Mozambique - Food security capacity building

 ICRR 10532 Report Number : ICRR10532 ICR Review Operations Evaluation Department 1. Project Data : Date Posted : 01/19/2000 PROJ ID : P001801 OEDID: OEDID : C2487 Appraisal Actual Project Name : Food security US$M ) Project Costs (US$M) 8.2 6.1 capacity building Country : Mozambique Loan /Credit (US$M) Loan/ US$M ) 6.6 4.47 Sector, Major Sect .: Other Social Sector , US$M ) Cofinancing (US$M) 1.6 1.63 Social Protection & Other Sector L/C Number : C2487 FY ) Board Approval (FY) 93 Partners involved : (i)Save the Children, Closing Date 02/28/1998 12/31/1998 (ii) Food and Agriculture Organisation Prepared by : Reviewed by : Group Manager : Group : Chorching Goh Laurie Effron Gregory K. Ingram OEDST 2. Project Objectives and Components a. Objectives The project's planned outcome was a strengthened national capacity to confront and deter major causes of food insecurity and poverty. The project's objectives were to (a) establish a strong institutional focal point for food security policy development and coordination, (b) improve understanding of food security issues and responses among decision -makers, and (c) incorporate research and teaching of food security related issues in university and pre -service vocational training programs. b. Components Components for Objective (a): [i] Provide the recently established Poverty Alleviation Unit of the National Planning Commission with the staff, equipment, and other resources necessary to monitor and address poverty and household food insecurity issues . [ii] Provide short- and long-term local and foreign technical assistance to the Poverty Alleviation Unit. [iii] Provide short- and long-term overseas fellowships for staff of the Poverty Alleviation Unit . [iv] Provide funds for policy research . [v] Support analysis and dissemination of food security information . Components for Objective (b): [i] Hold two national conferences on food security and a number of smaller workshops . [ii] Provide a limited number of study tours to neighboring countries . [iii] Support the development of an in -service training program in food security for managerial and technical staff at the central, provincial, and district levels . [iv] Support the development and implementation of a course in nutrition and food security at the Health Sciences Institute in Mapato. Components for Objective (c): [i] Support research and teaching improvement at the faculty of Agronomy of Eduardo Mondlane University . [ii] Provide textbooks and equipment to the faculty of Agronomy of Eduardo Mondlane University . c. Comments on Project Cost, Financing and Dates The Project cost US$8.2 million at appraisal, but eventually cost US$6.1 million because overseas training of government officials did not take place, and a formal in -service training program was not developed . The project was approved in May 1993 but implementation was delayed until February 1994 as necessary institutional arrangements were not in place. The credit closed in December 1998, and the project completed in June 1999. 3. Achievement of Relevant Objectives : The project has enabled the university (Universidade Eduardo Mondlane) to become the focal point nationally for pre-service training and research on poverty and food security issues . The Dept of Population and Social Development at the Ministry of Planning and Finance, with support of the project, has been undertaking policy development and analysis functions; it has completed analytical work and strategic documents defining government policy in the areas of food security, poverty and population . Most of the planned training abroad and formal in-service training, however, did not take place; low disbursement, as a result, was not necessarily a shortcoming in itself. 4. Significant Outcomes /Impacts : Two of the products of this project, a poverty assessment and a national household survey, were undertaken for the first time by the government. Though with some weaknesses, the work was a good start on data collecting, analysis, and knowledge building. A stronger tie has also resulted from this project between the Government and Universidade Eduardo Mondlane (UEM); specifically the University has become the focal point for training and research on food security, while UEM students are interns at the Dept of Population and Social Development , which is in charge of formulating and implementing a range of food security policies . 5. Significant Shortcomings (including non -compliance with safeguard policies ): The component on formal training was not fulfilled because qualified specialists were unavailable in the Institution and foreign consultants were only irregularly available to run the training courses . On the other hand, informal training was acknowledged, by local authorities, and trained officials, to be useful and productive . Some officials, under the project's funding, were sent abroad to attend courses; most overseas training, with longer duration, was cancelled because there were no suitable candidates . Overseas training is not justified if proper incentives are not in place to ensure that returning officials will put their training to good use . It was unclear from the SAR or the ICR that returning officials were expected to produce any related analysis exercises at the end of their training. Despite the fact that most overseas training was cancelled, the total costs (see Table 8A) incurred under "technical assistance and fellowship " exceeded the level at appraisal . 6. Ratings : ICR OED Review Reason for Disagreement /Comments Outcome : Satisfactory Satisfactory Institutional Dev .: Substantial Substantial Sustainability : Likely Likely The initial rating based on the ICR was "Uncertain". The rationale being that there was no mechanism to ensure that work begun by this project might continue . There was no commitment that the government would carry out surveys and assessment regularly. Most importantly, the government do not have the financial resources, without external aid, to implement most of the components begun by the project. However, recent development (e.g., onset of the Poverty Reduction Strategy Process,budgetary re-allocation, and plans for regular surveys) and additional information provided by the Country team indicates the Government's continuous commitment to sustain earlier efforts. Bank Performance : Satisfactory Satisfactory Borrower Perf .: Satisfactory Satisfactory Quality of ICR : Satisfactory 7. Lessons of Broad Applicability : Strong government commitment, continuous involvement of some key individuals within the government, as well as the project's clear objectives and flexible design are vital to its success . For a project with capacity-building as a primary objective, it is commendable to have concrete products (e.g., household surveys, poverty assessments ) as part of the Project's outputs . The development and completion of these products can serve as monitoring indicators, and equip local officials with valuable skill . Items with huge expenses but weak monitoring, such as overseas training /courses, should only be included if they are truly value-adding.  Projects that promote capacity -building, especially in a weak public sector, must ensure that there are proper incentives and available resources to sustain such efforts . 8. Audit Recommended? Yes No 9. Comments on Quality of ICR : The ICR is thorough. The borrower's own evaluation of the program (within the ICR) is especially informative and useful: it reported actual circumstances to illustrate why certain activities failed to take place .