans to members achieved only 18 per cent whilst the amount of funds matching from the project reached 33 per cent of the MTR target. Equip and support households to enhance outputs so as to secure basic food supply, produce marketable surpluses, and pursue income-raising opportunities 22. The project was effective in improving livestock health and productivity, rangeland management and provision of training and investment and in the establishment of producer and grazing groups. The project also encouraged honey production and transform apiculture in Al-Dhala governorate into a modern industry. This is being done through the introduction of improved production and processing technology, bee disease control systems and apiculture groups equipped with adequate knowledge and capacity building. The project distributed 4,684 local traditional beehives for 1,073 poor HHs and 3,700 modern beehives to 668 HHs. 23. The project trained 349 beneficiaries (184 men and 165 women) as village animal health extension leaders (VAHELs) representing 87 per cent of the appraisal target. In addition to providing 164 VAHELs with tool kits to treat simple diseases, the project sent eight women for two to three years training at the Veterinary Institute in Sana'a. The trainees have graduated and are providing veterinary services in their districts. 24. Overall, most of the objectives have been attained to varying degree, albeit protracted delays in implementation and postponement of the delivery of services and benefits to the targeted population. Specifically, the project met its appraisal targets with respect to reaching all 104 village units originally targeted (100 per cent). It supported the establishment of 168 community associations (161 per cent) and benefited a total households (170 per cent). It provided literacy training to women (218 per cent) and trained them in life-skills (155 per cent). The Village animal health extension leaders (VAHELs) trained by the project vaccinated and treated more than animals, not only within but also beyond the targeted village units (123 per cent). The project trained 2559 small animal owners in improved livestock husbandry practices and related technologies. 25. The project was less effective in addressing access to fund by way of the community-based microfinance facilities and this particularly impacted the marginalized in the area, women who are usually at the fringe of economic activity. All in all, however, effectiveness is rated as satisfactory (5). 6

7 Efficiency 26. Efficiency is a measure of how economically resources/inputs (funds, expertise, time, etc.) are converted into results. 27. The total value of the project is USD million (IFAD per cent or USD million,); Government (12.13 per cent or USD 3.59 million) local communities (33.21 per cent or USD 9.83 million); the Agriculture and Fisheries Production Promotion Fund, AFPPF (2.80 per cent, or USD 0.83 million) and the Cooperative and Agricultural Credit Bank, CACB (0.68 per cent, or USD 0.20 million). 28. In terms of project efficiency, the project became effective 30 months after it was approved by the IFAD Executive Board. Due to the long delay in project effectiveness, the cost increased significantly from USD million to USD million and was necessary to review the overall cost provisions. It is to be noted that after the project became effective, only preparatory work could be undertaken due to limited implementation capacity in the programme area, field activities effectively commenced in 2009, so nearly five years after the project was approved by the Board. 29. Overall project management costs remained relatively unchanged during the course of project implementation at 13 per cent, across the components. At project closure, disbursement was 99 per cent. Savings were also made during project implementation as beneficiaries, instead of contractors, carried out rehabilitation of water tanks. 30. For economic efficiency however, an economic rate of return of 17.4 percent and a net present value of US$3.8 million were agreed at appraisal, at closure, EIRR was 26 per cent and the net present value at a 10 percent discount factor was US$ 3.9 million. PCRV deduce that this increase could be attributed to the adverse conditions under which the programme was implemented and the limited opportunities in the underdeveloped area. However, the unquantifiable benefits used in computing the EIRR mentioned in the PCR are contestable. One of which stated that enabling rural households to increase their incomes reduces outmigration from rural areas to urban areas. Whilst this is a reasonable assumption, there is no empirical evidence or baseline survey to validate this assertion. 31. Furthermore, because of the complexity of the design, investment cost was calculated on a component basis, which made it difficult to get an overarching view of project efficiency. For example, at appraisal, the irrigation component was calculated on an investment cost of USD per ha, this increased to USD per ha, primarily due to the project achieving 60 per cent target set for small dams constructed/rehabilitated for irrigation at appraisal. 32. Due to the implementation constraints, project cost increased significantly which affected disbursement to the various components. In 2007, it was agreed between IFAD and the government to reallocate funds to meet the increased cost. Project funds were used for eligible implementation expenditures (including civic works, procurement of vehicles and technical equipment, materials and capacity building. There was also 37 per cent increase in funding for the drinking water subcomponent, a 191 per cent increase for civic works for land management, and a 30 per cent increase in training and workshops. 33. Overall, problems inherent to the social and political landscape of the region were particularly apparent, which delayed the start off of the project and some components re-costed had a profound impact on project efficiency, and on this basis, efficiency is rated at moderately unsatisfactory (3). 7

8 B. Rural poverty impact 34. Rural poverty impact is assessed based on five impact domains. A baseline survey was carried out in 2008 and the PMU engaged a consulting firm to carry out an impact assessment in December 2013, based on the RIMS indicators established at baseline. However, M&E was somewhat weak, due to the absence of an M&E officer for a long period of time. The baseline study done 4 years after project approval by the Board cannot be representative of the baseline conditions of the target group. 35. Household income and assets. At design, the project prioritized its activities based on the Poverty Assessment Report carried out at the beginning of the project and has allocated the proceeds of the project accordingly. According to the assessment, absolute poverty prevails across in Al-Dhala governorate and the average absolute poverty rate is 50 per cent, though this varies from one district to another. The information presented in the completion survey of the results and impact management system (RIMS) carried out in December 2013 showed some improvements in respondents ownership of physical and financial assets over the 2008 baseline. 72 per cent of surveyed households had electricity in their dwellings compared to 61 per cent observed in In addition, 51 per cent owned televisions in 2013, compared to 35 per cent reported in Furthermore, 30 per cent of surveyed households in 2013 owned refrigerators compared to15 per cent in 2008 and 21 per cent owned washing machines, compared to 11 per cent in One of the driving factors in income generation is access to credit provided by Community Credit Funds (CCFs). This provides an incentive for members to maintain the CCFs and act as reference institutions that protect communities from external influences such as armed conflict. However, CCFs may become vulnerable after project closure because of these external influences and the absence of an effective microfinance reference institution. The sustainability of CCFs is a policy issue that needs to be addressed at the national, regional and village levels. Moreover, no data are available in the RIMS on neither the CCFs nor on the increase in income attributable to the promotion of alternative income generating activities. 37. All in all, the PCRV rates household incomes and assets as moderately satisfactory (4). 38. Human and social capital and empowerment. Indeed, this is an area where the project has been successful. The project has, to a large extent, succeeded in mobilizing and organizing remote communities in informal and formal organizations to plan and implement community projects. It has empowered CAs through capacity building and investment to assess their natural, human and cultural resources potential, evaluate and prioritize their needs and develop their development and work plans. In particular, the project has empowered women through literacy education, life-skills training and various means and ways to include them in their societies and exercise their human and political rights with no discrimination. Project M&E confirmed the provision of literacy classes for 21,376 women, coupled with life-skills training for 4,660 women; helped in establishment of special technical groups to help CAs carry out their duties timely and diligently. With the support of the ADCRMP, women have become credit managers, village extension workers, demonstration farmers, midwives, and contributors to family incomes. 39. Furthermore, it is also worth-noting that the project added 4 extra VUs, dedicated to a social group called Akhdam who have traditionally been isolated from and marginalized by the societies they live in. This has helped the Akhdam communities to overcome the social and cultural stigma associated with them and encouraged them to participate in and gain benefits from the project like others, without 8

9 discrimination. The PCRV also rates human and social capital and empowerment as highly satisfactory (6). 40. Food security and agricultural productivity. Agriculture and livestock production improved to the extent that yields for some crops such as millet and tomatoes has increased by 265 per cent and 238 per cent respectively, according to the supervision report returns per YER 1 of farmers investment in these crops are YER 54 and YER 25.50, respectively. Malnutrition among children below five has marginally decreased between 2008 and 2013 from 21 per cent to 19 per cent and chronic malnutrition from 58 per cent to 51 per cent. During the same period of time, the percentage of underweight children decreased from 48 per cent to 42 per cent. The number of households, which have experienced a hungry season significantly decreased from 25 per cent in 2008 to 14 per cent in Much emphasis was placed on agricultural productivity during design. However, with five sub components, results were mixed and some appraisal targets were not achieved. The project intervention for crop production was based on a demanddriven approach that was reflected in communities CAPs. Village committees and community associations were established and trained to prepare CAPs for agricultural activities. Adaptive research aimed at resolving specific challenges was conducted in farmers fields with farmers participation. 350 farmers (58 per cent of appraisal target) adopted recommended technologies and 175 farmers (58 per cent of appraisal target) reported an increase in crop productivity. The availability of water infrastructures promoted by the programme did not significantly improve productivity. 42. The introduction of beekeeping to the beneficiaries with a view to diversify their income and enhance the adoption of modern hives achieved good result. 900 beekeepers reporting production increase, out of an appraisal target of 1000 (90 per cent) and 84 per cent of beekeepers adopted recommended technologies. The project provided technical training to 349 village animal health and extension leaders (VAHELs) and equipped about half of them with tool kits to treat simple diseases. The project further trained 2559 farmers in livestock health and herd management. Veterinary services were provided based on a fee-for-service approach, which proved very practical and was widely accepted by the beneficiaries. Altogether, more than animals were vaccinated in the course of the project. 43. Even though the crop production sub component did not meet most of its targets, the successes recorded in range management and apiculture were significant and the significant interest shown by beneficiaries in expanding their beekeeping operations will continue beyond project closure. The PCRV rates agricultural productivity and food security as satisfactory (5). 44. Natural resources, the environment and climate change. Projects implemented under ADCRMP were generally small, except for the few community roads and dams for which the project prepared Environment Impact Assessment (EIAs), though the focus on climate and environment in general was not a core part of the design. The PCR also noted a clear shift from the use of fuel wood to LP gas between 2008 and 2013, confirming a clear sign of improved environmental awareness and that the rehabilitation of terraces and the re-seeding of rangeland have contributed to mitigating the negative effects of desertification and environmental degradation. Finally, the establishment of protected range areas will enable the restoration of biodiversity, though there was no evidence in the PCR, or any other supporting documentation, to validate this assertion. 45. Nevertheless, it is proven that some of the project components, such as beekeeping has a positive impact on the environment since it supports crosspollination of plants and flower trees while the reforestation of endogenous species has a variety of positive effects such as biodiversity conservation, erosion control 9

10 and improved water retention The PCRV rates natural resources, environment and climate change as moderately satisfactory (4). 46. Institutions and policies. The project had a limited impact on institutions and policies. Despite the extensive training/capacity building extended by ACDRMP to local administration staff, local administration is still weak and not capable to take over full implementation/management responsibly of the current and or future foreseeable investment programs/projects, though this was the goal of the ADCRMP. According to the PCR digest, training of GAO (Governorate Agricultural Office) staff did altogether not achieve the expected results. Their capacities are as limited as they were before the project, given the many weaknesses they show. Local councils provided support by helping the communities to establish contacts with local NGOs and other services providers. The district level link between communities and local authorities is however missing. 47. These partnerships with the local communities have given the rural poor the chance, for the first time, to plan and implement contracts. However, further thoughts need to be given on how to strengthen this relationship with other development partners at project closure in order to mobilise fund for future activities. The PCRV rates institutions and policies as moderately unsatisfactory (3). 48. Overall rural poverty impact. All in all, the PCRV considered the project to have had a moderately satisfactory (4) impact on rural poverty. The project has contributed to poverty alleviation through enabling farmers to increase and diversify their agricultural and livestock production and income through training, extension services and introduction of agricultural inputs and farming technologies; helping beekeepers increase their production and income through training and distribution of modern beehives and bee colonies. The analysis in the PCRV reveals that the empowerment of women is one of the main achievements of the project. At the same time, the project has not had a significant impact on institutions and policies, and nor on natural resources, environment and climate change. The functioning and sustainability of the community credit funds is also a concern. C. Other performance criteria Sustainability 49. Despite the extensive training/capacity building extended by ACDRMP to local administration staff, local administration is still weak and not capable to take over full implementation/management responsibly of the current and or future foreseeable investment programs/projects, though this was the goal of the ADCRMP. In addition to technical and financial capacity building, there is a strong need for sound institutional capacity building. 50. On a positive note, most community associations (CAs) have become capable and self-financing, ensuring their sustainability. In addition, they are able to approach other local and external financiers to help in financing the implementation of their local development plans. Moreover, they have been empowered by the project to manage and maintain their community projects in a sustainable manner this sustainability is ensured by the fact that they are responsible and accountable to their societies; and the projects implemented in their respective areas are demanded by the beneficiaries and implemented with their contribution; However, there is an increasing risk associated with efficacy and sustainability of Community Credit funds (CCFs) if they continue operating with their existing limited available funds. The PCRV rates sustainability as moderately satisfactory (4). Innovation and scaling up 51. ADCRMP has pioneered the strategy of linking communities with local authorities through the development of CAPs prepared by community associations in Yemen. 10

11 It gave local councils a supervisory role and avoided duplication in local planning. In this way, local councils can support community associations in soliciting government and NGO support for activities not financed by the project. This district-level link between communities and local councils has been missing, but the project provided an impetus for establishing this link and replicating it in the upcoming rural growth project. The PCR further mentions that the project was the first large-scale intervention in Yemen to successfully adopt rainwater harvesting from house roofs for drinking. 52. With regard to scaling up, there is no concrete evidence that the successful innovative approaches promoted by the programme such as in the areas of agriculture and livestock extension services, apiculture, drinking water, literacy education and life-skills training, and rural credit and saving groups have been scaled up by Government, the private sector or other development partners in policies or projects funded by them. 53. Overall, this has been an innovative project, which has empowered the rural poor to manage their own projects, but there is no concrete evidence that successful innovative have been scaled up by others. Therefore, the PCRV rates innovation and scaling up as moderately satisfactory (4). Gender equality and women s empowerment 54. The project has addressed gender issues in an effective way. Women, who have traditionally been marginalized in Al-Dhala and in Yemen as a whole, have received the majority of benefits from the ADCRMP. They are the prime target of the project and the largest beneficiaries directly from specific activities such as literacy classes, life-skills training, capacity building but also from domestic water, access to cooking gas, and microfinance. Women are strongly represented in the composition of ADCRMP management as administration and technical staff. The project administrative team is mixed (women and men) and some of them occupy managerial positions such Community Micro-Finance Officer and CCF leader women (156 per cent of appraisal target) attended life-skills training in sewing, handicrafts, food processing, midwifery and other topics, and graduated and (218 per cent of appraisal target) graduated from literacy classes (levels 1, 2 & 3). Moreover, the impact assessment showed that in 2013, 52 per cent of the women could read and write compared to 45 per cent in This improvement in literacy was particularly pronounced among women aged In 2013, 75 per cent of them could read and write compared to 48 per cent in The Supervision mission of 2013 reported that through this project, women have enjoyed greater visibility and respect at home and in the community and gained lots of benefits from the outcomes of the economic and social projects. Technical support team (TSMTs) consist of women and men evenly (50 per cent women and 50 per cent men) and women attend meetings and open discussions within the project or with beneficiaries. They have succeeded to get rid of social traditions that precluded women from travelling without Mahram (a close relative who cannot legally be a husband) and travel side by side with their male colleagues and perform their duties and produce good quality work without constraints. 56. However, due to the poor performance of the microfinance component, impact indicators such as, percentage of women that have borrowed and increased their income and wealth, were not met. All in all, the PCRV rates gender equality and women s empowerment as satisfactory (5). D. Performance of partners 57. IFAD. The programme was designed in accordance with the priorities and strategic lines that the COSOP approved in IFAD took over the direct supervision of the project after MTR and relied heavily on local expertise, due to the political unrest, which restricted the in-country travel by international experts. One could 11

12 question why IFAD waited till after the MTR in December 2010 to take on direct supervision, especially because the direct supervision and implementation support policy was approved by the Board in December IFAD supervision missions proved constructive and helpful in overcoming implementation constraints. Both, technical and fiduciary aspects were adequately addressed. This is attested to in the quality of the supervision mission reports. Implementation of supervision mission recommendations was closely followed-up on IFAD s side. Altogether, and despite difficulties to travel to the country, IFAD was very supportive and committed. The Fund proved very flexible by approving a request from the Ministry of Planning and International Cooperation for amending the loan agreement and revising project costs so that the project could meet its targets. It also accepted the revised physical targets proposed by the PMU/M&E Unit. The presence of an IFAD Office is Sana a has greatly contributed to the positive achievements of the project. 59. IFAD s performance is adversely affected by the high ratings provided by the Management to several evaluation criteria covered in the PCR (see Annex 1). This points to the need for greater quality assurance within IFAD of the ratings assigned in the PCRs. All in all, however, IFAD s performance is rated satisfactory (5), especially taking into account the challenging country context during most of the project s implementation period. 60. Government. The PMU was fully operational and benefited from a motivated and experienced technical and managerial team. It was well equipped and assisted by a technical support team (TST) that provided backstopping to the technical mobilization teams. The TST was the interface between the project and the beneficiaries. 61. However, the Government did not always meet the counterpart funds commitment, contrary to the information in the PCR. The 2013 Supervision report attested to the fact that project implementation was sometimes delayed by the late release of counterpart funds. This was somewhat detrimental to the project progress, most especially because the beneficiaries have come forward aggressively in recent years to apply for and participate in construction of private and communal rainwater harvesting drinking water schemes. 62. The PMU had little alternative but to positively respond to beneficiaries pressing needs and has signed contracts valued in excess of currently available funds but the non-availability of counterpart funds hindered the progression of those requests. The Supervision Missions also noted delays in procurement and delivery of goods, sometimes due to political crisis in the region. Finally, the delayed undertaking of the baseline survey in 2008 (4 years after project approval) also affects Government s overall performance. All in all, the PCRV rates Government s performance as moderately satisfactory (4). E. Overall project achievements IV. 63. The PCRV assesses the programme to be overall moderately satisfactory (4). The programme did yield positive results considering initial difficulties and subsequent delays due to the 2011 political crisis. The project approach and implementation method has proven successful and has found approval both with targeted communities and with Government partners. However, the failure to institutionalize best practices from the project, concerns with sustainability and operational efficiency, and limited impact on institutions and national policies took the shine off of what could have been a more successful programme. Assessment of PCR quality 64. Scope. The PCR covered all the key aspects of the programme. The focus and elaboration of the programme components was detailed and referred to various 12

13 impact assessment reports and surveys that were carried out during the programme lifetime. The Annexes also provided a robust basis of evidence, however some sections of the PCR did not provide in-depth analysis required as required in the IFAD Guidelines for PCR preparation. Some sections on efficiency focused on effectiveness and vice versa, which made the PCR a bit tedious to digest. On this basis, PCRV assesses PCR scope as moderately satisfactory (4). 65. Quality. PMD rates the PCR as a good quality report. PCRV concurs. The analyses of the various criteria by PCR were detailed and in line with IFAD guidelines. However, the PCR did not expand on the reasons for the long preparatory phase of the programme and also glossed some of the not so successful components such as the microfinance component. PCRV rates quality as moderately satisfactory (4) lower than the satisfactory self-rating by PMD. 66. Lessons. The PCR has produced several lessons, all consistent with the analysis and focused on sustaining the programmes benefit, particularly, the scaling up of the project components into the RGP. On this basis, PCRV rates this as satisfactory (5), same as self-rating by PMD. 67. Candour. The PCR authors were objective in highlighting the issue with the initial delays. However, the issue with the microfinance component was glossed over and analysis under efficiency is mixed/confused with effectiveness. PCRV rates Candour as moderately satisfactory (4) lower than the satisfactory self-rating by PMD. 13

14 Annex 1 Rating comparison Criteria PMD rating a IOE rating a Net rating disconnect (IOE PCRV PMD) Project performance Relevance Effectiveness Efficiency Project performance b Rural poverty impact Household income and assets Human and social capital and empowerment Food security and agricultural productivity Natural resources, environment and climate change Institutions and policies Rural poverty impact c Other performance criteria Sustainability Innovation and scaling up Gender equality and women s empowerment Overall project achievement d Performance of partners e IFAD Government Average net disconnect Ratings of the PCR quality PMD rating IOE PCRV rating Net disconnect Scope Quality (methods, data, participatory process) Lessons Candour Overall rating of PCR NA 4 NA a Rating scale: 1 = highly unsatisfactory; 2 = unsatisfactory; 3 = moderately unsatisfactory; 4 = moderately satisfactory; 5 = satisfactory; 6 = highly satisfactory; n.p. = not provided; n.a. = not applicable. b Arithmetic average of ratings for relevance, effectiveness and efficiency. c This is not an average of ratings of individual impact domains. d This is not an average of ratings of individual evaluation criteria but an overarching assessment of the project, drawing upon the rating for relevance, effectiveness, efficiency, rural poverty impact, sustainability, innovation and scaling up, and gender. e The rating for partners performance is not a component of the overall assessment ratings. 14

15 Annex 2 Definition of the evaluation criteria used by IOE Criteria Project performance Relevance Effectiveness Efficiency Rural poverty impact b Household income and assets Human and social capital and empowerment Food security and agricultural productivity Natural resources, environment and climate change Institutions and policies Other performance criteria Sustainability Innovation and scaling up Gender equality and women s empowerment Overall project achievement Definition a The extent to which the objectives of a development intervention are consistent with beneficiaries requirements, country needs, institutional priorities and partner and donor policies. It also entails an assessment of project design in achieving its objectives. The extent to which the development intervention s objectives were achieved, or are expected to be achieved, taking into account their relative importance. A measure of how economically resources/inputs (funds, expertise, time, etc.) are converted into results. Impact is defined as the changes that have occurred or are expected to occur in the lives of the rural poor (whether positive or negative, direct or indirect, intended or unintended) as a result of development interventions. Household income provides a means of assessing the flow of economic benefits accruing to an individual or group, whereas assets relate to a stock of accumulated items of economic value. Human and social capital and empowerment include an assessment of the changes that have occurred in the empowerment of individuals, the quality of grassroots organizations and institutions, and the poor s individual and collective capacity. Changes in food security relate to availability, access to food and stability of access, whereas changes in agricultural productivity are measured in terms of yields. The focus on natural resources and the environment involves assessing the extent to which a project contributes to changes in the protection, rehabilitation or depletion of natural resources and the environment as well as in mitigating the negative impact of climate change or promoting adaptation measures. The criterion relating to institutions and policies is designed to assess changes in the quality and performance of institutions, policies and the regulatory framework that influence the lives of the poor. The likely continuation of net benefits from a development intervention beyond the phase of external funding support. It also includes an assessment of the likelihood that actual and anticipated results will be resilient to risks beyond the project s life. The extent to which IFAD development interventions have: (i) introduced innovative approaches to rural poverty reduction; and (ii) the extent to which these interventions have been (or are likely to be) replicated and scaled up by government authorities, donor organizations, the private sector and others agencies. The criterion assesses the efforts made to promote gender equality and women s empowerment in the design, implementation, supervision and implementation support, and evaluation of IFAD-assisted projects. This provides an overarching assessment of the project, drawing upon the analysis made under the various evaluation criteria cited above. Performance of partners IFAD Government This criterion assesses the contribution of partners to project design, execution, monitoring and reporting, supervision and implementation support, and evaluation. It also assesses the performance of individual partners against their expected role and responsibilities in the project life cycle. a These definitions have been taken from the OECD/DAC Glossary of Key Terms in Evaluation and Results-Based Management and from the IFAD Evaluation Manual (2009). b The IFAD Evaluation Manual also deals with the lack of intervention, that is, no specific intervention may have been foreseen or intended with respect to one or more of the five impact domains. In spite of this, if positive or negative changes are detected and can be attributed in whole or in part to the project, a rating should be assigned to the particular impact domain. On the other hand, if no changes are detected and no intervention was foreseen or intended, then no rating (or the mention not applicable ) is assigned. 15