Acronyms / Abbreviations
3 Key Learning and Implementation Challenges in Nepal
As discussed in the previous sections, JICA has been extending its assistance under the three Basic Strategies, namely (1) Infrastructure and institutional development for sustainable economic growth; (2) Consolidation of peace and a steady transition to a democratic state/society; and (3) Rural poverty reduction. Moreover, while formulating and implementing various projects and cooperation activities JICA has been duly considering the governing approaches of (i) field-based approach, (ii) integrated assistance, and (iii) capacity development. Below are some key learning and implementation challenges accumulated through JICA’s wide range of involvement in terms of aid instruments and level of development supports; for example – extending support through huge grant aid and loan projects to small scale technical cooperation projects; involvement at the central level governance strengthening projects to VDC/Community level small-scale piloting; supporting through experts exchange program and trainings to fielding volunteers at the micro-level institutions.
3-1 Relevance of Technical Cooperation Projects
It has been noticed that GoN policies and programs are quite good in terms of setting out vision and expectations. Moreover, sizable amount of resources have also been provisioned for various projects/programs as well as to the local bodies. However, equally important is to realize those programs at the ground level. Formulation of policy
18 guidelines, implementation manuals and circulation of the central level directives as well as making downward flow of financial resources are highly important instruments for realizing development, but more important is aligning of those instruments with the real field level implementation capacity as well as the real developmental needs. In this regards, Project-Based Approach including the Technical Cooperation Projects are still relevant for making the development more effective and truly realized by the targeted communities and groups. Technical Cooperation Projects grounded at the field level within the broader framework of the central level development policy are instrumental for a shift to full-fledged Program-Based Approach. Hence, Program-Based vision and Project-Based execution could be the good mix of programming approach considering the current level of institutional capacity.
3-2 Constraints in Implementing Transport Infrastructure Project
As mentioned above, in the project sites of the road and bridge construction projects, there have been many disturbances from bandhs (general strikes) and social disturbances. Such disturbances are not being resolved timely mainly because of the weak local administration compounded with the backings from the political parties to the organizers of such disturbances. The construction work has been delayed in the Sindhuli Road Construction Project; the monetary losses on the part of the contractor, when calculated based on the number of days of bandhs and social disturbances and the standby cost for human resources and equipment, amounted to more than 80 million yen.
GoN and the local government should enhance and practice the project monitoring and guiding system, understand what is happening in the project site, and take actions to reduce the burden of the projects, in order to ensure safe and smooth implementation of these projects.
3-3 Limited Monitoring and Evaluation Practices
The monitoring and reporting system from the project sites to the central government is existing, but the human resources trained and various tools developed for M&E are yet to be utilized properly. Findings and results of the existing monitoring have not been shared and utilized adequately. Similarly, the feedback to the projects is very weak ultimately limiting the monitoring and reporting to a ritual activity. Additionally, the evaluation system has not been established or functioning at the central and at the local levels. The Result-Based Monitoring and Evaluation Guidelines can be taken as an umbrella policy document to streamline the M&E system, but much work is necessary to
19 Ultimately, if practiced the real cycle of M&E, the policies and programs to be formulated will have real-field flavor and ultimately becoming easier to implement and thus producing intended outcomes.
3-4 Shortage or Absence of Local Government Officers
When JICA technical cooperation tries to develop the capacity of the local government officers, it is usually observed that only limited staff members existing in the VDC or DDC offices. There are some vacant positions, as well. As long as the appropriate staff members are not deployed to the local level, it is difficult to extend technical cooperation projects and training under the sector development program.
4 Recommendations
Following recommendations are made for consideration based on the experiences accumulated as discussed in the preceding sections:
(1) It is encouraging to observe that the capacity development components have been added together with the increased fund flow to the local governments. However, the capacity development of the local government needs supports beyond distributing the funds and the guidelines and organizing very classical based trainings. There is dearth of knowledge at the theoretical and conceptual level, but still have to struggle more to touch on the mind-sets and practical skills necessary to translate those concepts in the real field operations. Development constraint is not only the lacking of financial resources. Therefore, instead of too much relying on the local human resources and technologies to utilize the increased financial resources, GoN should consider how to utilize the foreign expertise and knowledge through technical cooperation projects while implementing their sector development programs.
(2) Program-Based Approach is very strong at the conceptualization level and setting out the broader vision. But, it demands much stronger institutional and individual capacity base at the operational level. It needs more analytical capacity and practice, strong feedbacks mechanism, and the financial resource base. Therefore, considering the institutional capacity and presence of numerous DPs and I/NGOs, Project-Based execution aligning with broader Program-Based vision should be encouraged.
20 (3) Monitoring and evaluation mechanism needs to be strengthened to ensure the quality works and outputs. Utilization of M&E feedbacks while formulating policies, programs and projects should be the central focus for strengthening M&E. The Result-Based Monitoring and Evaluation Guidelines, which acts as the umbrella policy for M&E, needs operationalization through further capacity development and simplifying the necessary tools. Similarly, the result-frameworks prepared in some selected central level government agencies under the auspicious of ADB’s support are encouraging and instrumental to visualize the broader perspectives of development interventions. These also need to be operationalized in harmony with the Result-Based M&E Guidelines framework in order to minimize possible confusions and feeling of overloading at the project level and district offices.
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