Imihigo_Evaluation_Reports_2018_N.pdf

2017-2018 Imihigo Evaluation_Executive Report

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Figure 4: Ministries scoring approach

Figure 5: District scoring approach

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Chapter 3: Evaluation Findings This chapter summarizes the findings from the 2017 -2018 Imihigo evaluation. The first section presents the results from the joint Imihigo. The second section focusses on the evaluation performance for the Central G overnment (18 ministries and 3 B oards). The remaining sections present the results and analysis for the performance in the City of Kigali and the 30 districts, respectively.
3.1. Performance in Joint Imihigo Joint Imihigo are implemented in partnership be tween Ministries and Districts to deliver certa in projects. In some instances this partnership may involve the private sector. These projects that are shared for implementation are mainly in the following seven areas: agriculture, urbanization and settlement, social protection, service delivery, energy, job creation and export. The average performance of the joint Imihigo for the fiscal year 2017-2018 is 73.5%.
As figure 6 shows, Energy was the highest performer by sector with 89.9% and urbanisation and settlement the least performer with 43.2%. The good performance in the energy sector is explained by the fact that most Imihigo were based on on -grid and off -grid connections , and awareness
campaigns. However targets related to increased electricity generation were not achieved. On the other had the low performance in urbanisation reflects the complexity of Imihigo in the sector such as road networks, secondary city master plans, affordable housing among others and the fact that the sector has not yet built momentum in delivering expectations.

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Figure 6: Performance in Joint Imihigo (%)

Source: 2017-2018 Imihigo Evaluation findings Service delivery sector Imihigo are mainly processes (meetings, sensitization campaigns, etc.), which are easier to accomplish, rather than outcomes (what should be achieved), which explains the high performance.
The performance in Job Creation is attributed to achievements in trainings and apprenticeship activities for youth and women. In Exports, the performance was attributed to achievements of traditional export crops. However, non-traditional export crops did not achieve set targets. The 43.2 69.8 72.4 76.5 79.1 83.9 89.9 Urbanization & Settlement Job Creation Export Social Protection Agriculture Service delivery Energy

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performance of Social Protection was due to achievements in VUP, public works and direct transfers. Performance Agriculture was mainly influenced by achievements in developing terraces and controlling soil erosion.
3.2. Imihigo Evaluation in the Central Government
Ministries have been grouped according to clusters as follows: Seven (7) ministries and two (2) boards in the economic cluster, seven (7) ministries in the social cluster as well as four (4) ministries and one (1) board in the government and justice cluster. Table 2: Ministries and their clusters

ECONOMIC CLUSTER

SOCIAL CLUSTER

GOVERNANCE AND JUSTICE CLUSTER 1 Ministry of infrastructure (MININFRA) 1 The Ministry of Education (MINEDUC) 1 Ministry of Local Government (MINALOC) 2 Ministry of trade and Industry (MINICOM) 2 The Ministry of Health (MINISANTE) 2 The Ministry of Defense (MINADEF) 3 The Ministry of Agriculture and Animal Resources (MINAGRI) 3 The Ministry of Sport and Culture (MINISPOC) 3 The Ministry of Justice (MINIJUST) 4 The Ministry of Finance and Economic Planning (MINECOFIN) 4 The Ministry of Public Service and Labour (MIFOTRA) 4 The Ministry of Foreign Affairs, Cooperation and East African Community (MINAFET) 5 The Ministry of information technology and communication (MITEC) 5 The Ministry of Disaster Management and Refugees (MIDIMAR) 5 Rwanda Governance Board (RGB) 6 The Ministry of Environment (MoE) 6 The Ministry of Gender and Family Promotion (MIGEPROF)

7 The Ministry of Land and Forestry (MINILAF) 7 The Ministry of Youth (MINIYOUTH)

8 Rwanda Development Board (RDB)

9 Rwanda Mines, Petroleum and Gas Board

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As the figure 7 below shows, the findings from this year’s evaluation at the central government level estimate the overall performance at 64.9 per cent. The best performing cluster is the Governance with 73.5 percent. Economic and social clusters scored 63.6 percent and 60.4 percent, respectively.
Figure 7: Imihigo Performance in Ministries’ Clusters (%)

Source: 2017-2018 Imihigo Evaluation findings As noted above, performance in the governance sector has tended to focus on processes rather than on outcomes. This explains the relatively high performance compared to the economic and social sectors.
73.5 63.6 60.4 64.9 Governance Economic Social Overall

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In the economic sector many projects that had been in cluded in Imihigo were not completed, such as projects related to urbanization, attracting investors, the construction of Kigali Innovation City in the special economic zone, affordable housing, and road construction, among others.
In the social sector th ere were challenges of implementation of social infrastructure such as health facilities and schools. The sector was also affected by delays in funds disbursement, especially in social protection; school feeding and capitation grants (education), etc.
3.3. Imihigo Evaluation in the City of Kigali (CoK)
The City of Kigali was evaluated along the pillars of economic development, social development, and accountable governance . As shown on the graph below, the overall score for the City of Kigali is around at 55.5%. The evaluation findings also show that accountable governance as the pillar where the City of Kigali performed best with a score of almost 80%. In the social pillar the CoK scored 75% and performed rather low in the economic development pillar scoring 54.2%.

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Figure 8: Performance in the City of Kigali (%)

Source: 2017-2018 Imihigo Evaluation findings Performance in the City of Kigali was affected by delays in completion of infrastructure projects, mainly road constructions. Also, the City of Kigali is involved in many joint Imihigo which were not achieved such as construction of Kigali Innovation Village in the special economic zone, affordable housing, and road construction, among others. This affected the overall performance of the City. 54.2 75.4 79.3 55.5 Economic Development
Social Development
Accountable Governance
Overall

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3.4. Imihigo Evaluation at the District level Based on un-weighted scores across pillars, the overall performance of districts is 73 per cent, with accountable governance being the best performing pillar. Figure 9: Average Performance of districts (%)

Source: 2017-2018 Imihigo Evaluation findings As observed at the Ministry level and in joint Imihigo, the governance pillar has consistently outperformed the economic and social pillars.
60.6 73.9 84.5 Economic Social Governance

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Figure 10: Overall performance of the Districts (2017-2018)

Source: 2017-2018 Imihigo Evaluation findings 53.0 53.4 54.1 57.2 59.3 63.1 64.1 64.5 64.7 64.8 65.1 66.0 66.8 67.1 68.4 68.8 70.2 70.9 71.5 71.9 72.1 72.4 72.8 73.5 74.9 76.3 77.5 80.4 82.5 82.5 84.5 Nyanza Ruhango Nyamagabe Burera Kamonyi Gisagara Nyaruguru Rusizi Ngoma Karongi Nyarugenge Huye Nyabihu Nyamasheke Muhanga Average Musanze Nyagatare Kirehe Ngororero Bugesera Rutsiro Rubavu Gatsibo Kayonza Gicumbi Kicukiro Gakenke Rulindo Gasabo Rwamagana

2017-2018 Imihigo Evaluation_Executive Report

Page | 15 3.5. District Performance Analysis The performance of the 30 districts is categorized along three groups each with a set of distinguishing features. The top ten performing districts are in the top group, while the bottom group consists of the ten lowest performing districts. The districts whose performance falls in between these two categories occupy the middle group. Significantly, these groups represent a set of distinguishing features that the districts in a given category share. Ultimately, the share d features provide insight into the drivers and impediments in Imihigo implementation.
3.5.1. The Top Group (top 10 performers) The districts in the top group exhibit leadership that is able to mobilise a sense of common purpose around Imihigo. They are a ble to articulate the importance of Imihigo as a tool for district development and link it to the lives of the community members in the district. During the implementation of Imihigo these districts were able to focus on projects with clear transformationa l value, were able to conceive these projects in a comprehensive manner, to implement them to completion and, where possible, introduced innovative approaches towards value chain creation.
Rwamagana, Gasabo, and Rulindo have been exemplary in this respect . Across the three districts the majority of the infrastructure projects were completed. In Rwamagana and Gasabo most of the roads were built to completion, with the latter able to benefit greatly from the ability to mobilize Public - Private Partnerships (PPP) to deliver some of the infrastructure, especially in the area of housing. In Rulindo, a state of the art irrigation dam was completed; also, facilities to support (5 cold rooms) the promotion of horticulture, including entering partnerships with flower exporters.
2017-2018 Imihigo Evaluation_Executive Report

Page | 16 Another key feature of districts in the top group is that they are able to organize teamwork needed to create the ownership needed to ensure effective implementation of Imihigo. There is evidence of joint planning and meaningful consultation across the board. Rwamagana, Gasabo, and Rulindo have been exemplary in this respect. In Rwamagana, the depth of the information provided on Imihigo includes the GPS location of each item, the amount of money invested, and the level of progress – all available at office premises at the district, sectors, and the cells. This shows a degree of transparency that is not seen in any other district. While these may appear to be minute details, they point to the collective spirit that drives the delivery of Imihigo.
This shared responsibility and strong collaboration among different levels of leadership (executive committee, JADF, and district councils) to oversee Imihigo is also visible in Gasabo. The staff are also given responsibility to oversee some of the Imihigo items and their knowledge about how they are implemented and monitored is similarly impressive and demonstrates the existence of a sense of ownership across the board in the district. Rulindo also shares these features, including a strongly constituted JADF.
3.5.2. The Bottom Group
A key feature of districts in the bottom group is poor design of projects that are in their Imihigo. This affects both completion and quality. In other words, projects are either not completed at all, not completed on time, or completed with substandard quality. Evidence from some districts shows that due to poor initial design, some projects are implem ented and along the way there is a realization that there is a major flaw, which requires making significant adjustments. Consequently, the delays involved expose the project to failure of completion.
2017-2018 Imihigo Evaluation_Executive Report

Page | 17 In Burera district a poor feasibility study for a buil ding construction at the Butaro hospital illustrates this challenge. Once construction began it was realized that the foundation could not support the structure that was intended. The foundation was demolished and the builders started afresh in order to put in place a stronger concrete slab that could withstand humidity. Most districts are able to deliver an Early Childhood Development Centre (ECD) on a budget of 40 million francs that’s allocated to them. However, in Burera a poorly conceived study could not deliver the ECD even after securing an addition 10 million francs. Similarly, an integrated craft market was build but is yet to become operational and an IDP model village was never completed.
In Nyabihu district a poor feasibility study for a vegetab le collection centre led to the construction of a substandard facility that could only cater for approximately 20% of the produce (mainly carrots). The washing bay was very small and as and even the small amount of vegetables that were cleaned could not be stored, which lead to unnecessary losses.
3.5.3. The middle group
The districts in the middle group display a mixture of behaviour patterns similar to those found amongst top group and bottom group districts. First, some are able to demonstrate some commitment to planning and completing transformative targets. However, they are unable to do this consistently.

2017-2018 Imihigo Evaluation_Executive Report

Page | 18 Conclusion and Recommendations
The analytical framework of performance groups utilized in this assessment and their shared features provide insight into the drivers and impediments in implementing Imihigo.

Overall, there is improvement in planning and coordinatio n. This is reflected in the establishment of proper reporting systems, peer review mechanisms to hold each other accountable at the local government level, including the introduction of innovating approaches for monitoring activities of Imihigo in some districts.
The quality of leadership at the district level is key in mobilizing the sense of commo n purpose needed across the board to optimally deliver Imihigo. Good leadership is reflected in the quality of engagement of different stakeholders to take ownership of Imihigo, the ability of District Councils to bring accountability and oversight to the Imihigo process, the activation of citizen participation in implementation, as well as the ability to spur the commitment of JADF to Imihigo.
Implementation of Imihigo is strongest where there is proper planning and coordination as well as greater ownersh ip by the cross -section of actors . The implementation of joint Imihigo still faces ownership problems amongst concerned parties. A specific challenge has to do with a lack of collective ownership and the tendency for one party to only focus on completing t heir “part” when in fact the nature of these items is such that they can only be achieved when there is collective ownership despite the parts under individual nominal responsibility. This is largely a manifestation of inadequate consultation and breakdown in communication.
2017-2018 Imihigo Evaluation_Executive Report

Page | 19 A key concern is in the area of infrastructure is poor feasibility studies that affect the quality and sustainability of projects. In some instances, a poorly designed project was entirely abandoned and replaced. An example here is a situation where a building foundation that was found unable to carry the weight of the planned premise despite the fact that feasibility study had been undertaken. Others include roads without drainages, schools without retaining walls, etc.

There continues to be challenges in technical abilities in planning and reporting particularly in regards to setting SMART targets that can be logically tracked in relation to the baseline.

Nevertheless, Imihigo are increasingly taken seriously due to the ac countability measures that are tied to them.
Recommendations
 Prioritize Imihigo that transform the lives of Rwandans and capture the rest of activities in the annual action plans;
 Improve planning and coordination mechanisms for joint Imihigo with clear division of roles and responsibilities and hold respective parties more accountable;  Strengthen the technical capacity of districts and ministries , especially on undertaking good feasibility studies and in contract management. Clear and precise guidelines would be very useful.  In the event of transition of leadership at the district level, the new leadership should assume responsibility and take ownership for the Imihigo that came into existence during the tenure of the outgoing leadership.
2017-2018 Imihigo Evaluation_Executive Report

Page | 20  Strengthen integrity in work practices and reporting achievements or challenges that affect performance.  In the governance sector planning should shift from processes (meetings, sensitization and so on) to outcomes (achievements from those processes). Efforts should be made to draw f rom the governance sector plans and strategies. They have tangible outcomes that are expected.

National Institute of Statistics of Rwanda Po.Box 6139 Kigali Rwanda www.statistics.gov.rw