MID-TERM REVIEW OF THE

PROJECT ON MAINSTREAMING
MDGs IN KENYAS DEVELOPMENT
PROCESS

by

John Thinguri Mukui

[email: jtmukui2000@yahoo.com]

Report prepared for the Ministry of Planning and National

Development, United Nations Development Programme, and the
Embassy of Finland

20 June 2008

A
 TABLE OF CONTENTS

ABBREVIATIONS AND ACRONYMS ................................................................................................................ ii

ACKNOWLEDGEMENTS ................................................................................................................................... iv
EXECUTIVE SUMMARY ..................................................................................................................................... v
0.1 THE PURPOSE OF THE REVIEW ......................................................................................................... v
0.2 PROJECT PERFORMANCE BY OUTPUT ............................................................................................. v
0.3 PROJECT MANAGEMENT, MONITORING AND EVALUATION .................................................... xi
0.4 SUMMARY OF MAIN RECOMMENDATIONS .................................................................................. xii
DESCRIPTION OF THE PROJECT ...................................................................................................................... 1
1.1 BACKGROUND AND RATIONALE FOR THE PROJECT.................................................................... 1
1.2 ACTIVITIES ON THE MILLENNIUM DEVELOPMENT GOALS PRIOR TO THE PROJECT .......... 2
1.3 DESCRIPTION OF THE PROJECT ACCORDING TO THE PROJECT DOCUMENT ........................ 3
PROJECT PERFORMANCE BY OUTPUT .......................................................................................................... 8
2.1 CAPACITY BUILDING FOR MAINSTREAMING MDGs IN POLICY FORMULATION AND
PLANNING PROCESSES ...................................................................................................................................... 8
2.2 UNDERTAKING MDGs CAMPAIGN AND AWARENESS CREATION ........................................... 13
2.3 DEVELOPMENT OF A NATIONAL MDGs-BASED LONG-TERM FRAMEWORK FOR ACTION 16
2.4 DEVELOPMENT OF A MEDIUM-TERM MDGs-BASED POVERTY REDUCTION STRATEGY... 17
2.5 MDGs TRACKING AND REPORTING ................................................................................................ 19
2.6 PROMOTION OF RESEARCH, ANALYTICAL WORK AND POLICY ADVOCACY ON MDGs ... 26
PROJECT MANAGEMENT, MONITORING AND EVALUATION ................................................................ 33
3.1 PROJECT IMPLEMENTATION UNIT ................................................................................................. 33
3.2 PROJECT STEERING COMMITTEE .................................................................................................... 34
3.3 PROJECT TECHNICAL COMMITTEE ................................................................................................. 34
3.4 TECHNICAL ASSISTANCE TO THE PROJECT .................................................................................. 34
3.5 ANNUAL WORK PLAN AND BUDGET .............................................................................................. 35
3.6 PROCUREMENT AND PAYMENT PROCESSES ................................................................................ 35
3.7 PARTNERSHIP ARRANGEMENTS ..................................................................................................... 35
3.8 FINANCIAL REPORTING .................................................................................................................... 36
3.9 FINANCIAL REPORT ............................................................................................................................ 36
SUMMARY OF MAIN FINDINGS AND RECOMMENDATIONS .................................................................. 38
4.1 SUMMARY OF OUTPUTS .................................................................................................................... 38
4.2 CAPACITY BUILDING FOR MAINSTREAMING MDGs IN POLICY FORMULATION AND
PLANNING .......................................................................................................................................................... 38
4.3 UNDERTAKING MDGs CAMPAIGN AND AWARENESS CREATION ........................................... 39
4.4 DEVELOPMENT OF MDGs-BASED LONG-TERM FRAMEWORK FOR ACTION ........................ 41
4.5 DEVELOPMENT OF A MEDIUM-TERM MDGs-BASED POVERTY REDUCTION STRATEGY... 41
4.6 MDGs TRACKING AND REPORTING ................................................................................................ 42
4.7 PROMOTION OF RESEARCH, ANALYTICAL WORK AND POLICY ADVOCACY ON MDGs ... 43
4.8 PROJECT MANAGEMENT, MONITORING AND EVALUATION ................................................... 44
4.9 IN CAPSULE FORM .............................................................................................................................. 45
4.10 SUMMARY OF MAIN RECOMMENDATIONS .................................................................................. 46
MAINSTREAMING MDGs IN KENYAS DEVELOPMENT PROCESS: IMPLEMENTATION MATRIX ..... 49
REFERENCES ...................................................................................................................................................... 53
ANNEX ONE: SUMMARY OF FINDINGS FROM VISITS TO FOUR MILLENNIUM DISTRICTS .............. 60
ANNEX TWO: IMPROVING AID EFFECTIVENESS ....................................................................................... 66
ANNEX THREE: TERMS OF REFERENCE ....................................................................................................... 67
ANNEX FOUR: OFFICIAL LIST OF MDG INDICATORS, EFFECTIVE 15 JANUARY 2008 ........................ 70

i
 ABBREVIATIONS AND ACRONYMS

AIDS Acquired Immunodeficiency Syndrome

AIE Authority to Incur Expenditure
ALGAK Association of Local Government Authorities of Kenya
APRM African Peer Review Mechanism
AWP/B Annual Work Plan and Budget
BOPA Budget Outlook Paper
CBO Community Based Organization
CDF Constituency Development Fund
CDR Combined Delivery Report
CiReCa Citizen Report Card
CPP Core Poverty Programmes
CSO Civil Society Organization
DAC Development Assistance Committee of the OECD
DC District Commissioner
DDC District Development Committee
DDO District Development Officer
DDP District Development Plan
DEC District Executive Committee
DFRD District Focus for Rural Development
DHS Demographic and Health Survey
DSI Decision Support International
EDCG Education Development Partners Coordination Group
ERD External Resources Department, Ministry of Finance
ERS Economic Recovery Strategy for Wealth and Employment Creation
FDI Foreign Direct Investment
GDP Gross Domestic Product
GJLOS Governance, Justice, Law and Order Sector (program)
GMF Generic Macroeconomic Framework
GNI Gross National Income
GoK Government of the Republic of Kenya
GTZ Deutsche Gesellschaft fur Technische Zusammenarbeit
HAC/DCG Harmonization, Alignment and Coordination/Development Partners Coordination Group
HEDC Health and Economics Development Consortium
HIPC Heavily Indebted Poor Countries (Initiative)
HIV Human Immunodeficiency Virus
IDA International Development Association (World Bank)
IDEP International Day for the Eradication of Poverty
IEC Information, Education and Communication
IMF International Monetary Fund
IP-ERS Investment Programme for the Economic Recovery Strategy for Wealth and Employment
Creation
KAP Knowledge, Attitudes and Practices
KARI Kenya Agricultural Research Institute
KBC Kenya Broadcasting Corporation
KePIM Kenya Participatory Impact Monitoring
KESSP Kenya Education Sector Support Programme
KIHBS Kenya Integrated Household Budget Survey 2005/06
KIPPRA Kenya Institute for Public Policy Research and Analysis
KJAS Kenya Joint Assistance Strategy 2007-2012
KTN Kenya Television Network

ii
LASDAP Local Authority Service Delivery Action Plan
LATF Local Authority Transfer Fund
LDCs Least Developed countries
MCI Millennium Cities Initiative
MDG Millennium Development Goals
MDG+5 United Nations General Assembly World Summit, September 2005
MDRI Multilateral Debt Relief Initiative
M&E Monitoring and Evaluation
MED Monitoring and Evaluation Directorate, Ministry of Planning and National Development
MoE Ministry of Education
MoF Ministry of Finance
MoH Ministry of Health
MoP&ND Ministry of Planning and National Development
MTEF Medium-Term Expenditure Framework
MVP Millennium Villages Project
NALEP National Agriculture and Livestock Extension Program
NEMA National Environmental Management Authority
NEPAD New Partnership for Africas Development
NGO Nongovernmental Organization
NIMES National Integrated Monitoring and Evaluation System
NPV Net Present Value
NSC National Steering Committee
ODA Official Development Assistance
OECD Organisation for Economic Cooperation and Development
PEC Poverty Eradication Commission
PEI Poverty Environment Initiative
PEM Public Expenditure Management
PEM-AAP Public Expenditure Management Assessment and Action Plan
PER Public Expenditure Review
PIDS Philippine Institute for Development Studies
PIU Project Implementation Unit
PPA Participatory Poverty Assessment
PPO Provincial Planning Officer
PPP Purchasing Power Parity
PRSP Poverty Reduction Strategy Paper
PSC Project Steering Committee
PTEC Project Technical Committee
RBM Results Based Management
REMPAI Resource Management and Policy Analysis Institute
RPD Rural Planning Directorate, Ministry of Planning and National Development
SAGA Semiautonomous Government Agency
SRA Strategy for Revitalization of Agriculture
SWAP Sector-Wide Approach
SWG Sector Working Group
TWG Technical Working Group
UNCT United Nations Country Team
UNDAF United Nations Development Assistance Framework
UNDP United Nations Development Programme
UNMP UN Millennium Project
UNV United Nations Volunteer
UNVIS UN Volunteer Intermediation Strategy
VAT Value Added Tax

iii
 ACKNOWLEDGEMENTS

The Mid-Term Review was undertaken under the overall guidance of Gideon Mailu
(Chief Economist), head of the MDG Unit in the Ministry of Planning and National
Development. I thank the staff in the Ministry of Planning and National Development,
Ministry of Finance, line ministries MDG contact persons, civil society organizations,
district departmental heads in the four millennium districts visited (especially the District
Development Officers and District Statistical Officers), UNDP-Kenya, and the Embassy of
Finland for the information provided through interviews, access to project
documentation, and comments on an earlier draft of this report. In particular, I thank
Gideon Mailu, Elkana Onguti (Deputy Chief Economist in the MDG Unit), Esther Chege
(Project Officer, MDG Unit), Gilbert Momanyi (Project Officer, MDG Unit), Jacinta
Oluoch (Logistics Officer, MDG Unit), Heli Sirve (Ambassador, Embassy of Finland),
Heikki Haili (Deputy Head of Mission, Embassy of Finland), Saida Maki-Penttila
(Programme Officer, Embassy of Finland), Marcello Giordani (Senior Assistant Resident
Representative, UNDP-Kenya), Maina David (Programme Officer, UNDP-Kenya),
Nicholas Kipyego (Programme Officer, UNDP-Kenya), and Bernard A. Masiga (Deputy
Chief Economist, External Resources Department, Ministry of Finance).

John Thinguri Mukui

Friday, 20 June 2008

iv
 EXECUTIVE SUMMARY

0.1 THE PURPOSE OF THE REVIEW

Since the Millennium Declaration and the subsequent declaration of Kenya as a pilot country in
the implementation of MDGs through the Millennium Project, the Government of Kenya has
been working on institutionalizing and mainstreaming MDGs into her national development
agenda. However, despite the Governments commitment to the MDGs, capacity gaps in key
public sectors for mainstreaming the MDGs in policy formulation and planning processes made it
difficult for the Government to meet the set targets. This was exacerbated by inadequate
functional mechanisms for overall MDGs tracking and reporting, gaps in the overall policy
relative to MDGs, coordination of MDGs campaign, and critical analytical work to guide and
inform policy. The Government had proposed measures aimed at mainstreaming the MDGs
within the national policy, planning, budgeting, and monitoring and evaluation processes, and
this project was supposed to provide consistency and internal coherence in the achievement of
this goal. The project was to run from July 2005 to June 2008, and fiscal year July 2005 to June
2006 was adopted for the first Annual Work Plan.

The project has six specific objectives which are that while targeting the poor, the project will
involve the Government, civil society organizations (CSOs), and various development partners to:

Build capacity of key public sectors for MDGs mainstreaming in policy formulation and
planning processes and of non-state actors to participate in the process;
Undertake MDGs campaign and awareness creation;
Develop a national MDG-based Long-Term Framework for Action;
Revise the medium-term sectoral plans and ERS based on Long-Term Framework for Action
and align ERS and MTEF to MDGs;
Undertake comprehensive MDGs tracking and reporting; and
Promote policy advocacy on MDGs, including the goal on global partnership, through
analytical work and research that informs policy formulation.

The main purpose of the Review, which comes in the third and final year of implementation of
the MDGs Project, is to provide an objective assessment of whether the project is on its way to
achieving its intended objectives in relation to progress towards achievement of the project goal
and the delivery of its expected outputs. Further, the Review was to assess the impact and
effectiveness of the support, and suggest the way forward for Phase 2 of the project, especially on
insights that can improve both the content and implementation of the project.

0.2 PROJECT PERFORMANCE BY OUTPUT

0.2.1 Summary of Outputs

Some of the project outputs include:

MDGs Status Reports developed in 2005 and 2007.

Launching of the MDG-based planning that has resulted in a gradual increase in budgetary
resources to core poverty programmes and key sectors of agriculture, education, health and
infrastructure.

v
 Publication of the MDG Needs Assessment and Costing Report in 2005.
Capacity building workshops have been held for planning and budgetary officers at the national
level, provincial and district officers, CSOs, and MDGs contact officers in the line Ministries.
IEC campaigns have been carried out through various media including TV and radio programs,
newspaper supplements, brochures, fliers, posters, calendars, T-shirts and caps, drama festivals,
and through public announcements.
MDG sector-specific needs assessment reports published in 2006.
Completion of Kisumu Investment Guide under the Millennium Cities Initiative, and its launch
in October 2007.
MDGs Long-Term Framework for Action is almost finalized, and will be closely linked with
the Vision 2030.
The studies on the review of the Poverty Eradication Commission and on financing resources
on MDGs are about to be finalized.
Piloting the MDG-based district planning in nine Millennium districts aimed at fast-tracking
the achievement of MDGs at lower levels and providing suitable case studies for replication and
scaling up.

0.2.2 Capacity Building for Mainstreaming MDGs in Policy Formulation and Planning

The enhanced delivery of MDGs through the Millennium District initiative was introduced into
the project in September 2006. The main objective of the Initiative is to build capacity for the
stakeholders at the district and lower levels so that they can fast-track the implementation of
government policies and programmes; and work with stakeholders and communities to prepare
MDGs-based plans with focus on Quick Impact Initiatives and finally mobilize resources for their
implementation. The Initiative initially targets nine districts, spread across the country as a
learning process, after which the activities will be rolled out to other districts.

Capacity development activities were undertaken in the nine millennium districts bringing
together all actors. The main outputs were (a) district-specific medium-term MDG-based plans
and strategies; (b) development of capacities of local level actors on effective participation in the
MDGs implementation process through training and provision of information; and (c) initiated
the process of awareness raising and campaigning for the MDGs at the district level.

From these assessments, it has emerged that there are major capacity challenges in the districts,
which include inadequate office accommodation; inadequate logistical support (e.g. vehicles,
computers, phones and internet connections, etc); inadequate data for planning at district level;
inadequate human resource in terms of numbers and skills (planning, budgeting, reporting, IT,
etc); disharmony in planning for development and use of devolved funds; and the enormous needs
for resources to implement a comprehensive MDG-based development framework.

There is need for harmonization of the M&E and MDGs indicators for tracking of progress;
training of district staff on IT, participatory approach methodology and report writing; and
funding to support the district MDGs-based planning and implementation process through
administrative and general mobility for technical officers to hold consultative meetings,
undertake MDGs Quick Impact Initiatives, and for M&E; and funding for MDGs Quick Impact
Initiatives to facilitate interventions through the technical departments and other key
stakeholders. In addition, MDGs should not be undertaken in isolation, but be integrated with
other national plans and strategies while carrying out development activities.

vi
0.2.3 Undertaking MDGs Campaign and Awareness Creation

Most of the activities under this component were implemented. These include development of
MDG campaign and advocacy strategy (and its wide dissemination), MDGs awareness and
advocacy through the electronic mass media, MDGs advocacy through the national schools drama
festivals (which was a unique opportunity for promoting knowledge and awareness on the MDGs
particularly to the youth), and support to the development of a MDG advocacy and campaign
strategy by CSOs. Even the Public Service Commission includes questions on MDGs during
interviews for promotion of senior civil service staff. However, some line ministries and lower
geographical levels (e.g. district and below) have knowledge and capacity gaps that need to be
addressed to mainstream MDGs in their planning, budgeting, implementation and M&E
processes.

0.2.3.1 Capacity Building for Civil Society Organizations for Advocacy on MDGs

There have been several workshops organized by the Project that have included CSOs as partners
or as target audience for awareness creation on MDGs. These include the preparations for the
September 2005 UN Summit; and a review of district level initiatives to promote the attainment of
the MDGs. The involvement of CSOs is for them to act as partners in localizing MDG-based
development strategies through civic education efforts to empower local citizens, both
individually and as a community, in order to set MDGs under a national framework in the context
of local reality, aspirations and priorities.

0.2.3.2 Provision of Grants to CSOs for MDGs Mainstreaming and Awareness Creation

The support to the development of a MDG advocacy and campaign strategy by CSOs started in
September/October 2006, but the response was lower than expected, and the process was repeated
in July 2007. The final evaluation selected 26 NGOs that would propagate a partnership on
localizing MDGs in 28 districts.

0.2.3.3 Turning Knowledge into Attitudes and Practices

The medium of delivery of IEC messages was rather expensive, which made it difficult to make it
a continuous process. The MoP&ND could put all the awareness messages on the web, so that civil
society organizations and other users can access the information at their own time and cost.

A host of people targeted by the awareness campaign probably finds it difficult to understand the
MDGs when they are itemized as a list of activities and goals. There may therefore be need to
repackage the MDGs as practices that lead to good, healthy and responsible living. A major effort
could be undertaken to produce an easy-to-read document that could even be marketed to form
part of the syllabus for common courses in universities and colleges. Such a publication could also
target the service providers who are in regular touch with the communities (e.g. forestry staff,
teachers and nurses) so that they, and the communities they serve, have a joint duty in the
achievement of the MDGs.

vii
0.2.3.4 Towards a Virtual Kenya

To make both current and historical information available to the civil service and other users,
Kenya could start a semiautonomous government agency under the Vision 2030 (or initially as a
department in a Government ministry) to create a virtual Kenya, that would electronically host
current and old Government publications and documents, and any documentation and research
material by other institutions (e.g. NGOs and universities).

0.2.4 Development of MDGs-Based Long-Term Framework for Action

In 2006, the Government initiated a process of developing a national Long-term Framework for
Action for the implementation of the MDGs. The development of the long-term plan coincided
with the preparation of Vision 2030, and the delay in completing the Long-Term Framework for
Action made it necessary to alter its scope to harmonize it with Vision 2030. The report is
complete, but has not been published. The delay in finalization of the MDGs-based Framework
for Action was probably due to the unrealistic expectation that a consultancy effort is sufficient,
without support of other key stakeholders, research institutes and peer reviewers at the final
stages of its completion.

0.2.5 Development of a Medium-Term MDGs-Based Poverty Reduction Strategy

At the initial stages of the project, there were many workshops to sensitize Government staff in
the Ministry of Finance (MoF), line ministries, provincial and district staff, and representatives of
professional organizations on mainstreaming MDGs in the planning and budgetary processes.
However, there was little follow up on whether the participants implemented the
recommendations of the workshops e.g. in the budgetary processes. The project has not made
significant engagement with some of the key stakeholders (e.g. members of parliament and local
authority leaders), despite their major role in managing devolved funds and the fact there are easy
avenues of reaching them e.g. parliamentary departmental committees and Ministry of Local
Government, respectively.

The planning, budgeting and policy processes are gradually moving towards mainstreaming
MDGs. The Government policy statements, including the annual Budget Strategy Paper,
emphasize that budget allocation should give special focus to core poverty programs and
achievement of the MDGs, which has led to a gradual increase in budgetary resources to the key
sectors of the MDGs (e.g. agriculture, education, health, infrastructure, environment, energy and
housing) and increased allocation to the devolved funds (e.g. LATF and CDF). The Social Pillar in
Kenya Vision 2030 includes most of the MDGs, namely, education and training, health sector,
water and sanitation, environment, housing and urbanization, and gender, youth and vulnerable
groups. In addition, guidelines for preparing Public Expenditure Reviews pay special focus on
sectors that are critical to the achievement of the MDGs and raising the human capital of the poor
(e.g. education and health). However, there has been no structured process of aligning the ERS to
the MDGs, but the Medium-term Plan (covering 2008-2012) will anchor in the MDGs, and
initiate a process of fully mainstreaming MDGs in the line ministries plans and budgets.

The vertical coordination system (between district departmental heads and their ministries)
within the Governments administrative structure makes it difficult to harmonize Government
activities at the district level. At the district or lower levels, there is little coordination among

viii
custodians of various funding windows (district departmental heads, local authorities and
members of parliament) and between Government departments and the civil society and the
private sector, hence the difficulties in mainstreaming activities at this level towards achievement
of the MDGs.

0.2.6 MDGs Tracking and Reporting

0.2.6.1 Support to Finalization of the MDGs Needs Assessment Report

The project supported the finalization, publication and dissemination of the MDGs Needs
Assessment and Costing Report (2005), including sector reports on each MDG goal (apart from
Goal 8 on Global Partnership for Development). The Needs Assessment and Costing Report also
formed the basis of Kenyas successful participation in the 2005 World Summit in New York,
especially in the MDG side event for Kenya at the meetings of the Millennium Project pilot
countries.

0.2.6.2 Integration of MDGs into the National and Sectoral Monitoring and Evaluation
Frameworks

The National Integrated Monitoring and Evaluation System (NIMES) framework contains a set of
31 indicators based on the IP-ERS (and to the MDGs - to the extent that these are aligned with
the IP-ERS indicators), and the NIMES also use proxy indicators where the MDG indicator is not
reliable or is not regularly updated (e.g. children under five years sleeping under insecticide-
treated bed nets as proxy for inpatient malaria morbidity). In addition, several ministries maintain
lists of indicators that satisfy the MDG reporting requirements, NIMES, and their own internal
needs (the notable examples are in education and water sectors). Some indicators for reporting
under NIMES and MDGs differ in coverage, and even definitions, and some indicators for lower
level geographical areas may not be readily available or up-to-date.

The Government has expanded its conceptualization of NIMES as a system that should meet its
entire national, regional and global policy monitoring and project monitoring requirements.
Consequently, an institutional and coordination framework for NIMES has been prepared and
will be rolled out to all districts, and has provision for the establishment of District Monitoring
and Evaluation Committees and Constituency Monitoring and Evaluation Committees.

0.2.6.3 Support to Production of Annual and Periodic MDG reports, including MDG+5 Report for
2005

The government in collaboration with other stakeholders produced the 2005 MDG Status Report
for Kenya, and the Status Report for 2007 will be published soon. The MDG contact persons in
line ministries work with the MDG Unit by preparing background sector-based MDG status
reports, and assist in consolidation of sector reports into one national report.

However, the MDG contact persons in line ministries see themselves as providers of information
to assist the MDG Unit to meet international reporting requirements under the MDGs, rather
than as partners. Some officers in line ministries reported that there is lack of knowledge among
service providers (e.g. teachers) on MDGs, hence the need to incorporate the MDG issues within
the education curriculum. The line ministries also reported that there is (a) no support towards

ix
data collection in cases where indicators are not available or information is out of date, and (b) the
MDGs tracking and reporting has not fed back into policy actions to change the course of the
indicators (e.g. through more donor funding).

0.2.7 Promotion of Research, Analytical Work and Policy Advocacy on MDGs

The project document specified two studies, namely, research and analysis on the relationship
between debt, aid and trade and the realization of the MDGs; and participation in relevant
regional and global forums. The Millennium Villages Project is not part of this project, but the
MDG Unit has been borrowing lessons from their experiences and making follow-ups as part of
the general coordination function of the MoP&ND. In 2007, this project partnered with the
Millennium Cities Initiative to assist the Kisumu Millennium City Initiative through promotion of
foreign direct investment and preparation of an MDG-based City Development Strategy.

0.2.7.1 Financing Sources for Achieving the MDGs in Kenya

A draft report of the study on financing sources for achieving the MDGs in Kenya was discussed
in a Project Steering Committee meeting in March 2007, and a revised draft produced in
November 2007. The report states that, although Kenya does not qualify for debt relief under the
current debt relief criteria, it should endeavor to make debt relief a positive source of financing
by, say, working with other interested countries to lobby for revision of criteria under the
Heavily Indebted Poor Countries (HIPC) initiative. It is apparent from the study that Kenya
cannot achieve the MDGs without significant international donor support.

0.2.7.2 Participation in Relevant Regional and Global Forums

The management of the Project Implementation Unit and other stakeholders that partner with
the MDG Unit have made several study tours in different countries to study the experiences of
other countries undertaking similar activities, including visits to Philippines, India and Mongolia
during September-November 2007. The main lesson from India was on the use of citizens report
card as a tool to provide public agencies with systematic feedback from users of public services.
The study tour to Mongolia was to learn from the experience of Mongolia in developing an MDG-
based Needs Assessment and MDG-consistent macroeconomic framework as well as poverty
reduction initiatives undertaken by the Government of Mongolia. The main lesson from the visits
to Philippines, India and Mongolia is probably in the involvement of all stakeholders in the
development process anchored on the MDGs.

0.2.7.3 Lack of Feedback and Feed-Forward Linkages between Research on MDGs and
Policy Actions

The research and analytical work conducted has pointed to the need for more resources towards
the achievement of the MDGs, including enhanced donor support and debt relief. However, these
findings have not found their way into policy, as no donor conference has so far been held on
financing of the MDGs. The current medium-term expenditure framework is based on anticipated
funding from local and external sources, and has not therefore factored in the findings of the
Needs Assessment Study or the draft Long-Term Framework for Action. The research and
analytical work on MDGs national Long-term Framework for Action and financing resources on
MDGs are complete, but have experienced inordinate delays. For such activities, a consultant can

x
only provide an initial document, as a basis for inputs from other stakeholders, including peer
review by research institutions (as anticipated in the project document).

0.3 PROJECT MANAGEMENT, MONITORING AND EVALUATION

In the memorandum signed between the Government of Kenya, Government of Finland and
UNDP, the Government of Finland was to contribute funds to UNDP for the implementation of
the Project; for UNDP to receive, administer and account for the contribution for the execution of
the Project; while the MoP&ND was to implement the MDG project on the basis of an Annual
Work Plan agreed upon by the three parties.

The Project Steering Committee (PSC) is chaired by the Permanent Secretary, MoP&ND. Its other
members are the UNDP Resident Representative, the Ambassador of the Embassy of Finland, and
the Permanent Secretary, Ministry of Finance. The PSC approves the work plan and budget,
reviews progress, and makes recommendations on challenges and actions required. A Project
Implementation Unit (PIU) was created in the MoP&ND for the day-to-day management of the
Project. The MDG Unit currently has three United Nations Volunteers (UNVs).

The PIU is headed by the National Coordinator, who is at the level of Chief Economist and
reports directly to the Permanent Secretary. This gives the MDG Unit leverage as it is not housed
under the Ministrys directorates. Given the workload, it is clear that the Unit does not have the
capacity to deliver fully on its mandate, which currently has a very large field component. The
Project recruited an MDG advisor, but there was no effective supervision of his work. There is a
Project Technical Committee, composed of technical officers from the MoP&ND, UNDP and the
Embassy of Finland, which should be explicitly provided for in the next phase of the Project.

The project has been collaborating with other institutions and Government departments, in
addition to the civil society partnerships that were explicitly provided for in the Project
Document. Within the MoP&ND, the MDG Unit works closely with the Rural Planning
Directorate and the Monitoring and Evaluation Directorate. The project also partners with other
institutions as and when necessary.

The Annual Work Plan and Budget (AWP/B) provides the basis upon which project activities are
implemented. Whereas the PIU has the responsibility of preparing the work plan, activities
cannot continue without the approval of all the parties, and disputes over attempts to introduce
new activities that were not fully provided for in the Project Document (or agreed upon in the
PSC meetings) delayed the work plan for 2006/07 for about five months.

The PIU initiates the process of procuring goods and services, according to government
regulations, and in some cases the PIU requests UNDP to directly procure goods and services on
behalf of the Unit. After the goods and services have been provided, the PIU sends the
documentation to UNDP for direct payment to the suppliers. There were reportedly some delays
in paying suppliers due to the lengthy procurement and payment procedures. UNDP does not
provide financial reports to the PSC in a timely manner.

xi
0.4 SUMMARY OF MAIN RECOMMENDATIONS

The next phase of the project should include the need to have a project technical committee, to
support the project steering committee. A national inter-ministerial steering committee similar to
the one that coordinated MDG-related activities prior to the Project could also be established to
coordinate and give policy direction to the MDG activities at the national level.

The project should create formal links with, and probably support, other departments which have
provided it with infrastructure for its operations, mainly the Rural Planning Directorate and the
Monitoring and Evaluation Directorate. The next phase of the project should also draw on the
expertise of the MDG Centre in Nairobi.

The project should widen the scope of awareness creation to include parliamentarians and local
authorities, due to their seminal role in national and local-level policy formation and allocation of
resources.

The research component should include research grants to scholars and university students, so
that they can do research on practical MDGs-related issues.

The finalization of research outputs should include a wide spectrum of stakeholders so as to tap
into the knowledge base of local and international research institutes, and incorporate views of
other stakeholders within Government and civil society.

The Project should bring the pending studies to a speedy close. In addition, the Government
institutions responsible for macroeconomic modeling (MoP&ND, Kenya Institute for Public
Policy Research and Analysis, Central Bank of Kenya and local university scholars) should receive
the necessary support to enhance their capacity to incorporate MDGs-based planning within the
existing modeling frameworks.

The Government and relevant development partners could organize a donor conference on
financing the MDGs, and lobby for revision of criteria on eligibility for debt relief without
harming Kenyas global credit rating. Such lobby for more funding can be undertaken through the
sector-based development partners coordination groups operating under the Kenya Joint
Assistance Strategy. The Government could also hold discussions with individual donors for
possibilities of debt swaps tied to particular sectors or activities.

The Kenya government and donors should work together to develop a natural resource policy,
and create opportunities and incentives for forestry as business. There may also be need for special
mention of environment conservation in the revised project document.

The mainstreaming of MDGs in planning and policy formulation at the district level should
include both a scaling up process (to more districts within the project) and a rollout
(mainstreaming MDGs through the forthcoming district development plans). There should also be
multiplicity of donors to fund Quick Impact Initiatives identified during the district rapid
assessment exercises.

MoP&ND should work with line ministries and universities to repackage the MDGs so that the
messages are available to service providers, and integrated in the common courses in the local

xii
universities and colleges. Such a package should also include interrelationships between various
millennium development goals, and probably the role of population policy in the achievement of
the goals.

There is need to explore web-based medium of dissemination, as the costs of glossy hard copies
has limited audience and made it impossible to make the IEC component continuous. The
Government could also create a virtual Kenya, since the poor information flow is not limited to
the MDGs or activities related to this project.

The MDG Unit should be strengthened through increased manpower, and other technical,
financial and logistical support, including deployment of more senior officers to the MDG Unit,
technical assistance and contracting out some of the services.

The reports from the civil societies engaged to localize MDGs should be used as the basis for
developing a national IEC strategy, and to inform the nature of civil society partnerships in the
next phase of the project. The starting point could be a structured workshop for the participating
CSOs to share their experiences in identification of target audience for community entry, the
message and the medium, and the relationship between the MDGs and local level cultural and
developmental challenges.

xiii
 CHAPTER ONE

DESCRIPTION OF THE PROJECT

1.1 BACKGROUND AND RATIONALE FOR THE PROJECT

Responding to prevailing economic and socio-political conditions, the Government of Kenya had
undertaken a number of policy reforms aimed at boosting the countrys economy. The policy
documents include (a) the Poverty Reduction Strategy Paper (PRSP); (b) the Economic Recovery
Strategy for Wealth and Employment Creation (ERS) covering the period 2003-2007; (c) a
number of sectoral policies and strategies including the Strategy for Revitalization of Agriculture
(SRA); and (d) institutionalization of Sector Wide Approaches (SWAPs) e.g. the Governance,
Justice, Law and Order Sector (GJLOS) program and development of similar strategies for the
health and education sectors.

The government had put in place the necessary institutional framework with sufficient capacity
to implement the project. A National Steering Committee (NSC) chaired by Head of Public
Service and Secretary to the Cabinet had been established to provide policy direction for the
process at the national level. The membership of the committee comprised of Permanent
Secretaries from relevant sector Ministries implementing MDG-related activities, the United
Nations Resident Coordinator, representatives from multilateral and bilateral development
partners, private sector and civil society organizations (CSOs), and the Kenya Institute for Public
Policy Research and Analysis (KIPPRA). A Technical Committee was established to serve the
National Steering Committee, and its convener was the Permanent Secretary in the Ministry of
Planning and National Development (MoP&ND). These committees were accorded the requisite
facilitation by a Secretariat headed by the National MDG Focal Point Office at the MoP&ND. In
addition to the Government-led processes, a consortium of civil society organizations had
developed a comprehensive draft MDG campaign strategy.

However, despite the Governments commitment to the MDGs, capacity gaps in key public
sectors for mainstreaming the MDGs in policy formulation and planning processes made it
difficult for the Government to meet the set targets. This was exacerbated by inadequate
functional mechanisms for overall MDGs tracking and reporting, gaps in the overall policy
relative to MDGs, coordination of MDGs campaign, and critical analytical work to guide and
inform policy. The Government had proposed measures aimed at mainstreaming the MDGs
within the national policy, planning, budgeting, and monitoring and evaluation processes, and
this project was supposed to provide consistency and internal coherence in the achievement of
this goal.

Mainstream is generally the common current of thought of the majority, and includes
something that is ordinary or usual, familiar to the masses, and available to the general public. For
example, mainstreaming a gender perspective is the process of assessing the implications for
women and men of any planned action, including legislation, policies and programmes, in any
area and at all levels. It is a strategy for making womens as well as mens concerns and
experiences an integral dimension of the design, implementation, monitoring and evaluation of
policies and programmes in all political, economic and societal spheres, so that women and men
benefit equally, and inequality is not perpetuated (UN Economic and Social Council, 1997).

1
Gender mainstreaming goes beyond what Rao and Kelleher (2005) describe as a bean-counting
approach to development deliverables see also Moser and Moser (2005). Gender mainstreaming
is not a goal in itself; it is a means for achieving the goal of gender equality. This is the generic
meaning of mainstreaming within the context of the project on mainstreaming MDGs in
Kenyas development process.

1.2 ACTIVITIES ON THE MILLENNIUM DEVELOPMENT GOALS PRIOR TO THE

PROJECT

The first major activity in domesticating the MDG agenda was a technical workshop held in
September 2002 to serve as a platform for sensitization, sharing of experiences, and renewing of
commitments for immediate and medium term actions related to MDGs in Kenya. The theme of
the workshop was Campaigning for Action: Monitoring and reporting on the MDGs in Kenya.
The main objective of the workshop was to seek consensus and promote understanding of the
significance of the MDGs, their links to the national planning frameworks, and the mode and
frequency of country level reporting. The workshop thus served as one of the first avenues
towards agreeing on a country-level reporting format, including the role of various national
stakeholders. The workshop led to the establishment of a national MDGs Task Force to spearhead
the MDG campaign and prepare the first status report on MDGs in Kenya.

The preparation of the first report on Kenyas scorecard in the achievement of the MDGs was
started in 2002. The technical working group (TWG) consisted of persons from key ministries,
and included private sector and civil society representatives. The TWG used to meet twice a
month to review progress.

When the new Government came to power in January 2003, a meeting was organized in Treasury
by the MoP&ND to present the findings of the draft MDG report as a key plank in charting the
way forward in creating a new blueprint for Kenyas economic reconstruction and recovery. A
stakeholders workshop held in February 2003 to recommend on appropriate monitoring and
evaluation (M&E) mechanism for the PRSP and the draft Economic Recovery Strategy for Wealth
and Employment Creation (popularly known as ERS) included the draft MDG report as one of the
background documents. The ERS drew from the draft Kenya progress report on the millennium
development goals, and consequently the ERS has some focus on MDGs. The first MDG Progress
Report for Kenya was officially launched in July 2003. In addition, the second United Nations
Development Assistance Framework (UNDAF) for Kenya was launched soon after the
Government launched the ERS, and both policy documents share similar vision and agenda for
Kenyas political and socioeconomic development.

In May 2004, the Minister for Planning and National Development officially launched the MDG-
based planning and budgeting process, which was soon followed by a national stakeholders
workshop to discuss the Concept Paper on the Needs Assessment and Costing Study. In October
2004, UNDP funded the preparation of sector-based studies on the cost of achieving the MDGs,
which covered the first seven goals. Goal 8 focuses on relationships, and identifies various aspects
of the global partnership for development that should be forged to support the realization of these
global benchmarks.

Several Government policy statements were in support of programmes and initiatives aimed at
meeting the MDGs. In December 2004, a Treasury Circular advocated for more resources to be

2
allocated to MDGs and core poverty programmes (CPP), a policy that was reaffirmed by the
February 2005 Budget Outlook Paper. In March 2005, Cabinet also made a decision to mainstream
MDGs within the national planning, budgeting, and monitoring and evaluation frameworks.

This project was to build on, and take to its logical conclusion, the ongoing comprehensive
assessment of investment requirements needed at the country level to meet the MDGs. The Needs
Assessment has as its essential elements the enumeration of interventions needed to meet the
MDGs and their associated costs as well as an elaboration of a simple financing strategy for
mobilizing the necessary resources.

1.3 DESCRIPTION OF THE PROJECT ACCORDING TO THE PROJECT DOCUMENT

1.3.1 Overall Objectives and Indicators

The overall objective of the project was to institutionalize and mainstream MDGs-based planning,
policy formulation, budgeting, monitoring and reporting processes in the country. The specific
process/broad outputs of the project are:

Capacity of key public sectors developed for mainstreaming the MDGs in policy formulation,
planning processes and programme implementation, and of CSOs and private sector to
participate in those processes;
Awareness created on MDGs and proposals of CSOs for local campaigns implemented;
Report on MDGs-based Long-Term Framework for Action finalized;
Report on revision of ERS, MTEF to achieve the Long-Term Framework for Action finalized
and alignment of the ERS and MTEF to the MDGs completed;
Integration of MDG indicators into M&E framework completed and progress towards meeting
the MDGs monitored and reported on regularly for purposes of influencing policy;
Policy research and analysis on MDGs, including Goal 8 on global partnership for development,
conducted and results discussed in relevant forums.

1.3.2 Expected Outputs/Outcomes/Results

The expected project outputs/outcomes are as follows:

1.3.2.1 Capacity for MDG Mainstreaming in Policy Formulation Improved

Technical, planning and finance officers in line ministries, and Parliamentarians will be sensitized
about the MDGs and their linkages to the ERS, MTEF, the budgeting process, and the Public
Expenditure Review (PER). Sensitization and training workshops will be held. Key staff from line
ministries having participated in those workshops will, in turn, sensitize and train District
Development Officers (DDOs), members of the District Planning Committee, sector heads,
members of Constituency Development Fund committees and other funding committees, heads of
county and municipal councils as well as members of CSOs, and the private sector in the districts,
on the MDGs and their linkages to the ERS, MTEF, and, importantly, the budgeting process.
Through these workshops, capacity of all stakeholders will be increased to participate together in
policy formulation and implementation.

3
1.3.2.2 MDG Campaign Strategy Undertaken and Awareness on MDGs Created

The achievement of the MDGs will depend largely on the extent to which all national
stakeholders, especially local communities, are aware of the MDGs and importantly, their
respective roles and responsibilities, as well as expectations from other stakeholders, and thus
beginning to hold others to account. This will be an important contribution to the fight against
corruption, which can only be won if people at all levels start to ask questions. And the MDGs,
which represent the basic necessities of life and are achievable, measurable and time-bound, are
an excellent tool to do this. In this regard, a national information, education and communication
(IEC) campaign strategy, focusing mainly on sub-national level activities, will be developed and
implemented by the Ministry of Planning and National Development in a participatory manner.
The CSOs will play a critical role in this regard. The CSOs have done some initial work on a MDG
campaign strategy, but the strategy needs to be further developed and the production of IEC
materials supported through this project. Another part of the funds will be set aside for CSOs to
submit proposals on how to implement campaigns at the local level. Proposals will be selected, on
a competitive basis, by a MDG Campaign Steering Committee, with members coming from the
civil society, MoP&ND and UNDP-Kenya. Funds will be given to the CSOs on a grant basis. The
activities of the CSOs selected will be monitored and evaluated by this MDG Campaign Steering
Committee. Information collected by the Government and other sources about funding for MDG-
based priority actions on the local level through non-government sources will be provided to the
CSOs.

1.3.2.3 National Long-term MDGs-Based Framework for Action Developed

The results of the Needs Assessment costing and simple financing strategy will be used to
inform the production of a National Long Term MDGs-Based Framework for Action, identifying
the full range of policies, public investments, public management and institutions needed to meet
the MDGs. The long-term Framework for Action will subsequently inform allocation, tracking
and reporting on resource use for poverty alleviation in general, and meeting the MDGs in
particular, within the framework of the Economic Recovery Strategy, Medium Term Expenditure
Framework, and Public Expenditure Review. The plan will also form the basis for sustained policy
advocacy and dialogue on MDGs, both at the national and international levels.

1.3.2.4 Medium Term MDGs-Based Development Strategies Revised

Medium term planning within the framework of the Economic Recovery Strategy/ Poverty
Reduction Strategy as well as sectoral plans will be developed/ revised based on the long-term
Framework for Action referred above. As the work on the MDGs proceeds within the framework
of the Sector Working Groups, MDGs will eventually be mainstreamed within the budgeting and
budget monitoring frameworks, in particular the MTEF and PER. And, importantly, the ERS will
be aligned to the MDGs.

1.3.2.5 MDG Tracking Undertaken and Progress Reports Produced

To bring on board sub-national perspectives gathered as a result of the national campaign

mentioned above, MDG indicators will have to be integrated into the national and sectoral
monitoring and evaluation frameworks. A first Progress Report for Kenya on the MDGs up to

4
2003 has been prepared by MoP&ND and UNDP-Kenya. The Needs Assessment Report still has to
be finalized. Further periodic reports, based on the results of continuous research, analysis and
monitoring, will be issued for purposes of highlighting the status of each of the goals and
indicators. The reports will be tailored to the particular needs of the different stakeholders - local
communities, policy makers, lawmakers, researchers and development practitioners. Importantly,
this project will support the preparation of the MDG+5 Progress Report for Kenya for
presentation to the UN General Assembly in September 2005 as well as the side events planned,
including the presentation of the MDG+5 Progress Report to development partners at a
roundtable event.

1.3.2.6 Policy Research and Analysis on MDGs Promoted

There will be continuous research and analysis of policy issues related to MDGs both in terms of
content and processes to enrich the national level understanding of MDGs and open new frontiers
on knowledge for proper targeting of efforts towards the realization of the goals. Research and
analytical work will play a supporting role in promoting evidence-based policy formulation
process, improving understanding of the critical variables interplaying in MDGs, identifying the
preconditions for success, developing practical conceptual frameworks and methods for strategic
analysis, and strengthening the capacity of specific sectors to formulate and implement strategies,
drawing on these frameworks and methods. The research, analysis and policy advocacy
component shall further provide a better understanding of the interface between economic
principles and governance institutional arrangements as they relate to the international systems.
Financing is a crucial element in meeting the MDGs. Research on the relationship between debt,
trade and aid is therefore important and could be used by the Government to improve its
negotiation skills in upcoming trade rounds as well as in discussions about debt cancellation. This
component will be implemented by local institutions, including the Kenya Institute for Public
Policy Research and Analysis (KIPPRA) and the Resource Management and Policy Analysis
Institute (REMPAI), in partnership with the United Nations University World Institute for
Development Economics Research (UNU-WIDER) in Helsinki, Finland.

1.3.3 Activities

To achieve the results/outcomes/outputs enumerated above, the following activities will be

undertaken:

1.3.3.1 Capacity Building for Mainstreaming the MDGs in Policy Formulation and Planning
Processes

Identification and training of staff at MoP&ND, MoF to conduct sensitization and training
workshops at line ministries;
Sensitization and training workshops for technical, planning and finance officers in line
ministries, and for Parliamentarians, on MDGs, ERS, PER and MTEF and their linkages,
advocacy and mainstreaming;
Identification and further training of key staff at MoP&ND, Treasury and line ministries to
conduct sensitization and training workshops with public officials, local CSOs, and the private
sector at the district level;
Sensitization and training workshops for District Development Officers, members of the
District Planning Committee, sector heads, members of Constituency Development Fund

5
 committees and other funding committees, heads of county and municipal councils as well as
members of CSOs and the private sector active in the districts, on MDGs, ERS, PER and MTEF
and their linkages, advocacy and mainstreaming as well as prioritizing MDG projects in the
budgeting process;
Provision of relevant campaign and awareness materials on MDGs developed as described
below

1.3.3.2 Undertaking MDGs Campaign and Awareness Creation

Provision of support to the development of a national MDG advocacy and campaign strategy by
MoP&ND;
Organization of a stakeholder meeting to review and critique national MDG advocacy and
campaign strategy;
Development of Government campaign materials and messages;
Provision of support to the development of a MDG advocacy and campaign strategy by CSOs, in
particular development of IEC materials;
Establishment of a MDG Campaign Steering Committee to guide the process of selecting CSOs
to propose and implement innovative local campaigns;
Provision of grants to CSOs selected by MDG Campaign Steering Committee;
Monitoring and evaluation of CSOs activities by MDG Campaign Steering Committee

1.3.3.3 Development of a National MDG-based Long-Term Framework for Action

Identification of relevant personnel and centers of excellence;

Provision of support to research and analysis of needed interventions and discussion in sector
working groups;
Provision of support to production of a report on long-term Framework for Action based on the
Needs Assessment;
Organization of stakeholder meetings to review and critique Framework for Action;
Printing and dissemination of Report

1.3.3.4 Development of a Medium-Term MDGs-Based Poverty Reduction Strategies

Organization of workshops and seminars with MoP&ND, MoF, and line ministries on
alignment of ERS/MTEF to MDGs;
Provision of support to revision of ERS, MTEF based on Long-Term Framework for Action

1.3.3.5 MDGs Tracking and Reporting

Provision of support to the finalization of the Needs Assessment Report;

Integration of MDG indicators into the national (ERS/MTEF) and sectoral monitoring and
evaluation frameworks;
Provision of support to data and information gathering and processing;
Research and analysis of policy matters related to MDGs to deepen and update stakeholders
understanding of the issues;
Provision of support to production of annual and periodic MDG reports, including MDG+5
Report for 2005;

6
 Preparation of side events in New York and presentation of the MDG+5 Report to development
partners

1.3.3.6 Promotion of Research, Analytical Work and Policy Advocacy on MDGs

Provision of support to policy research and analysis on MDG-related issues to promote policy
debate and dialogue;
Identification of ways to exploit cross-country regional dynamics that arise from externalities in
technology and trade within sub-regions;
Analysis of best mixes of policies (from macro to micro) for achieving specific targets in
different goals, and the tradeoffs and complementarities that arise between these goals;
Analysis of governance and institutional requirements for successful sustainable development
in different sectors, including trade;
Provision of support to research and analysis on the relationship between debt, aid and trade
and the realization of the MDGs;
Compilation and refinement of practical analytical tools relevant to the planning needs of
Kenya cross-referenced against Global Partnerships;
Development of national monitoring and evaluation systems to assess performance against
planned goals (to fit into ongoing works in national M&E framework);
Institutionalization of these components in national institutions (such as in Government
ministries and universities) through appropriate training and transfer of knowledge; and
Participation in relevant regional and global forums

7
 CHAPTER TWO

PROJECT PERFORMANCE BY OUTPUT

2.1 CAPACITY BUILDING FOR MAINSTREAMING MDGs IN POLICY FORMULATION

AND PLANNING PROCESSES

2.1.1 Enhanced Delivery of MDGs in the Nine Millennium Districts

2.1.1.1 Rationale

The necessary conditions for meeting the MDGs in any economy are a conducive policy
environment; adequate resources, well targeted and efficiently administrated; and active and
focused engagement of all stakeholders including Government, CSOs, the private sector,
development partners and communities. To localize MDGs at the district level, it was important
to take the MDG messages to lower levels and engage all stakeholders through continuous
campaigns and advocacy, address the institutional arrangements for development at the district
and lower levels, develop MDG-based district strategic plans in a participatory process, inculcate a
culture of a results-based management in the districts, and strengthen the monitoring and
evaluation system at the district level to target MDGs.

Although this activity was not in the project document, the Project Steering Committee decided
in September 2006 to enhance delivery of MDGs to cover all districts, starting with nine districts
on a pilot basis. This was followed by a two-day stakeholders workshop held in October 2006
that endorsed the new district-based framework for enhanced achievement of MDGs at the local
level. The participants were drawn from UNDP, MoP&ND, Embassy of Finland, Ministry of
Finance, Government line ministries headquarters and district departmental heads from selected
districts (e.g. gender and social services, roads and public works, health, water and irrigation,
livestock and fisheries, education, agriculture, environment and natural resources, information),
Kenya National Bureau of Statistics (from the districts), universities, NGOs and CBOs, and United
Nations Volunteers (UNVs) working in the UNVIS project districts.

2.1.1.2 Selection of the Nine Millennium Districts

According to the 2003 and 2006 Annual Reports of the UN Resident Coordinator System-Kenya,
the Bondo Model, now renamed UN Volunteer Intermediation Strategy (UNVIS), is a project in
Bondo District, which was identified by the UN in Kenya to test a decentralized participatory
development approach based on the district PRSP (see also United Nations Development
Assistance Framework-Kenya 2004-2008; and United Nations Development Programme, 2007a).
The Bondo Model was a methodology for creating linkages between government resources and
grassroots needs, and was supposed to be replicated elsewhere based on the experiences. The
Models strategy was to use United Nations Volunteers to facilitate intermediation between civil
society and the authorities; helping CBOs and local NGOs to write project proposals that fit the
criteria of the various funding mechanisms; establishing accounting, monitoring, training,
evaluation and informal mechanisms to help the CSOs measure their progress or lack of it; and
more generally, building up capacity within the informal sector to drive development in its sector
or location.

8
The United Nations Volunteer Intermediation Strategy (UNVIS) project, established in June 2004,
built on a joint UN decision to foster institutional capacities at the district level, based on
institutional challenges identified at this level during the Kenyas Poverty Reduction Strategy
Paper formulation process. The project has been supporting national efforts in combating poverty
and improvement of livelihoods, development of district and community capacities for effective
decentralization, as well as enhancing community access to information and other strategic
resources. The project aimed at strengthening the capacity for decentralized and participatory
development and is situated in 8 districts across the country, namely, Bondo, Bungoma, Garissa,
Kilifi, Meru South, Muranga, Suba and Turkana districts, that were chosen based on their
geographic distinction (being in different provinces), and existence of UNDP programmes and
projects and infrastructure in those areas. Further, by the time the districts were being selected
they had higher prevalence of poverty in the respective provinces, based on the 1997 Welfare
Monitoring Survey.

There are other activities by the United Nations family in the same districts. For example, the
Poverty Environment Initiative (PEI), which aims to support the mainstreaming of environment
into pro-poor development planning, policy and budget processes in Kenya, has supported the
National Environmental Management Agency (NEMA) in the preparation of District
Environment Action Plans for Bondo, Muranga and Meru South districts (see Poverty
Environment Initiative Kenya: Annual Progress Report, August 2005 to June 2006). The PEI is
implemented by the MoP&ND (the Rural Planning Directorate) in collaboration with the
Ministry of Environment and Mineral Resources and NEMA.

The MDG Centre in Nairobi, established in 2004 by the Earth Institute at Columbia University
and the UN Millennium Project as the MDG Technical Support Centre, focuses on linking global
and national MDG commitments with rich experience from the Millennium Villages Project. The
Millennium Villages Project is fighting poverty at the village-level and is proving that meeting
the MDGs in rural Africa is possible through community-led development. By combining
practical technologies in a targeted, holistic manner, the project is making remarkable progress in
food production, disease control, clean water, and access to roads and power. Bar Sauri
millennium village in Siaya district is a village of about 5,000 people in Western Kenya. The Earth
Institute began working with the Bar Sauri village community in 2004 to initiate a
comprehensive, integrated development program that came to be known as the Millennium
Village initiative. The positive experiences and lessons learned in Bar Sauri are helping to catalyze
support from the government, which took the initiative to expand the project to the district level.
The nine Millennium Districts are Siaya (where Bar Sauri is located) and the eight districts where
the UNVIS project is operational. Siaya was not originally part of the UNVIS activities, but is now
part of the districts in the MDGs mainstreaming process.

2.1.1.3 The Implementation of the MDG-based District Programme

The implementation of the MDG-based district programme took place during April-October 2007
and envisaged three main stages of activities. First was a two-day interactive and consultative
forum to brief government departmental heads at the provincial and district levels on Results
Based Management, including Performance Contracts, District Focus for Rural Development, the
Millennium Development Goals, implementation of the National Integrated Monitoring and
Evaluation System (NIMES), and capacity building for the Rapid Results Initiative. This forum
was held at the provincial headquarters after which a smaller team proceeded to the district level.

9
Second was district-level action in the nine millennium districts to build the capacities of the
district administration. This took the form of district briefings of all departmental heads, other
senior Government officials, divisional heads and key representatives of non-state actors, with a
view to building capacity and development of MDG-based strategic plans. The third phase was a
three to five-day working session at the district-level to carry out rapid assessment exercises to
identify Quick Impact Initiatives or Quick Wins (broadly defined as viable MDG-based projects
that could have a quick impact in changing the lives of the communities) that could be
implemented directly under the project or through line ministry expertise at the district level to
accelerate local level MDG realization. The districts covered were Bondo, Bungoma, Garissa,
Kilifi, Meru South, Muranga, Siaya, Suba and Turkana.

Each district rapid assessment report included a district profile (similar to those in the District
Development Plans), the challenges the district faces for each millennium development goal
(including baseline indicators where available), ongoing and proposed interventions by
Government departments in the district, collaborating partners (including nongovernmental
organizations), cost summary of proposed projects for Quick Impact Initiatives towards the
achievement of the MDGs, emerging issues, and recommendations. Below is a Table showing the
challenges facing the realization of MDGs in Kilifi district.

Table 1: Challenges Facing the Implementation/Realization of MDGs in Kilifi district

GOAL
Goal 1: Eradicate extreme
poverty and hunger
Goal 2: Achieve universal
primary education
Goal 3: Promote gender equality
and empower women
CHALLENGES
Inadequate market access of farm and fisheries produce hence low
incomes
Low agricultural productivity and output due to underutilization of
resources, bad climatic conditions and poor agricultural and animal
husbandry practices
Inadequate access to agricultural information
Inappropriate land use practices
Inadequate affordable credit and inputs to farmers
Gender disparity - 70% of productive labor force is female, yet they
do not own or control the production resources
Weak institutional framework
Inadequate storage and processing facilities
HIV/AIDS pandemic which has left the productive age sickly, hence
cannot work or partake in income generating activities
Poverty hence parents cannot afford to educate children; instead they
end up in child labor to earn extra income for the families
Teenage pregnancies and early marriages
Child labor/prostitution that keeps children out of school
Inadequate infrastructure e.g. toilets, desks
Diseases like malaria, bilharzias and worms
Orphans due to HIV/AIDS
Early marriages which disadvantage girls as they are married off early
before they finish or continue with their education
Retrogressive cultures that favor males over females in terms of
opportunities
Early and unwanted pregnancies which lead to high dropout rate of
girls from school

10
 GOAL
Goals 4 and 5: Child and
maternal health
Goal 6: Combat spread of
HIV/AIDS, malaria and other
diseases
Goal 7: Ensure environmental
sustainability
CHALLENGES
Staff shortage in medical institutions
Erratic drugs and non-pharmaceutical supplies
Inadequate equipment in the health facilities
Unfavorable procurement procedures which are long and
cumbersome and delays in purchase of essential drugs and equipment
Inadequate staff capacities in terms of experience
Inadequate health facilities/poor access
Cultural beliefs and practices hindering seeking of health services
Poor customer care by health workers which deters people from
seeking medical attention
High illiteracy amongst adults which leads to lack of awareness of
available medical services
Poverty which makes seeking medical services a challenge
Poverty which leads to risky sexual behaviors that encourage the
spread of HIV
High illiteracy rates which make HIV/AIDS education a challenge
Early marriages
Low staff morale in health institutions
Drug and substance abuse
Inappropriate hygiene practices
Retrogressive cultural practices which encourage spread of diseases
Poor behaviors in seeking medical services
Child prostitution
Poverty which leads to practices that destroy environment like
charcoal burning
Soil erosion
Mining/quarrying and sand harvesting
Rapid population increase leading to pressure on available land
resources
Unpredictable weather conditions
Late distribution of government resources and unfavorable
procurement procedures

Source: Implementation of the Provincial/District-Based MDGs Programme, A Report of the

Rapid Assessment of MDGs in Kilifi District, Ministry of Planning and National Development,
May 2007

2.1.2 Capacity Building for Civil Society Organizations for Advocacy on MDGs

In 2005, a national CSOs meeting was held to develop a strategy for CSOs engagement with the
Government-led MDGs process, as part of preparations for the September 2005 UN Summit. The
meeting reviewed CSOs/NGOs achievements and challenges in the MDGs arena, made
substantive comments on the draft Kenya MDGs Needs Assessment report, outlined a strategy for
district-focused MDGs process, and agreed on a framework for CSO/NGOs engagement at
national, district and location levels.

A follow-up meeting with seven district-based UNVs, which also served as a training forum, was
held to review district level initiatives and develop an action plan for creating awareness and
building the capacities of local level actors to promote the attainment of the MDGs. Following

11
these meetings, two consultancy assignments were commissioned as a result of which two
comprehensive reports were produced one focusing on national level issues of CSOs
participation in planning and budgeting processes, and the other on district-level capacity
development needs for the achievement of the MDGs.

The MoP&ND prepared the concept note for engagement of CSOs/NGOs in achieving the MDGs
under the ministerial IEC strategy in August 2006. The concept of localizing MDGs through the
civil society centres on discussing and deliberating on the global goals and national programs at a
community level and to assessing what is relevant for the local context, setting priorities, and
strategies of achieving them. The MDGs need to be interpreted and owned locally.

At the community level, the institutions that fall within the definition of civil society include
community-based organizations (CBOs), social mobilization networks, agricultural cooperative
movements, utility/amenity user groups (e.g. in water) and others. For the localization process to
be successful, all these types of CSOs and other relevant local actors must be included in the
dialogue surrounding MDG planning, advocacy and implementation.

The CSOs have the network and capacity to work at the grassroots level. By breaking the
perception of MDGs as technical, neutral and universal targets, CSOs can promote the possibilities
of a unifying framework, within which individual communities can be empowered to set their
own choices and priorities. In activities in the nine Millennium Districts, a significant number of
CSOs were actively involved in complementing government department initiatives in formulating
district-based MDG plans.

The involvement of CSOs is for them to act as partners in localizing MDG-based development
strategies through civic education efforts to empower local citizens, both individually and as a
community. The involvement of non-state actors in development initiatives is important to
enhance ownership, participatory governance and civic engagement. The Government will focus
on strengthening the district authorities to mainstream MDGs into their development processes,
while the CSOs will help to encourage the communities to be more involved. In the process,
MDGs will be set under a national framework in the context of local reality, aspirations and
priorities, which will make the achievement of MDGs more effective. The GoK-CSO partnership
on localization of MDGs helps to raise awareness on MDGs and encourages communities to hold
the Government responsible for delivering results.

2.1.3 Building Capacities of Local Level Actors

Capacity development activities were undertaken in the nine millennium districts bringing
together all actors. The main outputs were (a) district specific medium-term draft MDG-based
plans and strategies; (b) formation of District Steering Committees to spearhead the MDGs
campaign and coordination of the MDG-based activities; (c) developed capacities of local level
actors on effective participation in the MDGs implementation process through training and
provision of information; and (d) initiated the process of awareness raising and campaigning for
the MDGs at the district level.

The challenges in building local level capacities for mainstreaming MDGs occur at various layers,
including Government district-level management and civil society organizations. According to

12
information culled from the various reports in the MDG Unit, the challenges the project has faced
in building capacities at the local level include:

District-level:
Lack of (disaggregated) data (by region/district and gender) at the national and district levels;
Substantial underutilization of budget allocations for investments in all MDG-related sectors by
line ministries;
Poor coordination and limited popular participation in the management of devolved funds,
especially Constituency Development Fund (CDF) and Local Authority Transfer Fund (LATF);
Inadequate information gathering, processing and reporting systems, including lack of
benchmarks and parameters for assessing and evaluating progress;
Insufficient human and financial resources for the office of the District Development Officers
for effective coordination of development activities in the district

Civil society organizations:

Sporadic participation of CSOs in the budget process and lack of appreciation of such
participation on the part of government officials;
Limited capacity of CSOs in policy and budget analysis;
Limited organizational, advocacy and lobbying skills of CSOs in moving MDGs and
development agenda forward at the district level;
The upsurge of briefcase NGOs, or one-person show NGOs, which are poorly managed

District-level government staff and civil society organizations:

Lack of awareness on the MDGs themselves and linkages to locally available resources for
achieving them;
Limited programme/project management and human resource capacity;
Inadequate sharing of information between line ministries and civil society organizations

2.2 UNDERTAKING MDGs CAMPAIGN AND AWARENESS CREATION

According to the Project Document, the activities under this component were provision of
support to the development of a national MDG advocacy and campaign strategy by MoP&ND;
organization of a stakeholder meeting to review and critique national MDG advocacy and
campaign strategy; development of Government campaign materials and messages; and provision
of support to the development of a MDG advocacy and campaign strategy by CSOs, in particular
development of IEC materials. The project document envisaged the establishment of a MDG
Campaign Steering Committee to guide the process of selecting CSOs and monitoring and
evaluation of the CSOs activities in local campaigns under grant funding, but this process was
undertaken by the Project Steering Committee with the support of the Ministerial Tender
Committee.

2.2.1 Development of MDG Campaign and Advocacy Strategy

An information, education and communication (IEC) strategy, incorporating the MDGs, ERS, and
the African Peer Review Mechanism (APRM), has been developed. The strategy targets all
segments of society and provides MDG information in a manner that is stimulating and
appropriate to each sector. Other IEC materials produced so far include MDG wall and desktop
calendars, diaries, copies of the MDG Needs Assessment Report, copies of the Kenya MDGs Status

13
Report for 2005, MDGs brochures, copies of the MoP&ND Planning Bulletin, MDG posters, and
500 copies of MDG documentary on DVDs (which were produced in September 2006 and widely
disseminated during the Africities Summit held in Nairobi during the same month). A newspaper
supplement was placed in two leading dailies in January 2007 to showcase some of the best
practices on MDGs. There have also been many discussion forums on MDGs in the electronic
media and a wide coverage of MDG issues in the print media.

2.2.2 MDGs Awareness and Advocacy through the Electronic Mass Media

In August 2006, the Ministry of Planning and National Development initiated a process of
developing packaged media programs for nationwide broadcast on selected local radio and
television channels, as part of the wider campaign on mobilizing the nation for the cause of MDGs
in Kenya. Specific objectives of the campaign were to raise national awareness of the utility of
using the MDGs as a framework for Kenyas development concerns, to localize the MDGs and
instill a sense of ownership, to increase public space for debate on shaping policies for national
development, and to mobilize critical mass of supporters at all levels for the MDG cause.

In September-November 2006, there were 30 prerecorded MDGs promotional spots on radio of

between 30 and 45 seconds each. Broadcast of the radio programs started on 7th October 2006
with the live ones aired each Saturday from 6 pm to 7 pm up to 25th November 2006. The radio
programs were in Kiswahili. To enhance better understanding, the Ministry of Planning and
National Development made arrangements with other relevant Ministries, civil society
organizations and development partners to lead in the discussions from Kenya Broadcasting
Corporation (KBC) studios. All the 8 programs were broadcast, with clear success on targeted
audience noted through active participation during the call-in sessions by people in the rural areas
especially from arid and semi arid areas. The broadcast of the promotional spots was completed in
November 2006, bringing an end to this phase on radio broadcast.

Ten programs were scheduled for broadcast on local TV channels. The Ministry of Planning and
National Development made arrangements with a media consulting firm, Montage Media Services
Ltd, which produced the programs and made arrangements for broadcast. The TV broadcast of the
MDGs media programs used the KBC and Kenya Television Network (KTN), both of which have
nationwide coverage. The broadcast of the programs commenced on 16th October 2006, with ten
programs broadcast as at end of year 2006.

2.2.3 MDGs Advocacy through the National Schools Drama Festivals

The Annual Schools Drama Festivals presented a unique opportunity for promoting knowledge
and awareness on the MDGs among Kenyans in general and particularly to the youth who are the
major participants in the events; and who also stand to play a major role in future towards
achieving the Goals. The specific objectives of advocacy through schools drama festivals were to
create the necessary awareness and understanding of all the MDGs and the usefulness of using the
MDGs as a framework for Kenyas development concerns; to enhance advocacy on mobilization
of private and public resources to support implementation of pro-MDG activities; and to increase
space for debate on how to align the MDGs activities to development policies.

The MoP&ND made a formal request to the Ministry of Education in July 2006 for incorporation
of the MDGs themes into the performing arts competitions for 2007. The MoP&ND partnered

14
with the Ministry of Education to partly support the March 2007 Annual Drama Festivals at both
the national and provincial levels, and presented national and provincial prizes to the schools that
presented the best production on drama focusing on any of the MDGs themes, with separate
trophies for primary schools, secondary schools, and colleges.

2.2.4 Support to the Development of a MDG Advocacy and Campaign Strategy by CSOs

CSOs have for a long time been key development actors in Kenya and have been actively involved
in the MDGs process through their programmes and in some cases jointly with the government,
though not always in a precisely structured manner. For example, in 2004-05, the CSOs joined
hands with the Government to prepare the 2005 MDGs Status and MDG Needs Assessment and
Costing reports. Various MDGs stakeholders fora organized by the Government have also
benefited immensely from invaluable input of the CSOs.

In September/October 2006, the MoP&ND advertised in three dailies request for proposals (RFP)
for NGOs to express interest for MDG advocacy and outreach. Thirty six NGOs submitted their
proposals, and a committee was set up to evaluate the proposals, and shortlisted five that met the
requirements. However, after careful review of the selected proposals, the Ministerial Tender
Committee advised that the process be reviewed to ascertain whether the CSOs selected were
operational in the areas they expressed interest in, and the implications of having no organization
among the qualifiers expressing interest for Coast Province.

The Government re-advertised for fresh requests for proposals in July 2007, where 149 CSOs
expressed interest to partner with the Government, and the final evaluation selected 26 NGOs
that would propagate a partnership on localizing MDGs in 28 districts. The specific tasks assigned
the participating CSOs are preparation and dissemination of MDGs IEC materials that are
sensitive to respective communities in the districts covered. They include billboards, fliers and
posters, brochures, MDGs radio talk shows on regional vernacular FM stations, stakeholder
meetings at the grassroots, and advocacy in organized community groups. Where necessary, they
would translate the IEC materials into indigenous languages of communities native to the districts
covered. They are supposed to work closely with District Development Officers in the respective
Districts.

The assignment includes developing of work plans and budgets outlining methodology, process
and detailed activities highlighting the outputs; design and print of IEC materials with MDGs
messages for wide dissemination within the district covered; and organizing and holding local
stakeholder consultative brainstorming sessions on MDGs to deepen understanding and enhance
active participation on aspects that are key to achievement of the MDGs at the local level.
Further, if need arises, the CSOs may be asked to carry out additional work, upon necessary
consultations. The official launch of the government-civil society partnership on localizing MDGS
took place on 12th March 2008, and involved the CSOs that have been selected to undertake the
exercise. The launch was undertaken after a two-day training of participating CSOs on peace
building and conflict resolution, to (a) reestablish the significant role of CSOs in post-conflict
reconstruction, peace-building and conflict management, and (b) to introduce and define linkage
and role of positive peace in achievement of short-term and long-term national development.

15
2.3 DEVELOPMENT OF A NATIONAL MDGs-BASED LONG-TERM FRAMEWORK FOR
ACTION

The September 2005 UN Summit recommended that each country take primary responsibility for
its own development through the development of sound national policies and development
strategies so as to achieve sustainable development. To this end, the Summit resolved that, by
2006, countries adopt and implement comprehensive national development strategies to achieve
the agreed development goals including the MDGs 1. Coincidentally, the development of a
national MDGs-based long-term plan (later renamed Framework for Action) was a part of the
project on mainstreaming MDGs in the development process, which had already commenced.

In 2006, the Government initiated a process of developing a national long-term plan for the
implementation of the MDGs. The purpose of developing an MDG-based long-term plan is to
enhance longer term strategy of planning and resource allocation to tackle poverty and other
development objectives that cannot be achievable within the current annual and medium-term
planning cycles. The development of the long-term plan coincided with the preparation of Vision
2030, Kenyas development blueprint to the year 2030. Although the planning horizon for the
two reports differ (up to 2015 for the MDGs long-term plan and up to 2030 for Vision 2030), the
objectives of the two plans are in harmony, hence the need to align the MDGs long-term plan
with Kenyas Vision 2030.

A consulting firm was competitively identified and engaged in December 2006. The consultants
presented the first draft report to the Project Steering Committee in March 2007, during which a
number of recommendations on improvement were made. A revised draft was submitted in
September 2007 (Health and Economics Development Consortium, 2007a), but a few changes
were recommended before the report is shared with other stakeholders.

The draft MDGs Long-term Plan also provides a financing strategy comprising cost estimates for
its implementation. The sources of financing include extra domestic financing (extra tax revenue
generated from improved economic growth and efficiency in tax administration), Official
Development Assistance (especially grants), debt relief, and other sources (nongovernmental
organizations and community support through cost-sharing).

1
At the 2005 World Summit, the United Nations General Assembly reaffirmed that each country must
take primary responsibility for its own development and that the role of national policies and development
strategies cannot be overemphasized in the achievement of sustainable development; and recognized that
national efforts should be complemented by supportive global programmes, measures and policies aimed at
expanding the development opportunities of developing countries, while taking into account national
conditions and ensuring respect for national ownership, strategies and sovereignty. To this end, it was
resolved to adopt, by 2006, and implement comprehensive national development strategies to achieve the
internationally agreed development goals and objectives, including the Millennium Development Goals
(Resolution adopted by the General Assembly A/RES/60/1 dated 24 October 2005).

16
2.4 DEVELOPMENT OF A MEDIUM-TERM MDGs-BASED POVERTY REDUCTION
STRATEGY

2.4.1 Support to Ministry of Finance and Line Ministries on Alignment of ERS/MTEF to MDGs

In November 2005, the MDG Secretariat organized a two-day workshop for representatives of
various budgetary committees that included sector conveners, co-conveners, MTEF officials,
Macro-planning department (in MoP&ND), other senior government officials, and representatives
of professional organizations. The workshop attracted 51 participants. The objective of the
workshop was to find appropriate mechanisms for mainstreaming the MDGs in Kenyas planning
and budgetary processes. This was followed by the February 2006 workshop for planning and
budget officers from line ministries on the same agenda; and a retreat the same month for senior
management of MoP&ND to assist them to understand MDGs and the process of mainstreaming
them in the planning and budgeting process.

Four provincial workshops were held in April-May 2006 (in Kisumu, Nakuru, Embu and
Mombasa) that targeted provincial and district officers, departmental heads (in planning, health,
water, education, agriculture, roads, environment), and local authorities from the whole country.
These groups were selected due to the central role they play in planning and budgeting at this
level, and their ability to mobilize the private sector and civil society within their jurisdictions.
The workshop content included background on MDGs, MDGs process in Kenya and their linkage
with the national development framework, enhancing coordination at the local level to meet the
MDGs, perspectives from the MDG Needs Assessment and Costing Study, allocation of resources
among competing priorities (including addressing the MDGs through the MTEF process),
campaigning for the MDGs, and mainstreaming HIV/AIDS into sub-national planning, budgeting
and other resource allocation mechanisms.

2.4.2 Policy Statements on Alignment of the Planning and Budgeting Process to MDGs

The Kenyan budget timetable starts in September (e.g. September 2007 for the 2008/09 budget) to
allow sufficient time for all stakeholders to be involved in the planning process. The Budget
Outlook Paper (BOPA), prepared in October-November, identifies the macroeconomic and fiscal
framework for the medium term, and highlights the indicative ministerial ceilings to provide
guidance to line ministries in the preparation of their MTEF budgets. In November, a Treasury
Circular is sent to sectors/line ministries containing the MTEF spending ceilings, and the Budget
Outlook Paper is attached to the Circular. For example, Treasury Circular No. 11 of October 2007
called for special focus on poverty reduction and attainment of the MDGs. These budget ceilings
are used by the Sector Working Groups (SWGs) in allocating resources within the sector for the
following year and the medium-term. The Ministry of Finance holds several meetings with key
stakeholders to discuss the fiscal framework and spending priorities.

Statements made by the Minister of Finance and other government officials have publicly
acknowledged a budgetary policy shift within the government, with increased allocation to the
devolved funds (e.g. LATF, CDF), and more emphasis on sectors that relate to the Goals directly
(agriculture, gender, education, health, environment, energy and housing). The increased
allocation to basic education through the free primary education program (introduced in January
2003) has seen the net enrolment rate in primary education increase from 73.7% in 2000 to 86.5%

17
in 2006 (see Ministry of Education, Education Sector Report 2008: Realizing Vision 2030 Goals
through Effective and Efficient Public Spending, January 2008).

The Minister for Finance, in his budget speech for fiscal year 2007/08, announced that the
Government is entrenching fiscal reforms based performance budgeting to ensure that budgetary
allocations are based on programmes that are linked to clearly specified objectives and targets
such as the MDGs and the objectives of the Vision 2030. Consequently, the Minister explicitly
linked the increased allocations to infrastructure development and agriculture to the attainment
of the MDGs. In the Budget Speech for fiscal year 2008/09, the Minister for Finance also made
reference to the MDG goal of halving poverty by 2015. In general, the budget has increased the
shares of agriculture, education, and health sectors, and to the development of physical
infrastructure.

The rapid assessments in the millennium districts show that some of the Quick Impact Initiatives
can be funded through the use of devolved funds. However, the annual progress reports of the
ERS have reported that, in some cases, the target beneficiaries of devolved funds (e.g. LATF and
CDF) are not engaged in project identification, formulation and implementation. Consequently,
councilors (in case of LATF) and members of parliament (in case of CDF) unilaterally decide on
what projects are to be funded. In some cases, members of constituency development fund
committees are not appointed in a transparent manner. Although the custodians of these devolved
funds are members of the District Development Committee (DDC), there is no incentive to
question each other in this forum on the use of the devolved funds since each stakeholder (district
departmental heads, local authorities and members of parliament) has his/her own kitty. There is
therefore need to sensitize local authorities and members of parliament on community
involvement, harmonization in the use of devolved funds, and in aligning their activities towards
the MDGs based on local needs.

Little has been done to ensure that the ERS is fully aligned to the MDGs. It was not feasible to
revise the ERS since its implementation period was 2003-2007, but some activities were
implemented to mainstream MDGs in the budgetary process, though not in a structured manner.
However, the first medium-term plan 2008-2012 under Vision 2030 will anchor in the MDGs,
and initiate a process of fully mainstreaming MDGs in the line ministries plans and budgets.

The District Development Officers and Provincial Planning Officers have attended training
workshops on mainstreaming MDGs into the district-level planning process, and the Rural
Planning Directorate (RPD) invites staff of the MDG Unit during workshops for DDOs and
Provincial Planning Officers (PPOs). The RPD has developed a district planning handbook to
guide the preparation of District Development Plans under the Vision 2030s Medium Term Plan,
which include mainstreaming MDGs and crosscutting issues (e.g. environment, gender, youth,
HIV/AIDS, and disaster management). This is intended to be a rollout in mainstreaming MDGs in
the district-level planning process, to complement the scaling up under the Millennium Districts
initiative. In 2006, the MDG Unit was invited to workshops organized by the Association of Local
Government Authorities of Kenya (ALGAK) to sensitize the participants on MDGs, in preparation
for the 2006 Africities Summit in Nairobi on the theme of building local coalitions for effective
implementation of the millennium development goals in local African governments.

18
2.5 MDGs TRACKING AND REPORTING

Only four components have been fully or partially implemented under this project component,
namely, integration of MDG indicators into the national (ERS/MTEF) and sectoral monitoring
and evaluation frameworks; provision of support to data and information gathering and
processing; provision of support to production of annual and periodic MDG reports, including
MDG+5 Report for 2005; and preparation of side events in New York and presentation of the
MDG+5 Report to development partners.

2.5.1 Support to the Finalization of the Needs Assessment Report

In April 2004, the Government developed a Concept Note on the MDG needs assessment study.
Kenya fitted well into the needs assessment process when it was selected in the year 2002 by the
UN Secretary-General to be one of the four African countries to pilot the implementation of the
Millennium Project. The others are Ethiopia, Ghana and Senegal.

This was followed by a series of stakeholder workshops at various levels to identify interventions
and targets to meet the MDGs. Afterwards, consultants were commissioned to undertake needs
assessment studies on hunger, education, gender, child health, maternal health, HIV/AIDS and
malaria, environment, water, energy, slum improvement, and a report by KIPPRA on a realistic
macroeconomic framework for achieving the MDGs. The background reports were used in the
preparation of the Needs Assessment and Costing Report (August 2005), and later edited and
published in 2006. These published reports are Needs Assessments on: extreme poverty and
hunger (Goal 1), achieving universal primary education (Goal 2), reducing child mortality and
improving maternal health (Goals 4 &5), combating HIV/AIDS, malaria and tuberculosis (Goal 6),
ensuring environmental sustainability (Goal 7, target 9), providing water and sanitation services
(Goal 7, target 10), improving the lives of slum dwellers (Goal 7, target 11), and energy sector (as
an enabler in achieving the MDGs). These reports were also posted on the UNDP-Kenya and
Kenya Government websites. The Needs Assessment and Costing Report also formed the basis of
Kenyas successful participation in the 2005 World Summit in New York, especially in the MDG
side event for Kenya at the meetings of the Millennium Project pilot countries.

2.5.2 Integration of MDG Indicators into the National and Sectoral Monitoring and Evaluation
Frameworks

In the year 2003, a National Integrated Monitoring and Evaluation System (NIMES) was
conceptualized as the mechanism for the Government of Kenya to monitor the Implementation
Plan for the Economic Recovery Strategy (IP-ERS). According to the IP-ERS, the overarching
goal of the NIMES was to provide the government with reliable mechanisms to measure the
efficiency of government programmes and the effectiveness of public policyprovide the
government with the needed policy implementation feedback to efficiently reallocate its
resources over timealso set the basis for a transparent process by which the government and the
international donor community can undertake a shared appraisal of results and create smooth
release of external support, including budgetary support (Economic Recovery Strategy for
Wealth and Employment Creation, Chapter 7). The role of M&E was thus strongly articulated in
the ERS with emphasis on its crosscutting and seminal role in enhancing accountability,
transparency and good governance in the new political dispensation that the new government
had pledged.

19
A special Monitoring and Evaluation Department was then established in the MoP&ND (within
an overall reorganization of the Ministry) to coordinate the System. The Department was later
upgraded to a Monitoring and Evaluation Directorate (MED) in order to enhance its capacity to
effectively coordinate and manage M&E initiatives/activities around the country. Three Annual
Progress Reports (on the economic recovery strategy 2003-07), a Mid-term Report, and Public
Expenditure Review 2006 have been produced under the mandate given to the Ministry as the
coordinator of NIMES. The monitoring reports prepared under NIMES are key governance
documents that also notes the challenges encountered in the implementation of the ERS and
make diagnoses and proposals on what policy options must be instituted to make even greater
improvements.

The National Integrated Monitoring and Evaluation System was officially launched in September
2007. The official launch of NIMES was preceded by a special media briefing on 29th August 2007
before the official launch on 4th September 2007, to give the Press a chance to ask any questions
and seek clarifications which could in turn empower them to report accurately and from a fully
informed position on key developments being undertaken by the Government.

The monitoring reports are based on a set of 31 selected indicators that shows the progress made
in a number of key sectors. The core indicators mainly relate to IP-ERS monitoring (and to the
MDGs - to the extent that these are aligned with the IP-ERS indicators). The Government of
Kenya has expanded its conceptualization of NIMES as a system that should meet its entire
national, regional and global policy monitoring and project monitoring requirements.

The Governments new policy framework beginning in 2008 will be the Vision 2030 launched in
June 2008, which is a long-term strategy that will be implemented through a series of five-year
medium-term plans. Renewed focus is therefore being placed on the role of indicators in the M&E
system. The NIMES will focus on identifying indicators for tracking progress of the first Vision
2030 Medium-Term Plan (2008-2012), and support the establishment of a set of indicators for
monitoring within sectors and at the district and lower geographical levels.

An institutional and coordination framework for NIMES has been prepared and will be rolled out
to all districts in Kenya, and has provision for the establishment of District Monitoring and
Evaluation Committees and Constituency Monitoring and Evaluation Committees (given
especially their increasingly important role as recipients of some of the devolved funds). The full
rollout to the lower geographic levels will be done through linkages to the District Focus for
Rural Development strategy.

The MDG indicator framework effective 15 January 2008 incorporated recommendations from
the 2005 World Summit (see Annex Four). Under Goal 1, Target 1B (Achieve full and productive
employment and decent work for all, including women and young people) was added, together
with four indicators for measuring progress. The earlier indicator framework had a target under
Goal 8 (Develop a global partnership for development) on strategies for decent and productive
work for youth, with the indicator as unemployment rate of young people aged 15-24 years, each
sex and total (United Nations Development Group, 2003). Under Goal 5, indicators of access to
reproductive health were added, which include (a) adolescent birth rate, (b) antenatal care

20
coverage, and (c) unmet need for family planning 2. Adolescent birth rate refers to age-specific
fertility rate 15-19; while antenatal care coverage has two components: at least one visit, which
measures whether women have contact with the healthcare system; and at least four visits,
which conforms to WHOs standard of adequate antenatal care. Under Goal 6, one indicator was
added on proportion of population with advanced HIV infection with access to antiretroviral
drugs. The main changes under Goal 7 relate to additional indicators of sustainable development
and loss of biodiversity e.g. (a) proportion of fish stocks within safe biological limits, (b)
proportion of total water resources used, and (c) proportion of species threatened with extinction.
Apart from Goal 7, the adoption of the revised MDG indicator framework is not likely to be a
challenge since Kenya periodically undertakes labor force surveys, decennial population and
housing censuses, and Demographic and Health Surveys (DHS).

Table 2: Nationally Monitored Indicators: 2004/05-2006/07

No. IP-ERS Objective Outcome Indicator (Nearest) MDG Indicator

1 Accelerate economic Real annual growth rate of GDP (%)
growth
2 Achieve and Rate of inflation (%)
maintain price
stability
3 Control and reduce Stock of domestic debt to GDP (%) 8.12 Debt service as a
the burden of percentage of exports of
domestic debt goods and services [the IP-
ERS indicator refers to
domestic debt]
4 Public sector wage Ratio of public sector wage to GDP (%)
bill under control
5 Expand revenue Ratio of government revenue to GDP (%)
sources
6 Public expenditure Percentage of benchmarks achieved under the
management reform Public Expenditure Management Assessment
and Action Plan (PEM-AAP)
7 Rehabilitate the road Percentage of road network in bad/poor
network condition
8 Power coverage in Percentage of rural households with electricity
rural areas
9 Rural water coverage Proportion of rural households with reliable 7.8 Proportion of
access to safe water population using an
improved drinking water
source
10 Urban water Proportion of urban households with reliable 7.8 Proportion of

2
Women with unmet need are broadly defined as those who want to postpone their next birth for two
years or more (unmet need for spacing), or not have any more children (unmet need for limiting), but they
are not using contraception (Westoff, 1988; Westoff, 2006). According to the Kenya Demographic and
Health Survey 2003 (Central Bureau of Statistics, Ministry of Health, and ORC Macro, 2004), the unmet
need for family planning among currently married women was 24.5%, comprising 14.4% for spacing and
10.1% for limiting (see also Westoff and Cross, 2006). Unmet need is higher in rural (27%) than urban
(17%) areas; is highest among women with incomplete primary education and decreases with the womens
wealth status; and is higher among women younger than 35 years and declines thereafter. Unmet need for
spacing declines with age, while that for limiting increases.

21
No. IP-ERS Objective Outcome Indicator (Nearest) MDG Indicator
coverage access to safe water population using an
improved drinking water
source
11 Safer road system No. of fatalities on the road annually
12 Enhance tourism Percentage increase in tourist arrivals
13 Strengthen trade and Percentage growth in the volume of exports
industry
14 Reduce infant Percentage of fully immunized children under 4.1 Under-five mortality
mortality 1 year rate;
4.2 Infant mortality rate;
4.3 Proportion of one-year-
old children immunized
against measles
15 Reduce HIV/AIDS Proportion of 15-24 year-old pregnant women 6.1 HIV prevalence among
prevalence attending antenatal clinic who are HIV positive population aged 15-24
years
16 Reduce maternal Percentage of pregnant women attending 5.2 Proportion of births
mortality antenatal clinics (at least 4 visits) attended by skilled health
personnel;
5.5 Antenatal care coverage
17 Reduce the burden Inpatient malaria morbidity rate as percentage 6.6 Incidence and death
of disease of total inpatient morbidity rates associated with
malaria;
6.7 Proportion of children
under 5 sleeping under
insecticide-treated bed
nets;
6.8 Proportion of children
under 5 with fever who are
treated with appropriate
anti-malarial drugs
18 Improve primary Primary school net enrollment rate (%) 2.1 Net enrollment ratio in
school net primary education;
enrolment rate 3.1 Ratios of girls to boys in
primary, secondary and
tertiary education
19 Improve Primary school net enrollment rate for 2.1 Net enrollment ratio in
Northeastern Northeastern Province (%) primary education;
Province net 3.1 Ratios of girls to boys in
enrolment rate primary, secondary and
tertiary education
20 Reduce the rate of Primary school completion rate 2.2 Proportion of pupils
primary school starting grade 1 who reach
dropouts last grade of primary
school
21 Reduce the Primary school repetition rate
incidence of primary
school repetition
22 Increase transition Primary to secondary school transition rate (%)
rate to secondary
education

22
No. IP-ERS Objective Outcome Indicator (Nearest) MDG Indicator
23 Strengthen Measured labor productivity in the formal 1.4 Growth rate of GDP
employment sector per person employed;
creation and labor 1.5 Employment-to-
productivity population ratio;
1.6 Proportion of employed
people living below USD 1
(PPP) per day;
1.7 Proportion of own-
account and contributing
family workers in total
employment
24 Raise incomes of Agricultural sector growth rate
smallholders
25 Improved Forest area protected by gazettment (ha) 7.1 Proportion of land area
environmental covered by forest
management
26 Introduce universal Proportion of public sector projects subjected
environmental to environmental impact assessments
screening of projects
27 Reduce absolute Proportion living below absolute poverty line 1.1 Proportion of
poverty population below USD 1
(PPP) per day;
1.2 Poverty gap ratio;
1.3 Share of poorest
quintile in national
consumption;
1.9 Proportion of
population below
minimum level of dietary
energy consumption
28 Reduce prevalence Percentage of under-5 population underweight 1.8 Prevalence of
of underweight in underweight children
children under 5 under-five years of age
years
29 More expeditious Ratio of concluded cases to reported cases
justice
30 Public sector Proportion of total public sector spending
transparency and controlled and managed at the local level e.g.
devolution of power local authorities, local authority transfer fund,
constituency development fund, and district
roads maintenance levy fund (managed by
district roads committees)
31 Creation of a Fully functioning national M&E system
national monitoring operating at all levels and providing feedback
and evaluation to the budget
system

Sources: Kenya, Ministry of Planning and National Development, Monitoring and Evaluation
Directorate, The Third Annual Progress Report (2005-2006) on the Economic Recovery Strategy
2003-2007, August 2007; and United Nations, Official List of MDG Indicators, effective 15
January 2008 (see Annex Four: Official List of MDG Indicators, effective 15 January 2008)

23
As shown in Table 2, the indicators for reporting under NIMES and MDGs differ in coverage, and
even definitions. At the national level, statistics are available that satisfy reporting under the two
systems, although indicators for lower level geographical areas may not be readily available or up-
to-date (with the exception of education indicators). The major challenges are (a) lack of current
statistics and a system to track the MDG indicators (especially in the area of environment and
natural resources), (b) timeliness for data sources that are collected through household budget
surveys and decennial population censuses, (c) inadequate customization of MDG tracking and
reporting at the regional levels, and (d) lack of financial and technical support to line ministries
who find it difficult to provide comprehensive and up-to-date indicators during the preparation of
the MDG Status Reports.

Several Ministries also maintain lists of indicators that satisfy both the MDG reporting
requirements, NIMES, and their own internal needs. For example, the Ministry of Water and
Irrigation has a list of indicators on water and sanitation coverage, access to sewerage systems and
water quality, among others. The Water and Sanitation coverage indicators include proportion of
population with access to safe water supply (urban, rural), additional number of people served
annually with safe water (urban, rural), proportion of the population using improved sanitation
facilities (urban, rural), proportion of population connected to a sewerage system (urban, rural),
functionality of sewerage system (urban, rural), proportion of population connected to a
functioning sewerage system (urban, rural), proportion of school pupils using improved water
sources, proportion of school pupils using improved sanitation facilities, and proportion of school
pupils using both improved water and sanitation facilities. Among the indicators of Water Quality
is the proportion of surface water quality samples that comply with water quality standards.

2.5.3 Provision of Support to Data and Information Gathering and Processing

The MDG contact persons in line ministries work with the MDG Unit by preparing background
sector-based MDG status reports, and assist in consolidation of sector reports into one national
report. However, they see themselves as providers of information to assist the MDG Unit to meet
international reporting requirements under the MDGs, rather than as partners. Some officers in
line ministries also reported that MDGs are headquarters, not district or lower-level issues, and
there is lack of knowledge among service providers (e.g. teachers) on MDGs, hence the need to
incorporate the MDG issues within the education curriculum (without necessarily calling them
so).

Some sectors experience difficulties in updating the indicators e.g. Goal 7 on ensuring
environmental sustainability, specifically (a) integrating the principles of sustainable development
into country policies and programmes and reverse the loss of environmental resources, and (b)
reducing loss of biodiversity. This is either because changes are slow or data is not collected
regularly. The indicators that are not regularly monitored include proportion of land area covered
by forest, CO2 emissions, consumption of ozone-depleting substances, proportion of fish stocks
within safe biological limits, and proportion of species threatened with extinction. The difficulties
reported in previous MDG status reports on updating the indicators have not led to any financial
or technical assistance to update the databases in the relevant line ministries.

24
2.5.4 Support to Production of Annual and Periodic MDG reports, including MDG+5 Report for
2005

The September 2005 UN Summit held in New York was a follow up and review of the
Millennium Summit held in 2000 during which the UN Member countries signed the Millennium
Declaration which, among other goals and objectives, brought forth the Millennium Development
Goals. Among the many recommendations of the 2005 UN Summit, each country was asked to
take primary responsibility for its own development through the development of sound national
policies and development strategies so as to achieve sustainable development (Resolution adopted
by the General Assembly A/RES/60/1). To this end, the Summit resolved that, by 2006,
countries adopt and implement comprehensive national development strategies to achieve the
agreed development goals including the MDGs. In addition, countries were asked to enhance the
contribution of NGOs, CSOs, the private sector and other stakeholders in national development
efforts. Countries were also asked to manage public finances effectively to achieve
macroeconomic stability and long-term development goals, and enhance the quality and impact
of development assistance, including the Paris Declaration on Aid Effectiveness (see Annex 2).

Kenya made a strong and visible presence at the 2005 World Summit through the support of the
MDGs mainstreaming project. His Excellency the President of Kenya led the Kenyan delegation
to the Summit. Prior to the Summit, an inter-ministerial committee assessed the operations of the
Constituency Development Fund in ten constituencies sampled across the country, and concluded
that the CDF can be used as an innovative funding mechanism for achieving the MDGs. The
MDG Needs Assessment and Costing Report published in August 2005 formed the basis of Kenyas
successful participation in the 2005 World Summit in New York, especially in the MDG side
event for Kenya and at the meeting of the Millennium Project pilot countries.

The government in collaboration with other stakeholders produced the 2005 MDG Status Report
for Kenya, which is an update of the Progress Report of 2003. The 2007 MDGs Status Report is the
third since the Millennium Declaration of September 2000 which brought forth the MDGs. It
builds on the 2003 and 2005 MDGs Status Reports in the sense that it gives the cumulative status
and trends in the MDGs indicators since the Millennium Declaration.

Ministries were asked to prepare inputs into the 2007 MDG Status Report, and the line ministries
nominated contact officers who would undertake the exercise. The background sector papers
include MDGs status report on Goal 1 on hunger (by the ministries of Agriculture, Livestock and
Fisheries Development, and Lands), employment (by the Ministry of Youth Affairs), basic
education (by Ministry of Education), gender equality (by Ministry of Gender), maternal and
child health and nutrition (by Ministry of Health), combating HIV/AIDS, malaria and other
diseases (by Ministry of Health), environmental sustainability (by ministries of Environment, and
Water and Irrigation), improving the lives of slum dwellers (by Ministry of Housing), global
partnership specifically on availing the benefits of new technologies on information and
communication (Ministry of Information), global partnership specifically on trade and aid (by
ministries of Finance, and Trade and Industry), and energy sector (by Ministry of Energy). The
ministerial inputs were later consolidated into one draft report, which was discussed in February
2008.

25
2.6 PROMOTION OF RESEARCH, ANALYTICAL WORK AND POLICY ADVOCACY ON
MDGs

Only two components in the original project document were undertaken during the lifetime of
the project, namely, (a) provision of support to research and analysis on the relationship between
debt, aid and trade and the realization of the MDGs; and (b) participation in relevant regional and
global forums. Some activities in the project document that were not implemented include (a)
provision of support to policy research and analysis on MDG-related issues to promote policy
debate and dialogue; (b) analysis of best mixes of policies (from macro to micro) for achieving
specific targets in different goals, and the tradeoffs and complementarities that arise between
these goals; and (c) analysis of governance and institutional requirements for successful
sustainable development in different sectors, including trade.

2.6.1 Financing Sources for achieving the Millennium Development Goals in Kenya

Originally the study was to focus on role and effectiveness of Official Development Assistance
(ODA) in bridging the financing gap in meeting the MDGs. However, in September 2006, the
Project Steering Committee expanded the terms of reference to incorporate the Kenyan policy
guiding aid and debt, and issues of the Monterrey Consensus (2002), especially those regarding
the mobilization of local resources.

The Monterrey Consensus (United Nations, 2003) stressed that achieving the MDGs demands a
new partnership between developed and developing countries that encompasses mobilizing
domestic resources, attracting international flows, promoting international trade, increasing
international financial and technical cooperation, sustainable debt financing and external debt
relief, and enhancing the coherence and consistency of the international monetary, financial and
trading systems. The World Banks Global Monitoring Report 2004 reaffirmed the need to speed
up the implementation of the Monterrey partnership, matching stronger reform efforts by
developing countries with stronger support from developed countries and international agencies.

Consequently, the study focused on macroeconomic and policy environment that would enhance
the impact of ODA, debt relief and domestic resources in achieving the MDGs. It was intended to
(a) establish financing gap under different scenarios of domestic financing, aid, debt relief, and
other sources of finance given the total need and specific sectoral needs, (b) assess the practical
meaning and role of different sources of financing in filling in the gap given the constraining
framework (monetary, fiscal and institutional), and (c) analyze the role of economic, fiscal and
institutional framework in the flow of aid and domestic borrowing for public expenditure
(including analysis of debt sustainability and absorption capacity).

A draft report was discussed in a PSC meeting in March 2007 (together with the report on long-
term framework for action), and KIPPRA produced a revised draft in November 2007 (Kenya
Institute for Public Policy Research and Analysis, 2007). The report states that, although Kenya
does not qualify for debt relief under the current debt relief criteria, it should endeavor to make
debt relief a positive source of financing by, say, working with other interested countries to lobby
for revision of criteria under the Heavily Indebted Poor Countries (HIPC) initiative.

Under the HIPC initiative, debt is considered unsustainable when the ratio of the Net Present
Value (NPV) of debt (discounted value of the projected debt service payments) to export is more

26
than 150%, or when the NPV of debt to revenues (central government revenue excluding grants)
is more than 250% (International Monetary Fund and International Development Association,
2006). Since Kenya had an NPV of debt-to-export ratio of 121% in 2002 and a ratio of debt service
to exports of 9.0% (International Monetary Fund, 2003a), Kenya is officially classified as having
sustainable debt levels (despite its heavy internal debt, which is not taken into consideration). It is
apparent from the KIPPRA study that Kenya can not achieve the MDGs without significant
international donor support, but the Project Steering Committee has noted that donors were
concerned that the government was giving mixed signals on the need for aid.

The paper makes important contributions on the macroeconomic and institutional concerns in
relation to aid inflows for achieving the MDGs. First, is analysis of absorption capacity (defined in
the report as the proportion of committed ODA actually utilized by the recipient country) due to
administrative and institutional bottlenecks, and the inadequacy of the existing macroeconomic
models to deal with huge changes envisaged in full donor support for implementation of the
MDGs. However, analysis of macroeconomic challenges to scaling up official flows were analyzed
but not elaborated in the report e.g. (a) absorption (defined as the widening of the current
account deficit excluding aid due to incremental aid), and (b) spending (defined as the widening
of the fiscal deficit excluding aid accompanying an increment in aid) 3. In the Kenyan context,
these macroeconomic implications of increased aid inflows were reported in an earlier input by
KIPPRA to the MDG Needs Assessment and Costing Study titled The Cost of Achieving the
Millennium Development Goals in Kenya: Towards a Realistic Macroeconomic Framework
(Kenya Institute for Public Policy Research and Analysis, 2004). During 27th October 2nd
November 2007, a workshop on Macroeconomic Analysis and Modeling in Support of MDG-
based planning in Africa was held in Lusaka, Zambia, and the report of the proceedings should be
of immense help to Kenyan researchers (UNDP, Regional Bureau for Africa, 2007b).

2.6.2 Participation in Relevant Regional and Global Forums

The management of the Project Implementation Unit has made several study tours in different
countries to study the experiences of other countries undertaking similar activities. Two visits
worth of note are the tours to Philippines and India during November 2007, which included the
Permanent Secretary in the Ministry of Planning and National Development, four departmental
heads in the same ministry, and two district development officers from Meru South and Bondo
(which are among the millennium districts). On return, the team prepared a detailed report on
their experiences and lessons learned, and the aspects that they need to improve upon in
localizing and mainstreaming MDGs in Kenya.

The report describes Philippines as a global best practice in implementation of its programmes
for mainstreaming and localizing the MDGs. In particular, the important lessons learnt included
the need to expand the range of institutions for mainstreaming MDGs to include local
governments, civil society, communities, and the private sector (see also Philippines, 2007). In
addition, the costing of the MDGs was based on research conducted by the Philippines Institute
for Development Studies (see Lim, 2006).

3
See, for example, International Monetary Fund (2005) and Gupta, Powell and Yang (2005; 2006), who
stress that such scaling-up scenarios need to have a detailed understanding of the likely use of additional aid
inflows.

27
The Philippine Institute for Development Studies (PIDS) formed a team to assess the feasibility of
the Philippine Debt-for-MDG Proposal. The study made recommendations to mobilize and
safeguard MDG-financing to include, among other proposals, adoption of policies by international
agencies and creditors of required changes to help facilitate the implementation of MDG
initiatives. The PIDS study recommended changing the concept of debt sustainability from
capacity to pay to the more humane concept as to whether the debt payments of the indebted
countries form hindrances to the social and economic progress of the country. In particular, it is
important to consider whether the debt payments are hindrances to achieving the MDGs.

The main lesson from India was on the use of citizens report card as a tool to provide public
agencies with systematic feedback from users of public services (see Wada Na Todo Abhiyan,
2005), which included elementary education, health, poverty and food security, drinking water,
and peoples Charter of Demands. However, to be fair, the Kenya Government has undertaken
detailed participatory process: (a) in September-November 2001 in six districts (Mandera,
Transmara, Vihiga, Gucha, Makueni and Kwale), (b) in October-December 2002 on the
perspectives of the poor on credit and extension services in six districts (Kisumu, Butere/Mumias,
Bomet, Muranga, Mwingi and Malindi), and (c) the development of the Kenya Citizen Report
Card (CiReCa) as a means for amplifying citizen participation and engagement with service
providers, and through which ordinary people are given the opportunity to provide credible and
collective feedback to service providers about their performance. In addition, the fourth
Participatory Poverty Assessment (PPA), undertaken alongside the Kenya Integrated Household
Budget Survey (KIHBS 2005/06), gauged peoples perceptions on the accessibility and quality of
public services in five specific policy areas: agricultural extension, infrastructure (with a focus on
access roads), water and sanitation, primary healthcare, and basic education.

A team from Ministry of Planning and National Development, the Kenya Institute for Public
Policy Research and Analysis (KIPPRA), Central Bank of Kenya, University of Nairobi and
UNDP-Kenya undertook a study visit to Mongolia from 24th to 29th September 2007. The objective
of the study visit was to learn from the experience of a developing country like Mongolia in
developing an MDG-based Needs Assessment and MDG-consistent macroeconomic framework as
well as poverty reduction initiatives undertaken by the Government of Mongolia. In particular,
the team was tasked to gather information on the Mongolian version of Generic Macroeconomic
Framework (GMF) model, developed by the Mongolian Government and the Decision Support
International (DSI). The Study Team concluded that the DSI GMF Model can be adapted into a
Kenyan version (building on the KIPPRA-Treasury Macro Model), as Kenya has skilled personnel
to assist the DSI team in estimation and customizing the GMF model into a viable Kenyan
version. The Study Team therefore recommended that the Government of Kenya requests the
UNDP-Kenya to assist in development of the Kenyan version of the DSI GMF, which should
include provision of comprehensive training for Kenyan officials to enable full institutionalization
of the model within government and in policy analysis institutions.

The main lesson from the visits to Philippines, India and Mongolia is probably in the involvement
of all stakeholders in the development process anchored on the MDGs. The government of
Philippines has managed to rally all the stakeholders (the public sector, private sector and the
civil society) around effective implementation and monitoring of the MDGs and a lot appear to
have been achieved in that country.

28
In April 2007, senior officers from UNDP and the MoP&ND attended a meeting in Kampala to
discuss and review strategies to plan and achieve the MDGs in Eastern Africa. During March-
April 2007, an economist in the PIU attended training on the Threshold 21 (T21) model, which is
a computer-based, quantitative tool for integrated development analysis developed by the
Millennium Institute. It is designed to support comprehensive, integrated planning, and is a
valuable quantitative tool for both planning, and for monitoring and evaluating results. The T21
model integrates economic, environmental and social elements; and informs development
strategies and policies by simulating possible impacts of alternative policy choices and strategic
options (Pedercini, 2005). The T21 model has been customized to meet the development and
planning needs of a number of developing and industrialized countries, including Malawi (to
analyze strategies for reaching Malawis Vision 2020 goals) and Mozambique (see International
Monetary Fund, 2007).

2.6.3 The Millennium Villages Project

In July 2004, the Earth Institute at Columbia University, New York, and the UN Millennium
Project (UNMP) established the MDG Technical Support Centre in Nairobi (renamed MDG
Centre in 2006), which initially focused on national level policy support to selected pilot
countries of the UNMP (Ethiopia, Ghana, Kenya and Senegal). The Millennium Villages Project
(MVP) was founded by Columbia Universitys Earth Institute to demonstrate that rural
communities, especially in Africa, can achieve or get on track to achieve the MDGs using proven
and practical solutions over a five-year timeframe.

Experts at the Earth Institute in agriculture, nutrition and health, economics, energy, water,
environment, and information technology are working with local communities and governments,
UN agencies and NGOs to implement an integrated package of interventions for the MDGs. These
include:

Agriculture and agro-forestry techniques to multiply farm productions and enhance the
environment;
Nutrition supplements to tackle under-nutrition, especially in children;
Essential health services;
Investments to relieve the burden on women including improving access to water and fuel
wood, access to clinics and ambulance services;
Free daily school lunches using locally produced food;
ARVs for people with HIV/AIDS;
Insecticide treated bed nets for mothers and children;
Innovative local energy sources and clean water solutions;
Credit, banking, and storage and business creation;
Training to facilitate the creation of small businesses by both women and men.

The interventions, when implemented on a large scale, are proposed to form the basis of a
revolution in agriculture, health and connectivity. The revolution is proposed to start with
environmentally sustainable food yields before diversifying into commercial agriculture and non-
agricultural sectors. Connectivity will connect isolated rural communities to local and
international markets and help to build human capital for the long term.

29
The first Millennium Village was started in Bar Sauri, Kenya, in August 2004. Within the short
span of its existence, villagers have gone from chronic hunger to a tripling of crop production and
an ability to sell their produce in nearby markets (see report by the MDG Centre, Bridging Global
Commitments with Local Action: Inaugural Report 2007). The two millennium villages in Kenya
(Bar Sauri in Siaya and Dertu in Garissa) are directly supported, administratively and technically,
by the MDG Centre in Nairobi.

The Handbook on Millennium Villages (prepared by the PIU) includes a description of the MDGs
and the 2005 World Summit (MDG+5), what the world is doing to achieve the MDGs (including
the shared responsibilities of governments, the international system, civil society and
communities), the Millennium Villages Project, steps to a model millennium village, and
sustaining the millennium village.

However, the Millennium Villages Project is not part of this project, but the MDG Unit has been
borrowing lessons from their experiences and making follow-ups as part of the general
coordination function of the MoP&ND.

2.6.4 Support to Development of Kisumu as a Millennium City

The Millennium Cities Initiative (MCI) is led by a team based at the Earth Institute at Columbia
University and the Columbia Program on International Investment, and is supported by the UN
Millennium Project. The objective of the Millennium Cities Initiative is to assist through research
and policy analysis, seven mid-sized cities across sub-Saharan Africa, located near Millennium
Villages to achieve the MDGs. The project initially focuses on policy analysis impacting foreign
direct investment (FDI), with a view to creating employment, stimulating domestic enterprise
development and fostering economic growth. FDI-driven development looks for investments that
promote economic growth, the sophistication of local human capital, infrastructure development,
or basic services provision by virtue of its identity in relation to the local economic environment.
In addition to foreign direct investment, the MCI promotes an integrated City Development
Strategy. The MCI draws upon, and strengthens, the MDGs work already underway by adding a
focused urban-based component. In addition, the Millennium Cities Initiative is positioned to
capitalize on unique synergies with the Millennium Villages Project.

The Kisumu Business Roundtable took place on 17th October 2007, and was attended by 200
participants that included representatives of the private sector from Europe, their counterparts in
Kenya, representatives from various government departments, civil society representatives and
members of the Fourth Estate. The meeting dubbed Kisumu Day, which coincided with the
commemorations of the International Day for the Eradication of Poverty (IDEP), aimed at
discussing Kisumus investment potential with business delegations from Europe and Kisumu. The
meeting also saw the launch of the Kisumu Investment Guide as well as the inauguration of the
Kenya Investment Promotion Office, especially tapping on the kind of opportunities that Kisumu
provides in terms of markets in and around the East African region. Further, the International
Day for the Eradication of Poverty provided an important opportunity to take stock of progress, to
reenergize joint efforts towards MDGs realization, and called on participation of citizens in policy
making processes as well as strengthened partnerships between all actors for MDGs.

30
A number of activities planned for implementation in Kisumu in January/February 2008,
including an investment opportunities meeting and launch of some of the studies undertaken by
the Millennium Cities Initiative, did not take place due to the postelection violence.

This project (mainstreaming MDGs in Kenyas development process) in 2007 partnered with the
Millennium Cities Initiative to assist the Kisumu Millennium City Initiative through promotion of
foreign direct investment and in the preparation of an MDG-based City Development Strategy. In
addition, the MoP&ND is involved in other aspects of the Kisumu Millennium City Initiative as
part of its general coordination function of development activities in Kenya.

2.6.5 External Evaluation of Poverty Eradication Commission (PEC)

The external evaluation for the Poverty Eradication Commission (PEC) was approved by the
Project Steering Committee in April 2006, and undertaken between April and September 2007;
and it is in the final stages of its completion (Health and Economics Development Consortium,
2007b). The evaluation focused on the achievements and handicaps experienced by PEC from its
inception in 1999 to date. The main purpose of the evaluation was to review, assess and determine
whether or not PEC has performed its mandates and core functions efficiently and effectively
towards delivering the essential services for poverty eradication for Kenyans. At the same time,
the evaluation made assessments of the gaps, constraints and challenges that stand on the way of
the Commission in attaining its stated goals, objectives and targets as expected by Government
and the public at large. Finally and based on findings, the evaluation made recommendations on
the best way forward towards improvement of PECs efficiency, effectiveness and impact in
implementation of poverty eradication strategies and programmes for the benefits of Kenyans.

The PECs lack of effective institutional structure and capacity has made it difficult to exercise its
national coordination role in matters of poverty eradication in Kenya. A key challenge to the
Government lies in establishment of an efficient national poverty coordination body that will
oversee the effects of existing poverty programmes, and enhance monitoring and evaluation of
poverty reduction initiatives in all sectors and institutions at all levels of implementation. The
report recommends a major policy and structural shift of PEC, from its current Governments
Unit, to an autonomous institution with sufficient mandate to plan and mobilize resources
towards supporting its varied poverty eradication programmes. As a priority, PEC needs to
develop an organizational structure of its own, that offers key support to the core poverty
eradication strategies, with sufficient linkages for wider participation of stakeholders in planning
and project management and facilitating efficient communication and reporting management
systems.

2.6.6 Proposed Study of Kenyas Tax and Benefits System: A Medium and Long Term Strategy

The overall goal of the study will be to assess the current tax and expenditure system to facilitate a
sustainable medium and long-term framework consistent with growth objectives, poverty
reduction and the achievement of MDGs. The terms of reference for the study were prepared by
the MDG Unit and discussed in the PSC. The terms of reference were also discussed with the
Ministry of Finance, who are supposed to host the study on behalf of the project. However, a
consultant is yet to be identified for this work.

31
The study will assess Kenyas fiscal system applying the principles of fairness of the tax and
expenditure outcomes; assess the impacts of reforms on tax instruments and taxpayers; assess tax
compliance rates for different tax instruments and explain the differential performance;
demonstrate the potential for raising the efficiency, fairness and administrative feasibility both for
specific tax instruments and for the entire tax system; assess the contributions of tax reforms to
poverty reduction and pursuit of MDGs; and establish the distribution of expenditure benefits.
This activity has been moved to Phase II of this project.

32
 CHAPTER THREE

PROJECT MANAGEMENT, MONITORING AND EVALUATION

In the memorandum signed between the Government of Kenya, Government of Finland and
UNDP, the Government of Finland was to contribute funds to UNDP for the implementation of
the Project; for UNDP to receive, administer and account for the contribution for the execution of
the Project; while the Ministry of Planning and National Development was to implement the
MDG project on the basis of an Annual Work Plan agreed upon by the three parties. The project
was to run from July 2005 to June 2008, and fiscal year July 2005 to June 2006 was adopted for the
first Annual Work Plan.

A Project Implementation Unit (PIU) was created in the MoP&ND for the day-to-day
management of the Project. A Project Steering Committee (PSC) comprising of UNDP, a
representative of the Embassy of Finland and the Permanent Secretary of the MoP&ND was to
spearhead the implementation process. The Project Steering Committee was to meet on a
quarterly basis to assess the performance of the programme and approve the work plan and
budget.

3.1 PROJECT IMPLEMENTATION UNIT

The Project Implementation Unit is the main implementing agency for the project. Its main
responsibilities are to prepare the Annual Work Plan and Budget; implement project activities
agreed upon by the Project Steering Committee; prepare progress report, including the Financial
Expenditure Report in liaison with UNDP; and offering secretariat services to the Project Steering
Committee. The PIU is anchored within the Ministry of Planning and National Development,
given that the Ministry is the main coordinating agency.

The PIU is headed by the National Coordinator, who is appointed by the Ministry. The National
Coordinator is currently at the level of Chief Economist, who reports directly to the Permanent
Secretary. The PIU also has a deputy head at the level of Deputy Chief Economist. The other
officer is a Senior Economist, who was deployed to do other duties as the review was in progress.
The Unit does not fall under any Directorate in the MoP&ND but reports directly to the
Permanent Secretary. It has its own budget lines in both the recurrent and development
estimates.

The Unit has two other government officers at Economist II level, who have an average of three
years experience in the service. The Unit has also been receiving services from five United
Nations Volunteers (UNVs). However, two UNVs attached to the MDG Unit have quit, and there
were therefore only three.

Given the amount of work as outlined in the Units Annual Work Plans, it is clear that the Unit
lacks capacity to deliver fully on its mandate, which currently has a very large field component,
including monitoring the work of the CSOs who have been contracted for MDGs awareness
creation in 28 districts and to localize MDGs in nine districts. Apart from the three officers at the
level of Senior Economist and above, the other staffs require guidance to deliver on their tasks.

33
Due to the capacity problem in relation to the workload, the PIU tends to undertake one major
activity at a time. For example, during the period when nine millennium districts were being
assisted in preparing the Quick Impact Initiatives as part of MDG-based development planning,
most of the other project activities stalled, including the completion of the MDG Status Report for
2007.

3.2 PROJECT STEERING COMMITTEE

The PSC is the highest decision-making body of the Project. It is chaired by the Permanent
Secretary, Ministry of Planning and National Development. Its other members are the UNDP
Resident Representative, the Ambassador of the Embassy of Finland and the Permanent Secretary,
Ministry of Finance. However, a representative from the MDG Centre in Nairobi attends the PSC,
upon invitation, due to similarities in the activities being implemented and its role in the MDGs
agenda both globally and in Kenya. The PSC approves the work plan, reviews progress, and makes
recommendations on challenges and actions required.

3.3 PROJECT TECHNICAL COMMITTEE

The Project Technical Committee (PTEC) is not provided for in the Project Documents. Its
significance has come as a result of the need to make the PSC more fruitful. The PTEC is
composed of technical officers from the MoP&ND, UNDP and the Embassy of Finland.

The main purpose of the technical committee is to discuss and agree on the agenda for the PSC
meetings. In doing this, the Committee follows up on the recommendations made at the latest
meeting of the PSC to establish whether action has been taken. The committee meets prior to the
PSC meetings, but it also meets as regularly as may become necessary. The decisions of the
committee are communicated to the PSC members (the principals). Most of the meetings have
been held at the Ministry Headquarters, though there have been a few cases when such meetings
have been held at the Finnish Embassy, upon request.

The technical committee has been very instrumental in endorsing decisions on the project, even
when the PSC is not able to meet as required for one reason or another. The Committee has also
been very useful in holding in-depth discussions on some issues which may require more time. It
is thus recommended that this Committee be explicitly provided for in the next phase of the
Project.

3.4 TECHNICAL ASSISTANCE TO THE PROJECT

The Unit acquired the services of a MDGs Technical Advisor in September/October 2006. The
identification of the MDGs advisor was undertaken through a competitive process that included
an advertisement in the daily Press and oral interviews by the Project Steering Committee.
However, the MDG Unit found it difficult to supervise the MDGs advisor effectively. The
Advisors contract expired in October 2007 but was extended to February 2008 to enable the
contract to be formally terminated. The evaluation team was not able to assess the impact of the
work of the Advisor, since only a few reports by the advisor were made available and there was
no final report from the advisor.

34
3.5 ANNUAL WORK PLAN AND BUDGET

The Annual Work Plan and Budget (AWP/B) provides the basis upon which project activities are
implemented. It follows the Government fiscal year (July to June), mainly because the financial
planning has to be captured in the government budgetary system. The AWP/B is prepared by the
PIU, and discussed at the Project Technical Committee level before tabling and adoption by the
PSC. The first Annual Work Plan was for fiscal year 2005/06.

Whereas the PIU has the responsibility of preparing the work plan, activities cannot continue
without the approval of all the parties, in particular the Embassy of Finland. A case in point is
during the preparation of the work plan for 2006/2007, when there were attempts to introduce
other activities that were not fully provided for in the Project Document or agreed upon in the
PSC meetings. Discussions that ensued between the parties delayed the implementation of the
Project for about five months. Some of the activities that were finally agreed upon had to be
carried over to the 2007/2008 fiscal year. However, on the day-to-day operations on what has
been agreed on in the work plan, the PIU takes the lead role.

3.6 PROCUREMENT AND PAYMENT PROCESSES

The PIU, being the main point of implementation, initiates the process of procuring goods and
services, and proceeds according to government regulations. According to the Memorandum of
Understanding, Government procurement procedures are supposed to be followed as long as they
are not in conflict with the UNDP procurement procedures. In some cases, the PIU requests
UNDP to directly procure goods and services on behalf of the Unit. In cases where a firm
supplying goods and services had never done business with UNDP before, UNDP liaises with the
PIU to provide vendor details. After the goods and services have been provided, the PIU sends the
documentation to UNDP (on a form provided by UNDP for such requests) for direct payment to
the supplier. The lengthy procurement and payment procedures take time and sometimes cause
delays in payments to suppliers, and may have affected the implementation of a number of
activities.

3.7 PARTNERSHIP ARRANGEMENTS

The project has been collaborating with other institutions and Government departments, apart
from the civil society partnerships that were explicitly provided for in the Project Document.
Within the MoP&ND, the MDG Unit works closely with (a) the Rural Planning Directorate
(which is in charge of the district development officers) at the national level and in hosting the
MDG project activities at the district level; and (b) the Monitoring and Evaluation Directorate on
the development of indicators for measuring progress in achievement of the MDGs and the
Economic Recovery Strategy for Wealth and Employment Creation (ERS).

The project also partners with other institutions as and when necessary. For example, during the
preparation of the Quick Impact Initiatives for MDGs-based district planning process, the MDG
Unit invited participants from religious organizations, UN Millennium Village Project, UNDP
staff from the Poverty Environment Initiative (PEI) project, civil society organizations active in
the respective districts, local authorities from the respective areas, and the National
Environmental Management Agency (NEMA) in the districts that have prepared district
environmental action plans e.g. Muranga.

35
3.8 FINANCIAL REPORTING

According to the arrangements on project finances, the Embassy of Finland is the main financier
of the Project. The Embassy of Finland disburses funds to UNDP for management of the project,
and UNDP acts on behalf of both the Embassy of Finland and the Government in the
disbursement of funds. UNDP also keeps the records of expenditures and provides statements to
the Ministry and the Embassy of Finland. On an annual basis, UNDP provides a statement and
details of expenditure through the Combined Delivery Report (CDR), which is also used for
purposes of audit. The CDR is constituted of two reports: (a) an expenditure detail listing all the
expenses under the project, and (b) a summary that tallies all the payments into broader
classifications for ease of interpretation.

The annual work plans and the original project document assign 5% of the total project costs in
favor of UNDP as General Management Support (GMS), and factors in payments for the United
Nations Volunteers and technical assistance (the MDGs advisor referred to above). During the
PSC meetings, UNDP presents the financial reports to the parties as part of the presentation of the
progress report.

3.9 FINANCIAL REPORT

As shown in Table 3, the delivery rate in terms of expenditure vis--vis budget in the first 18
months of the project was 36%, with fast movers being awareness creation (42%) and capacity
development for mainstreaming MDGs in planning and policy frameworks (61%). The main
activities under awareness creation and capacity development were publicity materials, TV and
radio campaigns, and capacity building workshops for line ministries and provincial and district-
level staff. During calendar year 2007, the overall delivery rate was 33%, with the highest
activity-based mover being capacity development (64%), mainly in the sensitization and training
of district-level staff and in the millennium districts capacity development (including preparation
of MDG-based identification of Quick Impact Initiatives).

36
Table 3: Financial Summary (US$)

June 2005-Dec 2006 Jan-Dec 2007 Jan-April

2008
Project Objective Budget Expenditure % Budget Expenditure % Expenditure
National MDGs based long- 213,342 33,531 16 512,667 189,744 37 24,197
term framework for action
developed
Awareness for formulation 604,778 255,369 42 818,933 151,218 18 355,476
of MDG-based strategies
created
Capacity for mainstreaming 284,543 174,904 61 210,667 135,714 64 0
MDGs in planning and
policy formulation improved
MDGs tracking and 31,450 10,149 32 33,000 791 2 13,945
reporting systems
established
Policy research and 276,768 78,223 28 173,333 10,388 6 0
advocacy among
stakeholders undertaken
Project management 703,057 208,005 30 154,304 134,256 87 43,143
enhanced
TOTAL 2,113,938 760,181 36 1,902,904 622,111 33 436,761
General Management 39,200 48,154 0
Support
GRAND TOTAL 2,113,938 799,381 1,998,399 670,265 436,761

37
 CHAPTER FOUR

SUMMARY OF MAIN FINDINGS AND RECOMMENDATIONS

4.1 SUMMARY OF OUTPUTS

Since the Millennium Declaration and the subsequent declaration of Kenya as a pilot country in
the implementation of MDGs through the Millennium Project, the Government of Kenya has
been working on institutionalizing and mainstreaming the MDGs into her national development
agenda. Some of the project outputs include:

MDGs Status Reports developed in 2005 and 2007.

Launching of the MDG-based planning that has resulted in a gradual increase in budgetary
resources to core poverty programmes and key sectors of agriculture, education, health and
infrastructure.
Publication of the MDG Needs Assessment and Costing Report in 2005.
Capacity building workshops have been held for planning and budgetary officers at the national
level, provincial and district officers, CSOs, and MDGs contact officers appointed in the line
Ministries.
IEC campaigns have been carried out through various media including TV and radio programs,
newspaper supplements, brochures, fliers, posters, calendars, T-shirts and caps, schools drama
festivals, and through public announcements.
MDG sector-specific needs assessment reports published in 2006.
Completion of Kisumu Investment Guide under the Millennium Cities Initiative, and its launch
in October 2007.
MDGs Long-Term Framework for Action is almost finalized, and will be closely linked with
Vision 2030 through the first Medium Term Plan under Vision 2030.
Piloting the MDG-based district planning in nine Millennium districts aimed at fast-tracking
the achievement of MDGs at lower levels and providing suitable case studies for replication and
scaling up.

4.2 CAPACITY BUILDING FOR MAINSTREAMING MDGs IN POLICY FORMULATION

AND PLANNING

4.2.1 Enhanced Delivery of MDGs in the Millennium Districts

The enhanced delivery of MDGs through the Millennium District initiative was introduced into
the project in September 2006, as a successor to the UNVIS project and a scaling up of the
Millennium Villages Project (in the case of Siaya district). The main objective of the Initiative is
to build capacity for the stakeholders at the district and lower levels so that they can fast-track the
implementation of government policies and programmes, work with stakeholders and
communities to prepare MDGs-based plans with focus on Quick Impact Initiatives, and finally
mobilize resources for their implementation. The Initiative initially targets nine districts, spread
across the country as a learning process, after which the activities will be rolled out to other
districts.

The project proposals in the Millennium Districts (namely, MDGs Quick Impact Initiatives) are
essentially activities which can be fast-tracked, and which fall within the respective district

38
annual work plans and strategic plans. In addition, each Government department in the
respective district has carried out an audit to assess the human and institutional capacity and
competency in delivering its service mandate. From these assessments, it has emerged that there
are major capacity challenges in the districts, which include inadequate office accommodation;
inadequate logistical support (e.g. vehicles, computers, phones and internet connections etc);
inadequate data for planning at district level; inadequate human resource in terms of numbers and
skills (planning, budgeting, reporting, IT, etc); disharmony in planning for development and use
of the devolved funds available in the districts; and the enormous needs for resources to
implement a comprehensive MDG-based development framework. There is also need to validate
with communities the proposed Quick Impact Initiatives. In addition, MDGs should not be
undertaken in isolation, but be integrated with other national plans and strategies while carrying
out development activities.

However, there is need for harmonization of the M&E and MDGs indicators for tracking of
progress; training of district staff on IT, participatory approach methodology and report writing;
funding to support the district MDGs-based planning and implementation process through
administrative and general mobility for technical officers to hold consultative meetings,
undertake MDGs Quick Impact Initiatives, and for M&E; and funding for MDGs Quick Impact
Initiatives to facilitate interventions through the technical departments and other key
stakeholders.

4.2.2 Developing Capacity of Key Public Sectors for Mainstreaming MDGS in Policy and
Planning Processes

Capacity development activities were undertaken in the nine millennium districts bringing
together all actors. The main outputs were (a) district-specific medium-term draft MDG-based
plans and strategies; (b) formation of district steering committees to spearhead the MDGs
campaign and coordination of the MDG-based activities; (c) development of capacities of local
level actors on effective participation in the MDGs implementation process through training and
provision of information; and (d) initiated the process of awareness raising and campaigning for
the MDGs at the district level.

4.3 UNDERTAKING MDGs CAMPAIGN AND AWARENESS CREATION

Most of the activities under this component were implemented. These include development of
MDG campaign and advocacy strategy (and its wide dissemination), MDGs awareness and
advocacy through the electronic mass media, MDGs advocacy through the national schools drama
festivals (which was a unique opportunity for promoting knowledge and awareness on the MDGs
particularly to the youth), and support to the development of a MDG advocacy and campaign
strategy by CSOs.

4.3.1 Capacity Building for Civil Society Organizations for Advocacy on MDGs

There have been several workshops organized by the Project that have included CSOs as partners
or as target audience for awareness creation on MDGs. These include the preparations for the
September 2005 UN Summit; and a review of district level initiatives to promote the attainment of
the MDGs. The involvement of CSOs is for them to act as partners in localizing MDG-based
development strategies through civic education efforts to empower local citizens, both

39
individually and as a community, in order to set MDGs under a national framework in the context
of local reality, aspirations and priorities.

4.3.2 Provision of Grants to CSOs for MDGs Mainstreaming and Awareness Creation

The support to the development of a MDG advocacy and campaign strategy by CSOs started in
September/October 2006, but the response was lower than expected, and the process was repeated
in July 2007. The final evaluation selected 26 NGOs that would propagate a partnership on
localizing MDGs in 28 districts.

4.3.3 Turning Knowledge into Attitudes and Practices

Within the scope of KAP (knowledge, attitudes and practices), it is difficult to know the extent to
which knowledge of MDGs has been translated to a change in attitudes and practices. For
example, does peoples knowledge on mosquito nets translate into higher usage (and even
treatment of the nets)? The medium of transmitting information through glossy cover
publications is expensive and should be limited to elite audience (e.g. members of parliament and
other senior officials) and handouts in workshops. The MoP&ND could put all the awareness
messages on the web, so that civil society organizations and other users can access the information
at their own time and cost.

A host of people targeted by the awareness campaign probably finds it difficult to understand the
MDGs when they are itemized as a list of activities and goals. There may therefore be need to
repackage the MDGs as goals and practices that lead to good, healthy and responsible living. A
major effort could be undertaken to produce an easy-to-read document that could even be
marketed to form part of the syllabus for common courses in universities and colleges. Such a
publication could also target the service providers who are in regular touch with the communities
(e.g. forestry staff, teachers and nurses) so that they, and the communities they serve, have a joint
duty in the achievement of the MDGs.

4.3.4 Towards a Virtual Kenya

Although the civil service is quite competent, there was general lack of knowledge of the
activities of other ministries, unless there are regular operational links with those ministries. The
website of a ministry also does not assist other users who might be looking for some historical
information, due to the tendency to use the web as a notice board of current activities.
Consequently, old documents are removed when new ones are added.

To make both current and historical information available to the civil service and other users,
Kenya could start a semiautonomous government agency under the Vision 2030 (or initially as a
department in a ministry) to create a virtual Kenya. The site would virtually answer questions
on anything one would want to know about the country, and would electronically host current
and old Government publications and documents, and any documentation and research material
by other institutions (e.g. NGOs, research institutes and universities). It would minimize costs and
duplication of research activities in the country, and therefore lead to efficiency and better
evidence-based policy making. The Government of Finland could provide technical and training
support since there is already a similar website in Finland.

40
4.4 DEVELOPMENT OF MDGs-BASED LONG-TERM FRAMEWORK FOR ACTION

In 2006, the Government initiated a process of developing a national Long-term Framework for
Action for the implementation of the MDGs. The development of the long-term plan coincided
with the preparation of Vision 2030, and the delay in completing the Long-Term Framework for
Action made it necessary to alter its scope to harmonize it with Vision 2030. The report is
complete, but has not been published (Health and Economics Development Consortium, 2007a).
The delay in finalization of the MDGs-based Framework for Action was probably due to the
unrealistic expectation that a consultancy effort is sufficient, without support of other key
stakeholders, research institutes and peer reviewers at the final stages of its completion.

4.5 DEVELOPMENT OF A MEDIUM-TERM MDGs-BASED POVERTY REDUCTION

STRATEGY

In November 2005, the MDG Secretariat organized a two-day workshop for representatives of
various budgetary committees that included sector conveners, co-conveners, MTEF officials,
Macro-planning department (in MoP&ND), other senior government officials, and representatives
of professional organizations. In addition, four provincial workshops were held in April-May 2006
that targeted provincial and district officers, departmental heads (in planning, health, water,
education, agriculture, roads, environment), and local authorities from the whole country. The
workshop content included the MDGs process in Kenya and their linkage with the national
development framework, enhancing coordination at the local level to meet the MDGs, and
allocation of resources among competing priorities (including addressing the MDGs through the
MTEF process).

The Government policy statements have been in support of programmes and initiatives aimed at
meeting the MDGs, beginning December 2004 when a Treasury Circular advocated for more
resources to be allocated to MDGs and core poverty programmes (which are also basically MDGs).
In March 2005, the Cabinet directed that all ministries to mainstream the Goals in their
operations, and the annual Budget Strategy Papers have stressed the need to progressively
increase budgetary resources to the key sectors of the MDGs, including agriculture, education,
health, infrastructure, environment, energy and housing. In addition, statements made by the
Minister of Finance and other government officials have publicly acknowledged a budgetary
policy shift within the government and increased allocation to the devolved funds (e.g. LATF,
CDF).

However, there has been no structured process of aligning the ERS to the MDGs, but the
Medium-term Plan (covering 2008-2012) will anchor in the MDGs, and initiate a process of fully
mainstreaming MDGs in the line ministries plans and budgets. In addition, staffs of the Rural
Planning Directorate have attended training workshops on mainstreaming MDGs into the
district-level planning process, and the forthcoming District Development Plans will mainstream
MDGs and other crosscutting issues (e.g. environment, gender, youth, HIV/AIDS, disaster
management). This is intended to be a rollout in mainstreaming MDGs in the district-level
planning process, to complement the scaling up under the Millennium Districts initiative.

41
4.6 MDGs TRACKING AND REPORTING

4.6.1 Support to Finalization of the MDGs Needs Assessment Report

The project supported the finalization, publication and dissemination of the MDGs Needs
Assessment and Costing Report (2005), including sector reports on each MDG goal (apart from
Goal 8 on Global Partnership for Development). The Needs Assessment and Costing Report also
formed the basis of Kenyas successful participation in the 2005 World Summit in New York,
especially in the MDG side event for Kenya at the meetings of the Millennium Project pilot
countries.

4.6.2 Integration of MDGs into the National and Sectoral Monitoring and Evaluation
Frameworks

The National Integrated Monitoring and Evaluation System was officially launched in September
2007. The monitoring reports are based on a set of 31 selected indicators that shows the progress
made in a number of key sectors. The core indicators mainly relate to IP-ERS monitoring (and to
the MDGs - to the extent that these are aligned with the IP-ERS indicators). The Government has
expanded its conceptualization of NIMES as a system that should meet its entire national, regional
and global policy monitoring and project monitoring requirements. Consequently, an institutional
and coordination framework for NIMES has been prepared and will be rolled out to all districts,
and has provision for the establishment of District Monitoring and Evaluation Committees and
Constituency Monitoring and Evaluation Committees. Some indicators for reporting under
NIMES and MDGs differ in coverage, and even definitions, and some indicators for lower level
geographical areas may not be readily available or up-to-date. However, several Ministries also
maintain lists of indicators that satisfy both the MDGs reporting requirements, NIMES, and their
own internal needs.

4.6.3 Support to Production of Annual and Periodic MDG reports, including MDG+5 Report for
2005

The government in collaboration with other stakeholders produced the 2005 MDG Status Report
for Kenya, which is an update of the Progress Report of 2003.

Ministries were asked to prepare inputs into the 2007 MDG Status Report, and the line ministries
nominated contact officers who would undertake the exercise. The MDG contact persons in line
ministries work with the MDG Unit by preparing background sector-based MDG status reports,
and assist in consolidation of sector reports into one national report.

However, the MDG contact persons in line ministries see themselves as providers of information
to assist the MDG Unit to meet international reporting requirements under the MDGs, rather
than as partners. Some officers in line ministries also reported that MDGs are headquarters, not
district or lower-level issues, and there is lack of knowledge among service providers (e.g.
teachers) on MDGs, hence the need to incorporate the MDG issues within the education
curriculum (without necessarily calling them so).

42
4.6.4 Lack of Feedback and Feed-Forward Linkages between MDG Reporting and Policy
Formulation

Some sectors experience difficulties in updating the indicators e.g. Goal 7 on ensuring
environmental sustainability, but the difficulties reported in previous MDG status reports on
updating the indicators have not led to any financial or technical assistance to update the
databases in the relevant line ministries.

Within the environment sector, for example, reporting on MDG indicators has not led to
increased support towards data collection or even innovative approaches for reversing the
environmental decline and loss of natural resources, including soil health. For example, forest
cover can only decline, given the current practices where there is even pressure from local
communities to encroach on gazetted forests. The litany of woes on environmental and natural
resource indicators should have led to innovative approaches on increasing forest cover, including
private commercial forestry. There may be a local meaning to Bernard Mandevilles (1705)
profound economic point in the Grumbling Hive (later renamed The Fable of the Bees) that
private vices (or self-interest) can lead to public benefits such as orderly social structures like
law, language and markets (see also, Kaye, 1922) 4.

4.7 PROMOTION OF RESEARCH, ANALYTICAL WORK AND POLICY ADVOCACY ON

MDGs

The project document specified two studies, namely, research and analysis on the relationship
between debt, aid and trade and the realization of the MDGs; and participation in relevant
regional and global forums. However, several components have been added, namely, external
evaluation of poverty eradication commission (PEC), and a proposed study of Kenyas tax and
benefits system. The external evaluation of the PEC was undertaken between April and
September 2007; and it is in the final stages of its completion. The Millennium Villages Project is
not part of this project, but the MDG Unit has been borrowing lessons from their experiences and
making follow-ups as part of the general coordination function of the MoP&ND. In 2007, this
project partnered with the Millennium Cities Initiative to assist the Kisumu Millennium City
Initiative through promotion of foreign direct investment and preparation of an MDG-based City
Development Strategy.

4.7.1 Financing Sources for Achieving the MDGs in Kenya

A draft report of the study on financing sources for achieving the MDGs in Kenya was discussed
in a PSC meeting in March 2007 (together with the report on long-term framework for action),
and KIPPRA produced a revised draft in November 2007 (Kenya Institute for Public Policy
Research and Analysis, 2007). The report states that, although Kenya does not qualify for debt

4
Originally issued as The Grumbling Hive, the dishonesty and selfishness in this hive is still the stuff out of
which is made the complicated social mechanisms of a great state. The celebrated lines read: Vast numbers
throngd the fruitful hive; Yet those vast numbers made em thrive; Millions endeavouring to supply/Each
others lust and vanity; Thus every part was full of vice, Yet the whole mass a paradise. However,
Mandevilles doctrine is deceptively simple, as one might conclude that private vices, public benefits
sanctions indulgence in vice on the ground that such indulgence is, after all, unavoidable and socially
useful.

43
relief under the current debt relief criteria, it should endeavor to make debt relief a positive
source of financing by, say, working with other interested countries to lobby for revision of
criteria under the Heavily Indebted Poor Countries (HIPC) initiative. It is apparent from the
KIPPRA study that Kenya can not achieve the MDGs without significant international donor
support.

4.7.2 Participation in Relevant Regional and Global Forums

The management of the PIU and other stakeholders that partner with the MDG Unit have made
several study tours in different countries to study the experiences of other countries undertaking
similar activities, including visits to Philippines, India and Mongolia during September-November
2007. The report of the study tour describes Philippines as a global best practice in
implementation of its programmes for mainstreaming and localizing the MDGs. The main lesson
from India was on the use of citizens report card as a tool to provide public agencies with
systematic feedback from users of public services. The study tour to Mongolia was to learn from
the experience of Mongolia in developing an MDG-based Needs Assessment and MDG-consistent
macroeconomic framework as well as poverty reduction initiatives undertaken by the
Government of Mongolia.

The main lesson from the visits to Philippines, India and Mongolia is probably in the involvement
of all stakeholders in the development process anchored on the MDGs. The government of
Philippines has managed to rally all the stakeholders (the public sector, private sector and the
civil society) around effective implementation and monitoring of the MDGs and a lot appear to
have been achieved in that country.

4.7.3 Lack of Feedback and Feed-Forward Linkages between Research on MDGs and Policy
Action

The research and analytical work conducted has pointed to the need for more resources towards
the achievement of the MDGs, including enhanced donor support and debt relief. However, these
findings have not found their way into policy and no donor conference has so far been held on
financing of the MDGs. The current medium-term expenditure framework is based on anticipated
funding from local and external sources, and has not therefore factored in the findings of the
Needs Assessment Study or the draft Long-Term Framework for Action.

4.8 PROJECT MANAGEMENT, MONITORING AND EVALUATION

In the memorandum signed between the Government of Kenya, Government of Finland and
UNDP, the Government of Finland was to contribute funds to UNDP for the implementation of
the Project; for UNDP to receive, administer and account for the contribution for the execution of
the Project; while the MoP&ND was to implement the MDG project on the basis of an Annual
Work Plan agreed upon by the three parties. The MDG Unit currently has three United Nations
Volunteers (UNVs).

The PIU is headed by the National Coordinator, who is at the level of Chief Economist and
reports directly to the Permanent Secretary. This gives the MDG Unit leverage as it is not housed
under the Ministrys directorates. Given the workload, it is clear that the Unit does not have the
capacity to deliver fully on its mandate, which currently has a very large field component. The

44
Project recruited an MDG advisor through a competitive process, but there was no effective
supervision of his work. There is a Project Technical Committee, composed of technical officers
from the MoP&ND, UNDP and the Embassy of Finland, which should be explicitly provided for
in the next phase of the Project.

The Annual Work Plan and Budget (AWP/B) provides the basis upon which project activities are
implemented. Whereas the PIU has the responsibility of preparing the work plan, activities
cannot continue without the approval of all the parties, and disputes over attempts to introduce
new activities that were not fully provided for in the Project Document (or agreed upon in the
PSC meetings) delayed the work plan for 2006/07 for about five months.

The PIU initiates the process of procuring goods and services, according to government
regulations, and in some cases the PIU requests UNDP to directly procure goods and services on
behalf of the Unit. After the goods and services have been provided, the PIU sends the
documentation to UNDP for direct payment to the suppliers. There were reportedly some delays
in paying suppliers due to the lengthy procurement and payment procedures. The financial
reports are sometimes not clear to the other two parties.

4.9 IN CAPSULE FORM

As can be seen from the Implementation Matrix, the implementation rate is around 50%. At the
initial stages of the project, there were many workshops to sensitize Government staff in MoF and
line ministries on mainstreaming MDGs in the planning and budgetary processes. However, there
was little follow-up on whether the participants implemented the recommendations of the
workshops e.g. in the budgetary processes. The project has not made significant engagement with
some of the key stakeholders (e.g. members of parliament and local authority leaders), despite
their major role in managing devolved funds and the fact there are easy avenues of reaching them
e.g. parliamentary departmental committees and Ministry of Local Government, respectively.

The MDGs campaign and awareness creation recorded appreciable success through production
and dissemination of IEC materials. Even the Public Service Commission includes questions on
MDGs during interviews for promotion of senior civil service staff. However, some line ministries
and lower geographical levels (e.g. district and below) have knowledge and capacity gaps that
need to be addressed to mainstream MDGs in their planning, budgeting, implementation and
M&E processes.

The mode of delivery of IEC messages was rather expensive (which made it difficult to make it a
continuous process), hence the need to use the web so that users can access the IEC messages at
their own time and cost. The lack of a common language at the grassroots imposes a cost and
burden on most awareness creation initiatives in Kenya, in comparison with, say, Tanzania.

The MDGs tracking and reporting has also been exemplary, and has involved line ministries and
the civil society. However, line ministries reported that there is (a) no support towards data
collection in cases where indicators are not available or information is out of date, and (b) the
MDGs tracking and reporting has not fed back into policy actions to change the course of the
indicators (e.g. through more donor funding).

45
As shown in Table 2, the NIMES framework contains 31 indicators (based on the IP-ERS) and
some of the indicators are relevant to MDGs, and the NIMES also use proxy indicators where the
MDG indicator is not reliable or is not regularly updated (e.g. children under five years sleeping
under insecticide-treated bed nets as proxy for inpatient malaria morbidity). In addition, several
ministries maintain lists of indicators that satisfy the MDG reporting requirements, NIMES, and
their own internal needs (the notable examples are in education and water sectors). The biggest
challenge is in availability of indicators for lower geographical levels e.g. district.

The vertical coordination system (between district departmental heads and their ministries)
within the Governments administrative structure makes it difficult to harmonize Government
activities at the district level. At the district or lower levels, there is little coordination among
custodians of various funding windows (district departmental heads, local authorities and
members of parliament) and between Government departments and the civil society and the
private sector, hence the difficulties in mainstreaming activities at this level towards achievement
of the MDGs.

The project took over some activities of the UN system, especially in mainstreaming MDGs in
district-level planning, which has recorded success in the form of MDG-based district
development plans. This was a positive development, but probably affected the performance of
other activities, given the manpower constraints in the MDG Unit.

The planning, budgeting and policy processes are gradually moving towards mainstreaming
MDGs. The Government policy statements beginning December 2004 (including the annual
Budget Strategy Paper) emphasize that budget allocation should give special focus to core poverty
programs and achievement of the MDGs, which has led to a gradual increase in budgetary
resources to the key sectors of the MDGs (e.g. agriculture, education, health, infrastructure,
environment, energy and housing) and increased allocation to the devolved funds e.g. LATF,
CDF. The Social Pillar in Kenya Vision 2030 includes most of the MDGs, namely, education and
training, health sector, water and sanitation, the environment, housing and urbanization, and
gender, youth and vulnerable groups. In addition, guidelines for preparing Public Expenditure
Reviews pay special focus on sectors that are critical to the achievement of the MDGs and raising
the human capital of the poor (e.g. education and health).

The research and analytical work on MDGs national Long-term Framework for Action and
financing resources on MDGs are complete, but have experienced inordinate delays. For such
activities, a consultant can only provide an initial document, as a basis for inputs from other
stakeholders, including peer review by research institutions (as anticipated in the Project
Document). The findings in the analytical reports have not influenced policy, since no donor
conferences on financing MDGs have been held, and the current budgetary framework is based
on anticipated funding from domestic and external sources.

4.10 SUMMARY OF MAIN RECOMMENDATIONS

The parties to the project may have different perceptions about the goals and management of the
project, and it might not help to force them to have the same partnership arrangements in the
next phase. This is especially likely to affect the decision on responsibility for disbursement of
funds.

46
The next phase of the project should include the need to have a project technical committee, to
support the project steering committee. A national inter-ministerial steering committee similar to
the one that coordinated MDG-related activities prior to the Project could also be established to
coordinate and give policy direction to the MDG activities at the national level.

The project should create formal links with, and probably support, other departments which have
provided it with infrastructure for its operations, mainly the Rural Planning Directorate and the
Monitoring and Evaluation Directorate in MoP&ND. The next phase of the project should also
draw on the expertise of the MDG Centre in Nairobi.

The project should widen the scope of awareness creation to include parliamentarians and local
authorities, due to their seminal role in national and local-level policy formation and allocation of
resources.

The research component should include research grants to scholars and university students, so
that they can do research on practical MDGs-related issues.

The finalization of research outputs should include a wide spectrum of stakeholders so as to tap
into the knowledge base of local and international research institutes, and incorporate views of
other stakeholders within Government and civil society.

The Project should bring the pending studies to a speedy close. In addition, the Government
institutions responsible for macroeconomic modeling (MoP&ND, KIPPRA, Central Bank of
Kenya, local university scholars) should receive the necessary support to enhance their capacity to
incorporate MDGs-based planning within the existing modeling frameworks.

The Government and relevant development partners could organize a donor conference on
financing the MDGs, and lobby for revision of criteria on eligibility for debt relief without
harming Kenyas global credit rating. Such lobby for more funding can also be undertaken
through the sector-based development partners coordination groups operating under the Kenya
Joint Assistance Strategy (KJAS). The Government could also hold discussions with individual
donors for possibilities of debt swaps tied to particular sectors or activities 5.

The Kenya government and donors should work together to develop a natural resource policy,
and create opportunities and incentives for forestry as business. There may also be need for special
mention of environmental conservation in the revised project document.

The mainstreaming of MDGs in planning and policy formulation at the district should include
both a scaling up process (to more districts within the project) and a rollout (mainstreaming
MDGs through the forthcoming district development plans). There should also be multiplicity of
donors to fund Quick Impact Initiatives identified during the district rapid assessment exercises.

MoP&ND should work with line ministries and universities to repackage the MDGs so that the
messages are available to service providers, and integrated in the common courses in the local
universities and colleges. Such a package should also include interrelationships between various

5
See, International Monetary Fund (2003b) and Organisation for Economic Co-operation and Development
(2007) for definitions of Debt Swaps, Debt-for-Development Swap, and Debt-for-Nature Swap.

47
millennium development goals, and probably the role of population policy in the achievement of
the goals.

There is need to explore web-based medium of dissemination, as the costs of glossy hard copies
has limited audience and made it impossible to make the IEC component continuous. The
Government could also create a virtual Kenya, since the poor information flow is not limited to
the MDGs or activities related to this project.

The MDG Unit should be strengthened through increased manpower, and other technical,
financial and logistical support, including deployment of more senior officers to the MDG Unit,
technical assistance and contracting out some of the services.

The reports from the civil societies engaged to localize MDGs should be used as the basis for
developing a national IEC strategy, and to inform the nature of civil society partnerships in the
next phase of the project. The starting point could be a structured workshop for the participating
CSOs to share their experiences in identification of target audience for community entry, the
message and the medium, and the relationship between the MDGs and local level cultural and
developmental challenges.

48
 MAINSTREAMING MDGs IN KENYAS DEVELOPMENT PROCESS: IMPLEMENTATION MATRIX
EXPECTED KEY ACTIVITIES/TARGETS ACTIVITIES UNDERTAKEN COMMENTS
OUTPUT
Capacity for MDG Identification and training of staff at Many training workshops have been held on this
mainstreaming in UNDP, MoP&ND, MoF to sensitize and
policy formulation train officers at line ministries,
improved Parliamentarians
Sensitization and training of technical, Many training workshops have been held on this
planning and finance officers in line
ministries on linkages between MDGs
and ERS, MTEF, budgeting, PER
Sensitization of parliamentarians on Not done The project has not made significant engagement
linkages between MDGs and ERS, with parliamentarians and local authorities despite
MTEF, budgeting, PER their role in management of devolved funds e.g.
CDF and LATF.
Identification/training of line ministry Many training workshops have been held on this
staff to sensitize/train public officers,
CSO and private sector at the district
level
Sensitization/training at district level The enhanced delivery of MDGs through the Millennium
on linkages of MDGs with ERS, MTEF, District initiative was introduced into the project in September
budgeting, PER 2006;
Capacity development activities were undertaken in the nine
millennium districts bringing together all actors.
Undertaking MDGs Provision of support to the Completed in 2006
campaign and development of a national MDG
awareness creation advocacy and campaign strategy by
MoP&ND
Development of Government campaign Completed in 2006
materials and messages
Organization of a stakeholder meeting Completed in 2006
to review and critique national MDG
advocacy and campaign strategy
Support to development of a MDG Completed in 2006
advocacy and campaign strategy by
CSOs
Development and provision of relevant Completed in 2006, but some IEC materials continue to be The activity was very vigorous, but the IEC

49
EXPECTED KEY ACTIVITIES/TARGETS ACTIVITIES UNDERTAKEN COMMENTS
OUTPUT
IEC materials on MDGs by GoK provided during workshops materials are not widely available since they were
not put on the web.
Implementation of local MDG Started in March 2008 after a long delay
campaigns by CSOs
Identification of non-government Not done
donor funding for priority MDG
actions
Development of a Identification of, and discussions with, Not done
national MDG-based relevant personnel and centers of
long-term excellence
framework for action
Local and international consultancies The development of a national MDGs-based long-term plan The delay in finalization of the MDGs-based
on MDG-based long-term perspective coincided with the preparation of Vision 2030, and the delay to Framework for Action was probably due to the
studies complete it made it necessary to alter its scope to harmonize it unrealistic expectation that a consultancy effort is
with Vision 2030. The report is complete, but has not been sufficient, without support of other key
published. stakeholders, research institutes and peer
reviewers at the final stages of its completion.
Meeting to review and prepare Not done
Framework for Action
Production of report on Long-Term Not yet published
Framework for Action
Revision of medium- Consultancies for revision of ERS, Not done, since the foundation of the activity is Long-Term
term MDGs-based MTEF to achieve Long-Term Framework for Action, which has not been finalized
poverty reduction Framework for Action
strategies
Workshops and seminars with Several workshops have been held with headquarters and There has been no structured process of aligning
MoP&ND, MoF, and line ministries on district-level staff on the MDGs process in Kenya and their the ERS to the MDGs, but the Medium-term Plan
alignment of ERS/MTEF to MDGs linkage with the national development framework, enhancing 2008-2012 will anchor in the MDGs, and the
coordination at the local level to meet the MDGs, and forthcoming District Development Plans will
allocation of resources among competing priorities (including mainstream MDGs and other crosscutting issues
addressing the MDGs through the MTEF process). (e.g. environment, gender, youth, HIV/AIDS,
The Government policy statements beginning December 2004 disaster management)
have advocated for more resources to be allocated to MDGs and
core poverty programmes (which are also basically MDGs).
Consequently, there has been gradual increase in budgetary

50
EXPECTED KEY ACTIVITIES/TARGETS
OUTPUT
MDGs tracking and Finalization of the Needs Assessment
reporting Report
Preparation of side events in New York
and presentation of the MDG+5 Report
to development partners
Review of Needs Assessment Report at
stakeholders meeting
Integration of MDG indicators into the
national (ERS/MTEF) and sectoral
monitoring and evaluation frameworks
to bring on board sub-national
perspectives
Provision of support to research,
information gathering, processing and
dissemination
Production of periodic MDG progress
report
ACTIVITIES UNDERTAKEN COMMENTS
resources to the key sectors of the MDGs, including,
agriculture, education, health, infrastructure, environment,
energy and housing; and increased allocation to the devolved
funds e.g. LATF, CDF.
The MDGs Needs Assessment and Costing Report was The figures in the MDGs Needs Assessment and
published in August 2005, including sector reports on each Costing Report not implemented in the budgeting
MDG goal (apart from Goal 8 on Global Partnership for process, due to resource constraints.
Development).
The Needs Assessment and Costing Report formed the basis of
Kenyas successful participation in the 2005 World Summit in
New York, especially in the MDG side event for Kenya at the
meetings of MDG pilot countries.
The draft MDGs Needs Assessment and Costing Report was
shared with a wide variety of stakeholders before it was
published
The National Integrated Monitoring and Evaluation System The NIMES will be rolled out to all districts, and
(NIMES) was officially launched in September 2007. The has provision for the establishment of District
annual monitoring reports from the NIMES are based on a set Monitoring and Evaluation Committees and
of 31 selected indicators that shows the progress made in a Constituency Monitoring and Evaluation
number of key sectors. The core indicators mainly relate to IP- Committees.
ERS monitoring (and to the MDGs - to the extent that these are
aligned with the IP-ERS indicators).
Several Ministries maintain lists of indicators that satisfy both
the MDGs reporting requirements, NIMES, and their own
internal needs.
Not done
The government in collaboration with other stakeholders Reporting on MDG indicators has not led to
produced the 2005 MDG Status Report for Kenya. increased financial or technical support towards
Ministries prepared inputs into the 2007 MDG Status Report, data collection to update the indicators or even
and assisted in consolidation of sector reports into one national innovative approaches, especially on reversing
report. environmental decline and loss of natural
The MDG contact persons in line ministries see themselves as resources.
providers of information to assist the MDG Unit to meet
51
EXPECTED KEY ACTIVITIES/TARGETS
OUTPUT
Promotion of Targeted policy research and analysis
research, analytical on MDG-related issues to deepen
work and policy understanding of the MDGs
advocacy on MDGs
Production of policy briefs
Organize national policy dialogue
forums
Undertaking cross-border/regional
comparative studies on dynamics that
arise from externalities in technology
and trade within sub-regions
Provision of support to research and
analysis on the relationship between
debt, aid and trade and the realization
of the MDGs
Participation in relevant regional and
global forums
ACTIVITIES UNDERTAKEN COMMENTS
international reporting requirements under the MDGs, rather
than as partners.
Some line ministries reported that MDGs are headquarters, not
district or lower-level issues, and there is lack of knowledge
among service providers (e.g. teachers), hence the need to
incorporate the MDG issues within the education curriculum.
External evaluation of Poverty Eradication Commission
undertaken, though final report not yet available; the activity
was not in the original project document.
TORs developed for study of Kenyas tax and benefits system,
but consultant not yet identified; the activity was not in the
original Project Document.
Not done
Not done
Not done
A draft report of the study on financing sources for achieving The findings have not found their way into policy
the MDGs in Kenya is available. It is apparent from the and no donor conference has so far been held on
KIPPRA study that Kenya can not achieve the MDGs without financing of the MDGs, while the current MTEF
significant international donor support. has not factored in the findings since it is based on
anticipated funding from local and external
sources.
The MDG Unit and partners have made study tours to The study tours were undertaken in late 2007, and
Philippines, India and Mongolia in 2007; main lessons were on therefore the lessons have not been implemented
mainstreaming and localizing MDGs including rallying all the but probably inform current activities on the
stakeholders (the public sector, private sector and the civil Millennium Districts initiative.
society) around effective implementation and monitoring of the
MDGs, and the application of an MDG-consistent
macroeconomic framework
52
 REFERENCES

Patricia Aguilo, Amanda LEsperance, Elizabeth Mbau, Phillip Palmer, Asmita Patel and Tim
Sparkman, Attracting Investment to Kisumu: Opportunities and Challenges, Prepared for The
Earth Institute, Millennium Cities Initiative, Columbia University, May 10, 2007
[https://sipa.columbia.edu/sites/default/files/MCI%20-
%20Investment%20Opportunities%20in%20Kisumu,%20Kenya_0.pdf]

Diana Alarcon, The MDGs in National Policy Frameworks, Development Policy Journal, 3(1),
April 2003

Stephen Browne and Martim Maya, Financing the MDGs: An Analysis of Cameroon, Uganda and
Philippines, Development Policy Journal, 3(1), April 2003

Central Bureau of Statistics [Kenya], Ministry of Health [Kenya], and ORC Macro, Kenya
Demographic and Health Survey 2003, Calverton, Maryland, 2004
[http://www.dhsprogram.com/pubs/pdf/FR151/FR151.pdf]

Sanjeev Gupta, Robert Powell and Yongzheng Yang, The Macroeconomic Challenges of Scaling
up Aid to Africa, Working Paper No. WP/05/179, International Monetary Fund, Washington,
DC, September 2005 [www.imf.org/external/pubs/ft/wp/2005/wp05179.pdf]

Sanjeev Gupta, Robert Powell and Yonzheng Yang, Macroeconomic Challenges of Scaling up aid
to Africa: A checklist for Practitioners, International Monetary Fund, Washington, DC, 2006
[https://www.imf.org/external/pubs/ft/afr/aid/2006/eng/aid.pdf ]

Health and Economics Development Consortium (HEDC), An MDG-Based Long-Term Plan for
Kenya, Report prepared for the Ministry of Planning and National Development, Nairobi,
September 2007a

Health and Economics Development Consortium (HEDC), Draft Report of the External
Evaluation of Poverty Eradication Commission, Report prepared for the Ministry of Planning
and National Development, Nairobi, November 2007b

International Monetary Fund, Kenya: Debt Sustainability Analysis, IMF Country Report No.
03/400, Washington, DC, December 2003a
[https://www.imf.org/external/pubs/ft/scr/2003/cr03400.pdf ]

International Monetary Fund, External Debt Statistics: Guide for Compilers and Users,
Washington, D.C., 2003b
[http://ec.europa.eu/eurostat/ramon/statmanuals/files/external_debt_guide_2003_EN.pdf ]

International Monetary Fund, The Macroeconomics of Managing Increased Aid Inflows:

Experiences of Low-Income Countries and Policy Implications, Washington, DC, August 8, 2005
[https://www.imf.org/external/np/pp/eng/2005/080805a.pdf ]

53
International Monetary Fund, Republic of Mozambique: Poverty Reduction Strategy Paper, IMF
Country Report No. 07/37, Washington, DC, January 2007
[https://www.imf.org/external/pubs/ft/scr/2007/cr0737.pdf]

International Monetary Fund and International Development Association, Heavily Indebted

Poor Countries (HIPC) Initiative - List of Ring-Fenced Countries that Meet the Income and
Indebtedness Criteria at end-2004, Washington, DC, April 11, 2006
[http://siteresources.worldbank.org/INTDEBTDEPT/PolicyPapers/20893084/041106.pdf ]

F. B. Kaye, The Influence of Bernard Mandeville, Studies in Philology, 19(1), University of

North Carolina Press, January 1922; reprinted in: Richard C. Boys (ed.), Studies in the Literature
of the Augustan Age, George Wahr Publishing Co., Ann Arbor, Michigan, 1952
[https://archive.org/details/jstor-4171820; https://www.jstor.org/stable/pdf/4171820]

Kenya, Ministry of Finance and Planning, Perspectives of the Poor on Anti-Poverty Policies in
Selected Districts, Kenya Participatory Impact Monitoring (KePIM), Report prepared by Human
Resources and Social Services Department and the Central Bureau of Statistics, Nairobi, 2002

Kenya, Ministry of Finance and Planning, Perspectives of the Poor on Credit and Extension
Policies, Kenya Participatory Impact Monitoring (KePIM), Report prepared by Human Resources
and Social Services Department and the Central Bureau of Statistics, Nairobi, 2003

Kenya, Ministry of Finance and Planning, Kenya Citizens Report Card (CiReCa) on Service
Delivery: Are Services Being Delivered to the Poor? Kenya Participatory Impact Monitoring
(KePIM), Report prepared by Human Resources and Social Services Department and the Central
Bureau of Statistics, Nairobi, 2003

Kenya, Ministry of Planning and National Development, Strategic Information, Education and
Communication (IEC) Master Plan for the Millennium Development Goals, NEPADs African
Peer Review Mechanism (APRM) in Kenya, and the Economic Recovery Strategy (ERS),
September 2004

Kenya, Millennium Development Goals: Status Report for Kenya 2005, prepared in partnership
with UNDP, and the Government of Finland, Nairobi, 2005
[http://www.undp.org/content/dam/undp/library/MDG/english/MDG%20Country%20Reports/Kenya/Keny
a_MDGReport_2005.pdf]

Kenya, Achieving the Millennium Development Goals in Kenya: A Needs Assessment and
Costing Report, Report prepared by the Government of Kenya in collaboration with UNDP,
Nairobi, 2005

Kenya, Memorandum of Understanding between the Governments of Kenya and Finland and
UNDP on Support to the Mainstreaming MDGs in Kenyas Development Process Project,
Nairobi, June 2005

Kenya Mission to the United Nations, Information Section, New York, Statement by H.E. Hon.
Mwai Kibaki, President of the Republic of Kenya during the 60th session of the high plenary of the
United Nations General Assembly, 14th September 2005 in New York

54
Kenya, Ministry of Planning and National Development, Annual Progress Report 2003/2004:
Investment Programme for the Economic Recovery Strategy for Wealth and Employment
Creation 2003-2007, Nairobi, July 2005

Kenya, Millennium Development Goals Needs Assessment Report, Requirements for Goal No. 1:
Eradication of Extreme Poverty and Hunger, prepared by the Ministry of Agriculture in
collaboration with the Ministry of Planning and National Development, with the support of
UNDP and Government of Finland, Nairobi, 2006

Kenya, Millennium Development Goals Needs Assessment Report, Requirements for Goal No. 2:
Achieving Universal Primary Education, prepared by the Ministry of Education in collaboration
with the Ministry of Planning and National Development, with the support of UNDP and
Government of Finland, Nairobi, 2006

Kenya, Millennium Development Goals Needs Assessment Report, Requirements for Goals No. 4
& 5: Reducing Child Mortality & Improving Maternal Health, prepared by the Ministry of
Health in collaboration with the Ministry of Planning and National Development, with the
support of UNDP and Government of Finland, Nairobi, 2006

Kenya, Millennium Development Goals Needs Assessment Report, Requirements for Goal No. 6:
Combating HIV/AIDS, Malaria and Tuberculosis, prepared by the Ministry of Health in
collaboration with the Ministry of Planning and National Development, with the support of
UNDP and Government of Finland, Nairobi, 2006

Kenya, Millennium Development Goals Needs Assessment Report, Requirements for Goal No. 7,
Target 9: Ensuring Environmental Sustainability, prepared by the Ministry of Environment and
Natural Resources in collaboration with the Ministry of Planning and National Development,
with the support of UNDP and Government of Finland, Nairobi, 2006

Kenya, Millennium Development Goals Needs Assessment Report, Requirements for Goal No. 7,
Target 10: Providing Sustainable Water and Sanitation Services, prepared by the Ministry of
Water and Irrigation in collaboration with the Ministry of Planning and National Development,
with the support of UNDP and Government of Finland, Nairobi, 2006

Kenya, Millennium Development Goals Needs Assessment Report, Requirements for Goal No. 7,
Target 11: Improving the Lives of Slum Dwellers, prepared by the Ministry of Housing in
collaboration with the Ministry of Planning and National Development, with the support of
UNDP and Government of Finland, Nairobi, 2006

Kenya, Ministry of Planning and National Development, Provincial Workshops Report on

Mainstreaming MDGs in Kenyas Policy, Planning and Budgetary Process, Nairobi, May 2006

Kenya, Ministry of Planning and National Development, Workshop on Enhanced Delivery of the
Millennium Development Goals in the 8 Millennium Districts, 5-6 October 2006

Kenya, Ministry of Planning and National Development, A Practical Approach to Achieving the
MDGs in Kenya: A Handbook on Millennium Villages, Nairobi, 2006

55
Kenya, Ministry of Planning and National Development, Public Expenditure Review 2006:
Enhancing the Effectiveness of Public Spending: Special Focus on the Social Sector, Nairobi, 2006

Kenya, Economic Recovery Strategy: Annual Progress report 2004-2005, Monitoring and
Evaluation Directorate, Ministry of Planning and National Development, Nairobi, August 2006

Kenya, Ministry of Planning and National Development, Master Plan for the Implementation of
a National Integrated Monitoring and Evaluation System, Nairobi, July 2007

Kenya, Budget Speech for the fiscal year 2007/2008, Nairobi, 2007

Kenya, in collaboration with Harmonization Alignment and Coordination (HAC) donor working
group, Kenya Joint Assistance Strategy 2007-2012: Improving Aid Effectiveness, Nairobi, 2007
[http://www.fao.org/fileadmin/user_upload/drought/docs/KJAS.pdf]

Kenya, Ministry of Planning and National Development, Report on the 5-Day Working Session
for Preparation of District Plans for MDGs Implementation: Muranga District, Central Province,
April 2007

Kenya, Ministry of Planning and National Development, Implementation of the

Provincial/District-Based MDGs Programme, A Report of the Rapid Assessment of MDGs in Kilifi
District, May 2007

Kenya, Ministry of Planning and National Development, Implementation of the

Provincial/District-Based MDGs Programme, Report of the MDGs Assessment for Siaya District
carried out during 14-22 June 2007 at Siaya Agricultural Training Centre, June 2007

Kenya, Ministry of Planning and National Development, Implementation of the

Provincial/District-Based MDGs Programme, Report of the MDGs Assessment for Bondo District
carried out during 23-27 July 2007 at the Switel Hotel Annex, July 2007

Kenya, Ministry of Planning and National Development, Implementation of the

Provincial/District-Based MDGs Programme, Report of the MDGs Assessment for Suba District
carried out during 30 July-3 August 2007, ICIPE Guest Centre, August 2007

Kenya, Ministry of Planning and National Development, Report of Government of Kenya study
team to Mongolia, 24-29th September 2007, August 2007

Kenya, Kenya Vision 2030: A Globally Competitive and Prosperous Kenya, Nairobi, October 2007

Kenya, Ministry of Planning and National Development, Remarks by Dr. Edward Sambili,
Permanent Secretary, Ministry of Planning & National Development, During the Official Launch
of the Government - CSOs Partnership on Localizing MDGs, 12th March 2008

Kenya, Ministry of Planning and National Development, Implementation of the

Provincial/District-Based MDGs Programme, Report of the MDGs Plan for Turkana District,
March 2008

56
Kenya, Ministry of Education, Education Sector Report 2008: Realizing Vision 2030 Goals
through Effective and Efficient Public Spending, Nairobi, January 2008

Kenya Institute for Public Policy Research and Analysis (KIPPRA), The Cost of Achieving the
Millennium Development Goals in Kenya: Towards a Realistic Macroeconomic Framework,
Report prepared for the Ministry of Planning and National Development, Nairobi, 2004

Kenya Institute for Public Policy Research and Analysis (KIPPRA), Financing Sources for
Achieving Millennium Development Goals in Kenya: Domestic Resources, Debt and Official
Development Assistance, Report prepared for the Ministry of Planning and National
Development, Nairobi, January 2007

Joseph Y. Lim, Towards Financing the Millennium Development Goals of the Philippines,
Discussion Paper No. 2006-23, Philippine Institute for Development Studies, December 2006
[http://dirp3.pids.gov.ph/ris/dps/pidsdps0623.pdf]

Bernard Mandeville (1705), The Fable of the Bees, Capricorn Books, New York, 1962
[https://archive.org/details/fableofthebeesor027890mbp]

Millennium Cities Initiative (MCI), Invest in Kenya: Focus Kisumu, The Earth Institute at
Columbia University, July 2007 [mci.ei.columbia.edu/files/2013/01/Kisumu-Investment-Guide-copy.pdf]

Mongolia, The Millennium Development Goals Implementation, Second National Report,

Ulaanbaatar, 2007 [http://www.mn.undp.org/content/dam/mongolia/Publications/MDGreports/MDG-
NR2-Eng%20resized.pdf]

Mongolia, Task force to develop comprehensive national development strategy, Millennium

Development Goals-based Comprehensive National Development Strategy of Mongolia, draft,
Ulaanbaatar City, 2007

Caroline Moser and Annalise Moser, Gender Mainstreaming since Beijing: A Review of Success
and Limitations in International Institutions. Gender and Development, 13(2), July 2005

John Thinguri Mukui, Kenya: Assessment of Support and Capacity Needs to Strengthen National
MDG Initiatives, Report prepared for United Nations Development Programme, Nairobi, July
2004 [https://www.scribd.com/document/304200701/Kenya-Assessment-of-Support-and-Capacity-Needs-
to-Strengthen-National-MDG-Initiatives]

John Thinguri Mukui, Performance in Utilization and Management of Official Development

Assistance (ODA) in Kenya, Paper prepared for the External Resources Department (ERD),
Ministry of Finance, Nairobi, June 2005

Washington A. J. Okumu, The Methodological Framework for the Design, Implementation and
Management of Targeted Poverty Reduction Programmes in Kenyas Millennium Districts for the
Achievement of the Millennium Development Goals, Nairobi, December 2007

57
Organisation for Economic Co-operation and Development, OECD Glossary of Statistical Terms,
OECD Publishing, Paris, 2007 [http://stats.oecd.org/glossary/download.asp]

Matteo Pedercini, Potential Contributions of Existing Computer-Based Models to Comparative

Assessment of Development Options, Conservation International, Washington, DC, February
2005 [http://www.millennium-institute.org/resources/elibrary/papers/CI-ModelsReport-Final.pdf]

Philippines, Philippines Midterm Progress Report on the Millennium Development Goals 2007,
2007 [http://s3.amazonaws.com/zanran_storage/www.neda.gov.ph/ContentPages/47900343.pdf ]

Aruna Rao and David Kelleher, Is there life after gender mainstreaming? Gender and
Development, 13(2), July 2005 [http://yfa.awid.org/wp-
content/uploads/2010/03/life_after_mainstreaming.pdf]

The Earth Institute at Columbia University, Baseline Report: Millennium Research Village, Sauri,
Kenya, August 9, 2007 [http://mp.convio.net/site/DocServer/Sauri_Baseline_Report_final_3-7-07.pdf]

The MDG Centre, Eastern and Southern Africa, Bridging Global Commitments with Local
Action, Inaugural Report 2007, Nairobi, Kenya, 2007 [http://wordpress.ei.columbia.edu/mdg-
east/files/2013/02/MDG_Bridging_global_2007.pdf]

United Nations, Monterrey Consensus of the International Conference on Financing for

Development, adopted at the International Conference on Financing for Development,
Monterrey, Mexico, 18-22 March 2002, 2003
[http://www.un.org/esa/ffd/monterrey/MonterreyConsensus.pdf]

United Nations Development Group, Indicators for Monitoring the Millennium Development
Goals: Definitions, Rationale, Concepts and Sources, United Nations, New York, 2003
[http://mdgs.un.org/unsd/mdg/Resources/Attach/Indicators/HandbookEnglish.pdf ]

United Nations Office in Nairobi, United Nations Development Assistance Framework (UNDAF)
Kenya 2004-2008, Nairobi, Kenya, March 2003
[https://www.unops.org/SiteCollectionDocuments/Information-disclosure/UNDAFs/Kenya-UNDAF-2004-
2008.pdf]

UN Resident Coordinator in Kenya, Annual Report 2003, Nairobi, Kenya, 2003

UN Resident Coordinator in Kenya, Annual Report 2006, Nairobi, Kenya, 2006

United Nations Development Programme, UN Volunteer Intermediation Strategy (UNVIS) e-

journal Quarter 3, Nairobi, Kenya, 2007

United Nations Development Programme, Mid-term review of UNDP/GoK Country Programme

Action Plan (CPAP) 2004-2008, Nairobi, Kenya, January 2007a

United Nations Development Programme, Regional Bureau for Africa, Generic Macroeconomic
Framework, Workshop on Macroeconomic Analysis and Modeling in Support of MDG-Based

58
Planning in Africa, Lusaka, Zambia, October 2007b
[http://unpan1.un.org/intradoc/groups/public/documents/un/unpan028217.pdf ]

UN Economic and Social Council (ECOSOC), UN Economic and Social Council Resolution
1997/2: Agreed Conclusions, 18 July 1997
[http://www.un.org/womenwatch/osagi/pdf/ECOSOCAC1997.2.PDF]

Wada Na Todo Abhiyan, Securing Rights: Citizens Report on MDGs, New Delhi, September
2005 [http://sansad.org.in/pdf/IndiaReportEPublishing.pdf]

Charles F. Westoff, The Potential Demand for Family Planning: A new measure of unmet need
and estimates for five Latin American countries, International Family Planning Perspectives,
14(2), June 1988

Charles F. Westoff, New Estimates of Unmet Need and the Demand for Family Planning, DHS
Comparative Reports No. 14, Macro International Inc., Calverton, Maryland, USA, December
2006 [https://dhsprogram.com/pubs/pdf/CR14/CR14.pdf]

Charles F. Westoff and Anne R. Cross, The Stall in the Fertility Transition in Kenya, DHS
Analytical Studies No. 9, ORC Macro, Calverton, Maryland, USA, May 2006
[http://dhsprogram.com/pubs/pdf/AS9/AS9.pdf]

World Bank, Global Monitoring Report 2004: Policies and Actions for Achieving the Millennium
Development Goals and Related Outcomes, Washington, DC, 2004
[http://documents.worldbank.org/curated/en/804681468779672038/pdf/298960PAPER0GMR02004.pdf ]

59
ANNEX ONE: SUMMARY OF FINDINGS FROM VISITS TO FOUR MILLENNIUM DISTRICTS

As part of the midterm review, the consultant visited four of the nine millennium districts,
namely, Garissa, Kilifi, Muranga and Siaya. The information collected during the visits included
(a) a comparison of the district development plan (DDP) and the MDG-based rapid assessment
reports; (b) the resources available to the district through the central government budget and the
devolved funds (mainly CDF and LATF), the activities implemented through the various funding
windows, and the coordination mechanisms between the various funding mechanisms; (c) the
monitoring and evaluation (M&E) function at the district level; (d) the expectation of the districts
following the MDG-based rapid assessments; (e) views on how the rapid assessments should be
conducted in future and their views on whether an MDG-based planning framework is
appropriate to their planning needs at the district level; and (f) the appropriate Information,
Education and Communication (IEC) package that adequately serves communities and service
providers, so as to inform the IEC strategic framework and development of general IEC materials.
The devolved funds were included in the agenda for the district visits because a report prepared
by an inter-ministerial committee prior to the September 2005 UN Summit had concluded that
the CDF can be used as an innovative funding mechanism for achieving the MDGs.

IDENTIFICATION OF QUICK IMPACT INITIATIVES

The Quick Impact Initiatives (or Quick Wins) were understood to be small components of
projects that are part of the district development plans, but have quick and sustainable impact and
minimum cost overruns. The identification of the Quick Impact Initiatives was conducted in an
inclusive manner as it involved government departmental heads, civil society organizations,
churches, and local communities. Kilifi has long experience with involvement of communities in
planning, and even the new DDP took advantage of participatory rural appraisals carried out in
the district (e.g. by NALEP, World Vision) and then took the ideas to technical people who could
translate these ideas into projects.

Most of the Quick Impact Initiatives were drawn from the District Development Plans and
addresses problems that are well known. The DDP is a generic document that plans for, say, 800
toilets in primary schools in the district, but the rapid assessments were specific to the
areas/institutions the projects were to be implemented. The Quick Impact Initiatives were akin to
the annual work plan where issues are more specific.

In Siaya, activities based on the DDP included sensitization and mobilization of fish farmers,
including stocking of rehabilitated ponds; training of school committees and management boards;
and forestry through rehabilitation of hill tops (there is no gazetted forest in Siaya district). The
preparation of the Quick Impact Initiatives for Siaya district was also drawn from experiences in
the Sauri Millennium Village (e.g. increase in maize productivity), but the target farmers in the
district rapid assessment are too few (40) to act as role models for the entire district.

In Garissa, the issues discussed during the district rapid assessment were (a) livestock health and
production, (b) agricultural production along the Tana river, (c) health (infant and child mortality
and the big diseases), (d) education (free primary education and gender parity), (e) wildlife
resources (there is an undeveloped giraffe sanctuary in the district which is not fenced), and (f)
crosscutting issues of youth, gender and HIV/AIDS that need to be mainstreamed. The rapid

60
assessment also looked at coordination of partners to avoid duplication and increase efficiency in
service delivery, and the need for information and data to inform and mobilize service providers
and communities.

In Muranga, the activities slated for Quick Impact Initiatives were (a) rehabilitation of water
catchments along Rivers Murari and Mathioya and rehabilitation of quarry area; (b) the formation
of 5-6 common interest groups and farmer training in two locations on good agricultural and
marketing practices, using the approach adopted by the National Agriculture and Livestock
Extension Program (NALEP); (c) fodder bulking by establishing fodder bulking plots, and using
head-smut tolerant Kakamega Napier grass varieties; and (d) construction of a borehole at Kabuta
area.

In Kilifi, the costing of Quick Impact Initiatives took long and only covered water, hospitals and
schools, but had not completed costing fish cold storage, as this requires an electrical engineer.
They could have sourced for services elsewhere but there were no funds for this activity.

The district staff expected the activities to be implemented before the end of fiscal year
2007/2008. The district staff reported that the concept of Quick Impact Initiatives makes sense
even at the personal level, and the Government budget could achieve much if it is made in the
same way. However, there were concerns that the Quick Impact Initiatives, even if implemented,
would only be a drop in the ocean. There is need to attach cost to an idea. They said it is
dangerous for the MDG music (as one DDO called it) to be played high up when there is little
being done on the ground.

THE COORDINATION PROCESSES BETWEEN VARIOUS FUNDING WINDOWS

In Siaya, the CDF is mainly used for education (primary and secondary schools), health, and water
infrastructure. In Muranga, the main sectors that receive CDF are health (mostly construction or
completion of dispensaries), roads (construction of bridges, upgrading roads using murram,
reshaping roads), education (civil works for primary and secondary schools), water (civil works),
security (police, administration police posts, chiefs offices), and bursaries for needy students (it is
a requirement that 10% of CDF funds go to bursary for secondary and tertiary institutions). In
Garissa, Kilifi and Siaya, CDF has greatly contributed to the success of the free primary education
program.

There is a tendency to give CDF tenders to local suppliers in the constituency, even where there
is no local capacity (e.g. in Kilifi). In some cases, suppliers may not know the procedures e.g. may
omit Value Added Tax (VAT) in the quotations, and are then unable to complete the projects once
VAT is deducted. The MPs also exert pressure in the appointment of CDF committees, and tend to
abandon projects started by a previous MP.

However, in Muranga, it was reported that there is cordial relationship between CDF committees
and the district staff, and that there is no misappropriation of CDF funds. The chiefs and District
Officers also keep a close watch, and posters are put in public places (even in chiefs offices and
churches) detailing how money has been spent. The information on bursaries includes students
name, school and amount provided, and the public is therefore able to know when a non-needy
student accesses bursary funds.

61
The central government staffs are rarely involved in preparation of Local Authority Service
Delivery Action Plan (LASDAP), which is the basis for resource allocation funded by LATF in a
given period. The allocation criteria for LATF tend to give equal shares per ward (administrative
area under a councilor). For this reason, their projects are always ongoing since the funds are
rarely enough to complete a project in a year. It sometimes makes it necessary to partner CDF and
LATF to complete a project. In Muranga, for example, such partnership normally entails LATF
providing materials (e.g. iron sheets) and CDF providing cash for other materials and to pay
contractors.

There is no common planning platform for the various financing windows in the district, which
limits the impact of the Government resources available to the district. There is also very little
link between the DDC and sub-DDCs at division and location level. The district departmental
heads argued that the District Focus for Rural Development should have the legal mandate to
coordinate all Government funds in the district (including devolved funds), or alternatively take
the money to the district in one basket. The lack of coordination sometimes reduces the impact of
the activities being funded. For example, a local authority could construct classrooms (since they
attract votes), and omit sanitation (which is their core mandate); or put up classrooms (without
desks and teachers) and then present them as outputs. The channels for the devolved funds can be
different, but project selection and mode of disbursement should be improved. The district
departmental heads said that the funds are not sufficient but the little can achieve more.

The DDOs said that it is important to understand that the devolved funds are part of Government
resources, and consequently leaves little money for use by the Government departmental heads.
However, the total funds available to the districts were said to be inadequate, even if there was no
misuse. They argued that the districts require more assistance to fill the capacity and financial
gaps.

COORDINATION BETWEEN DISTRICT DEPARTMENTS AND CIVIL SOCIETY

ORGANIZATIONS

There is no formal reporting by CSOs but they work through the relevant district departmental
heads. CSOs are sometimes asked to present reports to the District Steering Committee or to the
relevant ministry in the district. Siaya district has a voluntary system where the CSOs report to
the DDO and the relevant departmental heads on what they want to do, so that they can be
advised on needy areas. They also give their project documents to the District Commissioner. The
CSOs participate in the DDC meetings, but Kilifi has started inviting them to the District
Executive Committee (DEC) meetings, since this is where most district planning is done. In
general, donor projects were described as very consumptive, with large expenses devoted to
consultations and procedures, while very little reaches down.

MONITORING AND EVALUATION FUNCTION AT THE DISTRICT LEVEL

Each district has an M&E committee consisting of the DC as chair, DDO (secretary), members of
most central government departments, civil societies and regional bodies (e.g. Kenya Agricultural
Research Institute and Lake Basin Development Authority in the case of Siaya district). The
preparation of the district M&E report started in 2005 on a pilot basis, and covered devolved
funds, activities of central government, and challenges faced in M&E at the district level

62
(capacity, logistics, institutional issues, and resources). The district M&E committee is supposed to
meet quarterly, but is sometimes unable to due to lack of funds for facilitation and field visits.

There are three quarterly reports and a final report for the whole fiscal year. The three quarterly
reports normally report activities by sectors (e.g. roads, water and other active development
programs), while the annual report is more comprehensive and report on all ministerial funds and
all devolved funds. The content of the annual report depends on the development programs being
implemented by the departmental heads and the devolved funds. The district annual M&E report
is sent to the Rural Planning Directorate and Monitoring and Evaluation Directorate.

The district annual reports have incorporated NIMES, especially in the districts that piloted the
system e.g. Siaya. They reported that the MDG indicators are more or less like NIMES, but some
indicators cannot be domesticated at the district level e.g. those relating with Goal 8. Some of the
indicators in the annual report (e.g. on demography) are only collected at the national level.
There was no training on DevInfo at the district level 6.

The district departmental heads are supposed to do M&E, but there are no common guidelines or
obligations to report. Each ministry has an annual work plan for the purpose of the performance
contracts, but there is no consolidated annual work plan for a district. The district departmental
heads prepare monitoring information for use in the relevant ministry headquarters, and hence
the interrelationships between various activities (e.g. water and health) could suffer. There is also
no geo-referenced information system in the districts that can show the location of the
populations, facilities, and infrastructure.

The devolved funds have their own M&E systems. The DDO receives quarterly reports on the
CDF, and annual reports on the LATF. The reports give a breakdown of how much was received,
amount spent, and the physical status of the projects being funded. The DDOs had more
information on the CDF compared to LATF, and in some cases did not know the priority sectors
supported by LATF (e.g. in Muranga). The DDO is the Authority-to-Incur-Expenditure (AIE)
holder for the CDF funds, but does not sign the payment instruments.

The DDOs reported that the district annual allocation for the M&E function (Shs 60,000) is hardly
enough for data collection, stakeholder meetings and dissemination. The budget does not make
provision for visits to lower geographical levels, and they are also unable to relate activities with
impact e.g. of classrooms construction on enrolment.

The DDO only relies on goodwill of custodians of information (other managers in the district). A
reporting system is easy to implement but difficult to enforce. The reports are given for
information, and so the issue is coordination rather than sharing of information. There is need to
empower the DDOs office and provide more funds for the M&E function, to enable the DDOs
office to bring the various actors together, and to provide a link between district departmental
heads and communities.

6
DevInfo is a database system that harnesses the power of advanced information technology to compile and
disseminate data on human development and to assist countries in monitoring the achievement of the
MDGs and other user-defined indicators.

63
Most offices of the DDOs have no vehicles, and the maintenance of computers (where available)
is poor. The Government cannot repair computer facilities provided through donor projects until
they are officially handed over to the Government. The only exception was Garissa, where the
internet service provided through UNDP has been working well, and the services are available to
the DDO, DSO, civil society, students and researchers in the area. However, the Rural Planning
Directorate has started providing wireless connections to all the DDOs. They recommended that
all districts be equipped with computers with internet connections, through inexpensive web-
enabled mobile phones or wireless.

They recommended that there be a selective absorption of UNVs to the regular public service
based on performance and recommendations from the districts, so that they can assist in the M&E
function and other planning activities in the districts. In addition, there is need for improved
coordination systems at the district level, as there is a lot of duplication and no proper sharing of
information.

THE EXPECTATION OF THE DISTRICTS FOLLOWING THE MDG-BASED RAPID

ASSESSMENTS

The departmental heads expected direct transfer of funds to the districts to implement the Quick
Impact Initiatives. The DDOs complained of poor information inflow that has placed them in an
awkward position vis--vis communities and district departmental heads, and advised that such
rapid assessments should only be conducted when funds are available. They understood Quick
Impact Initiatives to be about red carpet rather than red tape.

In Garissa, the communities have even contacted the MDG Unit in Nairobi to seek clarification
why funds have not been availed, especially because there is a millennium village in Garissa
district, and people expected the goodies to roll out to other areas in the district.

The target community for the intended water project in Muranga has visited the DDO and the
district water department several times, and the issue has also been raised in the District
Executive Committee meetings. Another source of funding for four boreholes was identified after
the district rapid assessment but could not be allocated the Quick Impact Intervention, since this
was assumed to have been provided for by the MDG project. They argued that since the activities
were in the DDP and/or the annual work plans, they would have put some of the activities in the
revised estimates for fiscal year 2007/2008.

The DDOs have benefited from various training workshops and interactions on issues related to
MDG-based planning and budgeting, and this is reflected in their inputs to the planning process.
In a process akin to the preparation of Quick Impact Initiatives, the new DDPs prioritize
activities. However, during the preparation of the annual work plan, some district departmental
heads only make reference to the DDP in the first year of its publication. Thereafter, some district
departmental heads may not even have a copy of the current DDP in their shelves.

The activities funded by CDF are broadly in line with the MDGs (and mentioned its
complementarities with universal access to basic education by providing school infrastructure and
amenities), although the partisan nature of appointing members of CDF committees may not
attract people with requisite training and vision. The sensitization of lower level project managers

64
on project selection and prioritization is supposed to take place during field visits as part of M&E
function, but the funds are never sufficient for this purpose.

THE APPROPRIATE INFORMATION, EDUCATION AND COMMUNICATION (IEC)

PACKAGE

The communities in Garissa and Siaya knew about MDGs since there is a Millennium Village in
each district, namely, Dertu and Bar Sauri, respectively. In the four districts visited, localizing
MDGs may not be difficult because it was described as a different emphasis on things that
communities and service providers already know.

In Garissa, the people are an oral, rather than a reading community, and are more comfortable
with simple messages. There are also FM radio stations in Garissa, and radio talk shows give
people a chance to engage with the experts. There is awareness on MDGs among service providers
(e.g. teachers, nurses and foresters), but it is very specific to each profession. There is also need to
factor in religious leaders in localizing MDGs.

They said that MDGs should be localized (put in the context of local realities and needs) using
human resources at the district level (e.g. respective departmental heads) so that it can also be
related with other ongoing activities. Some of the messages should be packaged through the
education system (e.g. the issue of girl child) so that it comes out clearly in the formative years. In
that way, the millennium development goals would have stronger influence on peoples
knowledge, attitudes and practices (KAP).

65
 ANNEX TWO: IMPROVING AID EFFECTIVENESS

An activity undertaken by the three parties to the project (but outside the project) with others has
been on harmonization, alignment and coordination (HAC) through production of a Kenya Joint
Assistance Strategy 2007-2012 (KJAS) to improve aid effectiveness. This item is included in the
evaluation because it was one of the recommendations of the September 2005 UN Summit, and may
also have implications on the next phase of the project.

At the February-March 2005 High-Level Forum on Ownership, Harmonisation, Alignment, Results

and Mutual Accountability (Paris Declaration on Aid Effectiveness), developed and developing
countries resolved to take far-reaching and monitorable actions to reform delivery and
management of aid, including (a) strengthening partner countries national development strategies
and associated operational frameworks (e.g. planning, budget, and performance assessment
frameworks), (b) increasing alignment of aid with partner countries priorities, systems and
procedures and helping to strengthen their capacities, (c) eliminating duplication of efforts and
rationalizing donor activities to make them as cost-effective as possible, and (d) reforming and
simplifying donor policies and procedures to encourage collaborative behavior and progressive
alignment with partner countries priorities, systems and procedures.

The fundamental goal of the Kenya Joint Assistance Strategy 2007-2012 (Kenya, 2007) is to improve
the developmental impact of available resources. The partnership principles include (a) aligning
development partners activities with the Government strategy, (b) KJAS partners will increasingly
support joint technical assistance, joint analytical work, and joint dialogue with the Government,
(c) KJAS partners will increasingly use government systems for management of their development
programs, and (d) the KJAS partners will agree on a more effective division of labor e.g. through
harmonization at sector level through sector wide approaches (SWAP) and identification of a lead
KJAS partner for each sector. The Kenya Joint Assistance Strategy 2007-2012 presents shared
intention between the Government of Kenya and 17 development partners, including Finland.

The donor harmonization is perhaps best within the Education Development Partners
Coordination Group (EDCG). In September 2004, the Government committed itself to adopting a
sector-wide approach to the development of education in Kenya. The Kenya Education Sector
Support Programme (KESSP), launched in July 2005 is MoESTs strategic plan for 2005 to 2010. The
document describes how education provision across all sectors and nationwide will be planned,
financed, managed, implemented and evaluated over the next five years. To support the Ministry of
Education in the successful implementation of the KESSP and future programmes, the development
partners agreed to establish an Education Development Partners Coordination Group (EDCG). The
EDCG focuses at policy level and on strategic issues. The EDCG is composed of bilateral and
multilateral agencies, development banks which support the education sector, and major national
and international NGOs active in the education sector. The EDCG prepared documents on
Partnership Principles for the Support to the Education Sector in Kenya outlining the key roles
and responsibilities of both development partners and the Ministry in the successful
implementation of the KESSP, and Joint Financing Agreement as a framework of understanding
between a sub-group of development partners who have committed to a pooled funding
arrangement in support of KESSP implementation. The EDCG has a regular calendar of meetings.
The EDCG also coordinates members views and responds to requests from Harmonization,
Alignment and Coordination/ Development Partners Coordination Group (HAC/DCG) and other
agencies.

66
 ANNEX THREE: TERMS OF REFERENCE

1. Background

Kenya being a contracting party to the Millennium Declaration, embarked on the MDG process in
2002. In July 2003, the first MDG status report was launched. The report indicated that apart from
Goal 2 (Achieve Universal Primary Education) and possibly Goal 6 (Combat HIV/AIDS, malaria
and other diseases), the country would not meet the goals at the then pace of implementation of
the goals. This report was a wakeup call to the government of Kenya and since then, the
government has put in place the MDGs implementation framework to address the goals. First, was
to launch the MDG-based planning process in Kenya in May 2004. This was also followed by a
cabinet directive to mainstream MDGs into policy, planning and budgeting across all government
ministries/departments and sectors. However, in order to pursue the MDGs agenda in a more
focused way and as a demonstration of commitment to the Millennium Declaration, the
Government of Kenya, UNDP-Kenya and the Government of Finland entered into an agreement
to establish the project Mainstreaming of MDGs in Kenyas Development Process. The project
was designed to run from 2004 to 2008. Through this project, a Project Implementation Unit
(PIU) was established within the Ministry of Planning and National Development to run the day-
to-day MDGs activities.

Since the inception of the project a number of achievements have been realized. First, the
government in collaboration with UNDP-Kenya undertook a needs assessment of what it would
take to achieve the goals in Kenya. This was a necessary undertaking to ensure that the MDGs
agenda is pursued from an informed point of view. The MDGs Needs Assessment and Costing
Report 2005 was published in August 2005. The report has since been informing short and long-
term policy development strategies.

Besides publishing the MDGs Needs Assessment and Costing Report 2005, the government also
published the MDGs Status Report 2005 in August the same year. Since then, apart from quarterly
performance progress reports there has not been any other major report published in regard to
progress of the MDGs hence the reason to undertake the review.

2. Project Goal

The MDGs project was established to compliment and scale up ongoing initiatives to
institutionalize and mainstream MDG-based planning, policy formulation, budgeting, monitoring
and reporting processes in the country. The project has six specific objectives which are that
while targeting the poor, the project will involve the Government, civil society organizations
(CSOs), and various development partners to:

Build capacity of key public sectors for MDGs mainstreaming in policy formulation and
planning processes and of non-state actors to participate in the process;
Undertake MDGs campaign and awareness creation;
Develop a national MDG-based long-term Framework for Action;
Revise the medium-term sectoral plans and ERS based on Long-Term Framework for Action
and align ERS and MTEF to MDGs;
Undertake comprehensive MDGs tracking and reporting; and

67
 Promote policy advocacy on MDGs, including the goal on global partnership, through
analytical work and research that informs policy formulation

3. Project Outputs.

In line with the objectives stated above, the project had six outputs upon which the review will
be based and seek to establish the extent to which the project has performed. These outputs
include:

Capacity for MDGs mainstreaming in policy formulation improved;

MDGs campaign strategy undertaken and awareness on MDGs created;
National long-term MDGs-based framework for action developed;
Medium-Term MDGs-based development strategies revised;
MDGs tracking undertaken and progress reports produced; and
Policy research and analysis on MDGs promoted

4. The Review

4.1 Purpose of the Review

The main purpose of the Review, which comes in the third and final year of implementation of
the MDGs Project, is to provide an objective assessment of whether the project is on its way to
achieving its intended objectives in relation to progress towards achievement of the project goal
and the delivery of its expected outputs. Further, the review should assess the impact and
effectiveness of the support. It should also suggest the way forward for Phase 2 of the project,
especially on insights that can improve both the content and implementation of the project.

The Review will then identify areas for strengthening the project design for improving
performance and impact and make recommendations to guide improved implementation of the
remaining phase of the project.

4.2 Specific Objectives

Assess the relevance of the project in relation to MDGs achievement for Kenya;
Assess the impact and sustainability of the project;
Identify major MDGs stakeholders nationally and convergence point or otherwise towards
MDGs agenda for Kenya;
Identify key constraints, if any, to achieve the objectives and key lessons learned including
partnership strategies;
Make recommendations for actions to be taken to facilitate effective follow-up in line with
long-term MDG realization for Kenya;
Identify clearly lessons learnt; and
Make prioritized recommendations that might improve the design and implementation of the
future project

4.3 Specific Tasks for the Review

In realization of the specific objectives and eventually the overall objective, the review team will
be expected to undertake (as a minimum) the following:

68
 Review the performance of the project in relation to the objectives and expected outputs and
determine whether the project proceeded and remained on course in line with the objectives
and the expected outputs;
Review and assess the effectiveness of the project management, financial management and
logistics including the role played by the lead agencies (i.e. Government, UNDP and
Government of Finland) and highlight any activity implementation issues. These as a minimum
should include issues related to budget expenditure and efficient utilization of project resources;
Assess the relevance and effectiveness of all the technical assistance provided to the project so
far and any such gaps that might exist and propose the kind of technical assistance that could be
required to bridge this gap at the national and sub-national levels;
Review and assess the appropriateness of the implementation strategies, approaches and tools
used especially during the planning and implementation processes to realize the objectives of
the project, and on the basis of lessons learned provide an indication on the possible areas to
improve the implementation methodology to enhance the effectiveness in strategies and
approaches to realize the project objectives. Further elaborate a linkage with other ongoing
MDGs initiatives;
Assess the Project Financial Performance and determine whether the use of project funds is
commensurate with the progress made so far and make an overall assessment of project cost
effectiveness including identifying areas that require further intervention;
Draw lessons from the experiences gained so far to inform the remaining phase and future
intervention formulation;
On the basis of the assessment, lessons learned and the experiences gained so far, make
recommendations to improve the performance of the remaining and future phase of each
component of the project.
Identify key areas in the implementation of the project that would benefit from the technical
support of other agencies, in particular UNCT, the UNDP headquarter-based teams such as
those in the MDG Support Unit and Government of Finland.

4.4 Duration of Review

The desk review, interviews, consultations at Nairobi level and preparation of the draft discussion
paper is expected to be completed within 4 weeks. Collection of field data and information and
finalization of draft report is expected to take an additional two weeks.

4.5 Review of Outputs

At the end of the review the team shall prepare the following:
Detailed aide-memoire with contributions by all tripartite members for discussion and a draft
outline of the Review report to be shared with MDGs Project Implementation Unit, UNDP, and
the Government of Finland;
Propose amendments to the project document and what should be adjusted for Phase II;
Produce a complete Review Report both in hard copies and soft copies;
Retreat for Stakeholders to deliberate on the Review report to be financed by the project;
The final report is expected to be submitted to the Government of Kenya after views from
stakeholders have been incorporated

69
 ANNEX FOUR: OFFICIAL LIST OF MDG INDICATORS, EFFECTIVE 15 JANUARY 2008

(All indicators should be disaggregated by sex and urban/rural as far as possible)

GOALS AND TARGETS INDICATORS FOR MONITORING PROGRESS

Goal 1: Eradicate extreme poverty and hunger
Target 1A: Halve, between 1990 and 2015, the proportion of people whose
income is less than USD 1 per day
Target 1B: Achieve full and productive employment and decent work for all,
including women and young people
Target 1C: Halve, between 1990 and 2015, the proportion of people who suffer
from hunger
Goal 2: Achieve universal primary education
Target 2A: Ensure that, by 2015, children everywhere, boys and girls alike, will
be able to complete a full course of primary schooling
Goal 3: Promote gender equality and empower women
Target 3A: Eliminate gender disparity in primary and secondary education,
preferably by 2005, and in all levels of education no later than 2015
Goal 4: Reduce child mortality
Target 4A: Reduce by two-thirds, between 1990 and 2015, the under-five
mortality rate
Goal 5: Improve maternal health
1.1 Proportion of population below USD 1 (PPP) per day 7
1.2 Poverty gap ratio
1.3 Share of poorest quintile in national consumption
1.4 Growth rate of GDP per person employed
1.5 Employment-to-population ratio
1.6 Proportion of employed people living below USD 1 (PPP) per day
1.7 Proportion of own-account and contributing family workers in total
employment
1.8 Prevalence of underweight children under-five years of age
1.9 Proportion of population below minimum level of dietary energy consumption
2.1 Net enrollment ratio in primary education
2.2 Proportion of pupils starting grade 1 who reach last grade of primary school
2.3 Literacy rate of 15-24 year-olds, women and men
3.1 Ratios of girls to boys in primary, secondary and tertiary education
3.2 Share of women in wage employment in the non-agricultural sector
3.3 Proportion of seats held by women in national parliament
4.1 Under-five mortality rate
4.2 Infant mortality rate
4.3 Proportion of one-year-old children immunized against measles

7
For monitoring country poverty trends, indicators based on national poverty lines should be used, where available.

70
GOALS AND TARGETS
Target 5A: Reduce by three quarters, between 1990 and 2015, the maternal
mortality ratio
Target 5B: Achieve, by 2015, universal access to reproductive health
Goal 6: Combat HIV/AIDS, malaria and other diseases
Target 6A: Have halted by 2015 and begun to reverse the spread of HIV/ AIDS
Target 6B: Achieve, by 2010, universal access to treatment for HIV/AIDS for all
those who need it
Target 6C: Have halted by 2015 and begun to reverse the incidence of malaria
and other major diseases
Goal 7: Ensure environmental sustainability
Target 7A: Integrate the principles of sustainable development into country
policies and programs and reverse the loss of environmental resources
Target 7B: Reduce biodiversity loss, achieving, by 2010, a significant reduction
in the rate of loss
Target 7C: Halve, by 2015, the proportion of people without sustainable access
to safe drinking water and basic sanitation
INDICATORS FOR MONITORING PROGRESS
5.1 Maternal mortality ratio
5.2 Proportion of births attended by skilled health personnel
5.3 Contraceptive prevalence rates for married people
5.4 Adolescent birth rate
5.5 Antenatal care coverage
5.6 Unmet need for family planning
6.1 HIV prevalence among population aged 15-24 years
6.2 Condom use for high-risk sex
6.3 Proportion of population aged 15-24 years with comprehensive correct
knowledge of HIV/AIDS
6.4 Ratio of school attendance of orphans to school attendance of non-orphans aged
10-14 years
6.5 Proportion of population with advanced HIV infection with access to
antiretroviral drugs
6.6 Incidence and death rates associated with malaria
6.7 Proportion of children under 5 sleeping under insecticide-treated bed nets
6.8 Proportion of children under 5 with fever who are treated with appropriate
anti-malarial drugs
6.9 Incidence, prevalence and death rates associated with tuberculosis
6.10 Proportion of tuberculosis cases detected and cured under directly observed
treatment short course
7.1 Proportion of land area covered by forest
7.2 CO2 emissions, total, per capita and per USD1 GDP (PPP)
7.3 Consumption of ozone-depleting substances
7.4 Proportion of fish stocks within safe biological limits
7.5 Proportion of total water resources used
7.6 Proportion of terrestrial and marine areas protected
7.7 Proportion of species threatened with extinction
7.8 Proportion of population using an improved drinking water source
7.9 Proportion of population using an improved sanitation facility
71
GOALS AND TARGETS
Target 7D: By 2020, to have achieved a significant improvement in the lives of
at least 100 million slum dwellers
Goal 8: Develop a global partnership for development
Target 8A: Develop further an open, rule-based, predictable, nondiscriminatory
trading and financial system
Includes a commitment to good governance, development and poverty
reduction both nationally and internationally
INDICATORS FOR MONITORING PROGRESS
7.10 Proportion of urban population living in slums 8
Some of the indicators listed below are monitored separately for the least developed
countries (LDCs), Africa, landlocked developing countries and small island
developing States.
Official Development Assistance (ODA)

Target 8B: Address the special needs of the least developed countries
Includes: tariff and quota free access for the least developed countries exports;
enhanced programme of debt relief for heavily indebted poor countries (HIPC)
and cancellation of official bilateral debt; and more generous ODA for countries
committed to poverty reduction
Target 8C: Address the special needs of landlocked developing countries and
small island developing States (through the Programme of Action for the
Sustainable Development of Small Island Developing States 9 and the outcome of
the twenty-second special session of the General Assembly 10)
Target 8D: Deal comprehensively with the debt problems of developing
countries through national and international measures in order to make debt
sustainable in the long term
8.1 Net ODA, total and to the least developed countries, as percentage of
OECD/DAC donors gross national income
8.2 Proportion of total bilateral, sector-allocable ODA of OECD/DAC donors to
basic social services (basic education, primary health care, nutrition, safe water and
sanitation)
8.3 Proportion of bilateral ODA of OECD/DAC donors that is untied
8.4 ODA received in landlocked developing countries as a proportion of their GNI
8.5 ODA received in small island developing States as a proportion of their GNI
Market access
8.6 Proportion of total developed country imports (by value and excluding arms)
from developing countries and least developed countries, admitted free of duty
8.7 Average tariffs imposed by developed countries on agricultural products and
textiles and clothing from developing countries

8
The actual proportion of people living in slums is measured by a proxy, represented by the urban population living in households with at least one of the four
characteristics: (a) lack of access to improved water supply; (b) lack of access to improved sanitation; (c) overcrowding (3 or more persons per room); and (d) dwellings
made of non-durable material.
9
United Nations General Assembly, Report of the Global Conference on the Sustainable Development of Small Island Developing States, Bridgetown, Barbados, 25
April-6 May 1994, United Nations General Assembly A/CONF.167/9, United Nations, New York, October 1994
10
United Nations General Assembly, Twenty-second Special Session, 27 and 28 September 1999, Declaration and state of progress and initiatives for the future
implementation of the Programme of Action for the Sustainable Development of Small Island Developing States, United Nations General Assembly A/RES/S-22/2,
United Nations, New York, 12 June 2000

72
GOALS AND TARGETS INDICATORS FOR MONITORING PROGRESS
8.8 Agricultural support estimate for OECD countries as a percentage of their GDP
8.9 Proportion of ODA provided to help build trade capacity

Debt sustainability

Target 8E: In cooperation with pharmaceutical companies, provide access to
affordable essential drugs in developing countries
Target 8F: In cooperation with the private sector, make available the benefits of
new technologies, especially information and communications
8.10 Total number of countries that have reached their HIPC decision points and
number that have reached their HIPC completion points (cumulative)
8.11 Debt relief committed under HIPC and MDRI Initiatives
8.12 Debt service as a percentage of exports of goods and services
8.13 Proportion of population with access to affordable essential drugs on a
sustainable basis
8.14 Telephone lines per 100 population
8.15 Cellular subscribers per 100 population
8.16 Internet users per 100 population

NOTE: The Millennium Development Goals and targets emanate from the Millennium Declaration signed in September 2000, and from further
agreement by UN Member States at the 2005 World Summit (Resolution adopted by the General Assembly A/RES/60/1 dated 24 October 2005).

A useful comparison of Old and Revised MDG Targets and Indicators effective 15 January 2008 is available at the website of the Palestinian
Central Bureau of Statistics (http://www.pcbs.gov.ps/Portals/_Rainbow/Documents/MDGs2008_Updates_English.pdf)

73