RCAR 2006 - Tunisia

The Government of Djibouti having launched, on 19 January 2006, an appeal to the international community for drought assistance, the United Nations agencies rapidly reacted favorably and devoted a great deal of their attention and efforts during the first two quarters of 2006 to jointly coordinated emergency interventions in order to respond to the immediate needs of the most affected population groups.

In May 2006, a human case of avian influenza was confirmed in the Republic of Djibouti, causing United Nations Agencies in the country to mobilize further efforts and resources to support the national response. The UNCT regularly kept abreast of the situation through daily briefings organized with WHO. UN Staff was sensitized on the symptoms and the necessary precautions to avoid contamination.

In November 2006, the Republic of Djibouti hosted the 22nd Summit of the Common Market for Eastern and Southern Africa (COMESA). The Summit represented a significant milestone for Djibouti in its regional and international relations, and major part of the already limited resources of almost all central government institutions were devoted to preparations for the Summit throughout the year, but most particularly during the month preceding the Summit, when most senior government officials were unavailable for other matters.

Despite these set-backs in planning, the UNCT was able to proceed during the second half of 2006 with the Common Country Assessment (CCA) and the formulation of the United Nations Development Assistance Framework (UNDAF) for the period 2008-2012, both of which documents were completed in their substance by the end of the year, as originally planned.

Over the year, the political turmoil in Somalia was closely monitored by the UNCT. Although not considered as an immediate threat to the security situation in Djibouti, some of its potential consequences were nevertheless incorporated into the revised United Nations Contingency Plan, most notably the possible influx of refugees.

Summary on progress towards UNDAF outcomes

Following the emergency drought appeal by the Government to the international community on 19 January, the Resident Coordinator proposed to the Government to carry out a joint rapid assessment of the impact and consequences of the drought. This joint assessment by the Government, United Nations agencies, bilateral donors and NGOs formed the basis on which United Nations agencies prepared project proposals that were included in the sub-regional appeal launched in April. As a result, funding was obtained from the Central Emergency Recovery Fund (CERF) for a number of these proposals aimed at mitigating the consequences of the drought. These projects were subsequently implemented by the concerned United Nations agencies in close collaboration with the Government.

For the abovementioned reasons, the mid-term review of the 2003-2007 UNDAF was postponed from early 2006 until mid-2006, being subsumed in the new CCA/UNDAF process.

The process of conducting the new CCA, including the mid-term review of the UNDAF 2003-2007, and the formulation of the UNDAF for the period 2008-2012, which was launched in July, were all characterized by a high level of participation by the Government and the civil society. Most government ministries actively contributed to the process, even some ministries which are traditionally less involved in the activities of UN Agencies (i.e. Ministry of Defense), resulting in the drafting of balanced, representative and high-quality documents.

The CCA process involved four Working Groups comprising representatives of Government, Civil society and United Nations agencies, each group carrying out a thorough situation and problem analysis in the following fields directly related to the Millennium Development Goals (MDGs): 1) Poverty and Environment; 2) Health and Vulnerable Populations; 3) Education and Empowerment of Women; and 4) Governance and Partnerships. The result was a highly accurate and in-depth analysis of the development of the country. The quality of the 2006 Djibouti CCA was highlighted by the regional Quality Support and Assurance (QSA) team, which stated that the document could serve as a reference for other CCAs.

The mid-term review of the 2003-2007 UNDAF consisted of both an assessment of the progress made towards attaining the national and UNDAF objectives, as well as an adaptation, where necessary, of planned activities in order to improve the response of United Nations agencies to changing realities. The review revolved around the four areas of cooperation, as defined in the UNDAF document: 1) Poverty reduction and promotion of social development, 2) Promotion of good governance and human rights, 3) Promotion of sustainable health and fight against the propagation of HIV/AIDS and other communicable diseases, and 4) Preservation of water resources and rationalizing their use.

Generally, the review found that major progress has been registered in the first 3 areas of cooperation. Several indicators, pertaining to both the MDGs and national priorities showed that significant improvements were made in a number of key domains. For example, primary education participation levels have risen by nearly 13% to reach 54,8% in 2005; the percentage of people living with AIDS has remained level; and the maternal mortality level has fallen to 546 deaths per 100,000 live births.

Although the progress made was found to be commendable, it was observed that programmes needed more focus and that areas of cooperation needed to be defined in light of the capacities and experience of (national) implementing agencies. It is for this reason that the efforts agencies could muster, were insufficient to attain the planned results for the fourth area of cooperation (water resources). Please see annex 4 and 5 to consult the full report.

As is expected, both the CCA and the findings of the mid-term review constituted the basis for the formulation of the new UNDAF for the period 2008-2012. The formulation process started in December with a participatory strategic workshop jointly chaired by the Minister for International Cooperation and the Resident Coordinator, and involving both Government and civil society as well as United Nations agencies.

At the time of writing, the first draft of the 2008-2012 UNDAF document has been developed, with the final document expected to be signed by relevant parties in March 2007. The three domains of cooperation (Local development, basic social services and good governance), collectively identified by the participants in the process, complement the National Social Development Initiative as launched by the President of Djibouti in January 2007.

Summary on progress in UN Reform

As mentioned above, the drought and avian influenza crises have illustrated the high level of cooperation and complementarity between the members of the UNCT, as well as between the United Nations system in Djibouti and the Government. The emergency operations themselves generated joint programming, but also the new UNDAF will provide opportunities for joint programmes and activities. In addition, during 2006, United Nations agencies have jointly sponsored a Multiple Indicators Survey in Djibouti, which has been successful in providing long-awaited data on progress made in key development areas. The project was characterized by a close cooperation between UN Agencies and the Government. In the same spirit, two joint projects were implemented in the field of food security. Finally, an Enlarged Immunization Campaign has been successfully carried out through a joint operation by the Government and relevant UN Agencies.

In the context of enhanced cooperation between agencies and the harmonization of their programmes, a seminar was held in May 2006 for the members of the UNCT on Results-Based Management and Human Rights-Based Approaches. Progress towards UN Reform was furthered by the training of members of agency staff to serve as resource persons on the Harmonized Approach to Cash Transfer (HACT) process and by initial orientation of a wider group of agency personnel. During 2007, further in-depth training on HACT will be provided to UN staff, as well as to Government officials.

Throughout 2006, a concerted effort has been made to consolidate the image of the United Nations system as a whole in Djibouti, and to enhance visibility both vis-à-vis the Government and the broader public. The national press has been engaged in what may be termed a partnership and is increasingly referring to the United Nations System as a whole when covering joint initiatives. The visibility of the United Nations system as such was further enhanced through the successful organization of several thematic days, whether in connection with the marking of several international days or a three-day celebration of United Nations Day, involving Government, local schools and the University of Djibouti

Communication (both externally with Government and internally with United Nations staff) will also be key in the process of establishing a joint United Nations office. Internal consultations among agencies have begun, in order to define key concepts and modalities for the implementation of the joint office. Following receipt of a letter jointly signed by the regional directors of UNDP, UNFPA, UNICEF and WFP in December 2006, a roadmap has been drafted with the aim of harmonizing common services and procedures and, subsequently, a physical and programmatic integration of several agencies.

Key aspects of the proposed 2007 workplan

At the national level, the UNCT will support the planning and implementation of the National Social Development Initiative launched in January 2007 by the President of Djibouti. In this context, emphasis will be placed on the continued advocacy for the implementation of the Paris Declaration and the Brussels Progamme, and support will be provided to MDG costing.

Particular attention will be given to the establishment and operationalization of a national emergency management capacity. A participatory workshop will be organised, not only to update the current United Nations Contingency Plan in order to prepare for the second half of 2007, but also to identify mechanisms to increase the involvement of local communities in the contingency planning as recommended by OCHA .

The highly successful participatory process of drafting the 2008-2012 UNDAF is expected to be finalized, and the document signed in March 2007. In the meantime, advocacy will be made for the incorporation of joint programmes into annual work plans of agencies, particularly in the fields of Youth, Nutrition, Water and Sanitation and Food Security.

2007 will see the roll-out of HACT at the Government level, as well as within the respective agencies. A training programming on gender mainstreaming is being conducted for agency staff in January 2007, and gender mainstreaming of programmes, not least in the field of HIV/AIDS, will be strengthened.

The communication efforts of the Office of the Resident Coordinator need to be maintained if not increased. The image of the United Nations system will be further strengthened with the joint organization of thematic days such as World Women’s Day and United Nations Day. Where appropriate and to the extent possible, non-resident agencies will continue to be kept informed of, and involved in, the activities of the UNCT.

Recommendations

Some measure of harmonization should be adopted with regard to joint office structures, especially as regards the status (levels and designations) foreseen for senior staff of Funds and Programmes (i.e. whether they are to be at the level of, for example, Country Director, or other), and their role/mandate in relation to the eventual Resident Representative of the collective Funds and Programmes/Resident Coordinator. In the same context, further consensus and guidance among agencies at the corporate level regarding the visibility of individual agencies vis-à-vis the need for a collective image of the United Nations would be required.

In order to allow Resident Coordinators to be more effective in the implementation of United Nations Reform, financial resources should be made available on the Resident Coordinator support budget for the implementation of joint offices and HACT.