An Analysis of the United Nations Development Assistance Framework for Cambodia 2006-2010

(UNDAF 2006-2010 –Cambodia)

Huot Chou

Final Draft

International Public and NGO Management

December 14^th, 2007

“Our collective endeavor is to assist the people of Cambodia to build a just and fair society and to achieve social progress and better standard of living for all Cambodians.”

—Statement by United Nations Country Team in Cambodia on the Occasion of Signing UNDAF 2006-2010, United Nations Assistance Framework 2006-2010, Office of the United Nations Resident Coordinator in Cambodia, 2006.

An Analysis of the United Nations Development Assistance Framework for Cambodia 2006-2010

(UNDAF 2006-2010 –Cambodia)

After five years of the implementation of the first United Nations Development Assistance Framework in Cambodia (UNDAF 2001-2005), in February 2005 the United Nations Country Team (UNCT) drafted the second UNDAF for the life cycle of 2006-2010. It was approved by the United Nations headquarters in the following year.

I. A Brief Overview of the United Nations Development Assistance Framework (UNDAF)

The United Nations Development Assistance Framework (UNDAF) is the “common strategic framework” for the operation of the United Nations system in response to the challenges and issues at the country level. The UNDAF sets directions and strategies to address those issues identified in the United Nations Common Country Assessment (CCA), which is usually conducted by the United Nations Country Team (UNCT) in each country in need of the United Nations aid. [i]

Its root is traced back to a 1997 reform agenda with the purpose of making UN aid more effective and efficient in development issues at the country level. The first guideline for CCAs and UNDAFs was issued in 1999 and revised in 2002 to take into account the experience from implementation, and to integrate the 2000 Millennium Declaration, the Secretary General’s 2001 road map, the 2001 report on the prevention of armed conflict and the General Assembly resolution 56/201 on the triennial comprehensive policy review of the operational activities of the UN system. [ii]

The UNDAF is the initial step of setting UN country programs and projects for development. The rationale for the UNDAF is identified in a CCA whose role is to gather information, make an assessment and identify challenges with a detailed analysis of the root of the challenges so that they can prepare a proposal for development assistance to address those issues. The UNCT is in charge of these activities. The UNCT is composed of all resident heads of UN Agencies, which is chaired by the Resident Coordinator, the government of the country, civil society and other stakeholders. After the first draft of the CCA, local stakeholder meetings are set up to make discussions and consensus on the challenges and causes identified. In general, three to five challenges and causes must be agreed upon during the meeting. The final draft of the CCA is supposed to be completed by September 30 of the year before the end of the old UNDAF.

Then comes the process of preparing the UNDAF. The priorities determined in CCA meetings are written down into a result-based matrix, which shows the areas of concentration, goals, outcomes, outputs, and performance indicators.

After drafting the UNDAF, the UNCT will submit the draft for the first review by the Regional Units of UN Agencies, chaired by United Nations Development Group Agency (UNDGA) elected by the Regional Directors. After this review, the UNCT prepares the final draft UNDAF and holds a meeting to get feedback and consensus from stakeholders, especially governmental feedback, on the UN proposed strategies to deal with those challenges. According to the guideline for a CCA and a UNDAF, the final UNDAF is supposed to be finished by December 31 and signed by the government involved and the UNCT by March 31 of the following year.

Based on the UNDAF, the UN system sets a number of programs and projects to achieve the outputs and outcomes identified. Based on the proposal of the Secretary General, UN agencies working at the country level are required to set up their strategies, planning, programs, and life cycle of each of their operation in line with the fiscal period of the UNDAF so that UN agencies help assist the goals and objectives set in the UNDAF and avoid overlapped operation in a particular area.

UN agencies hold joint strategy meetings with the government to set up their programs or projects in harmonization with the UNDAF before they submit the draft of the proposed projects and programs to UN headquarters by March 31^st. However, some agencies have their own mechanisms to review and approve their own projects and programs without submitting to the headquarters. From June till September, the Executive Board discusses the country programs suggested by each UN agency before they are posted on the agency websites from October to November. As a rule, the country programs are approved in January of the first year of the new cycle of the UNDAF.

II. Cambodia UNDAF

1. Overview of Cambodia’s Development Issues

After 30 years of civil and regional war (namely, Vietnam War in the 1970s), in 1991 Cambodia started to rebuild peace and stability thanks to the intervention of the United Nations to bring the country back to peace. Although the country has enjoyed a strong economic growth[1] so far, Cambodia still faces a number of serious issues.

The most noticeable issue is related to governance. It is known that the public administration is not efficient and effective, and is rampant with corruption. The effort developing Cambodia into a real democracy is believed to be centered on the process of decentralization and de-concentration of central governmental power to the local level. So far two Commune/Sangkat (county) elections have been held. The first one was in 2002, when power was given to the local level for the first time since peace was established. The second was recently held in mid 2007. This process not only makes the country more democratic but also contributes to the local development.

In terms of development, a number of studies have suggested focusing on the development of agriculture for long-term and sustainable development. Traditionally and coupled with geographical features, Cambodia has potential for agricultural development. However, agricultural productivity is low and only a small number of agriculture activities are practiced although more than 80 percent of the people gain their incomes from agriculture. The problem identified in a study by the Economic Institute of Cambodia (EIC), a partner of the World Bank, points to the lack of irrigation, and lack of diversification into other agricultural activities, namely livestock, in addition to rice farming.

Poverty is also common in the country. The current poverty rate is around 35 percent, according to a study in 2005 by the World Bank[iii]. This study reveals that poverty is even higher in rural areas, especially in the Tonle Sap region and the Northeast, where the poverty rate is up to more than 40 percent.

The health situation is also poor, particularly in rural areas where many children do not have access to vaccinations and have poor nutrition. Moreover, they do not have access to even basic education (grade 1 to 9).

Human rights are also an issue in the country. Violence against women is common in rural areas and gender inequality is regarded as an issue. There are few women representatives in official positions, making their voce unheard.

2. History of Cambodia UNDAF

Cambodia’s Common Country Assessment report was first written by UNCT in 1998. It was used as the basis on which UNDAF 2001-2005 was developed. This CCA report initially aimed to help the country achieve the goals set by UN conferences in the 1990s. The main issues to address were good governance, poverty elimination, peace and culture of tolerance, education, and health. [iv]

Based on the 1998 CCA, Cambodia’s UNDAF 2001-2005 was developed to coordinate UN aid to address the issues identified in CCA. The first UNDAF identified four challenges as its areas of concentration. The first area of concentration was to focus on achieving good governance, where it divided into three different objectives. The first object was to transform Cambodia into a country of rule of law; the second objective was to make public administration an effective and efficient institution at the national and local level; the third was to establish a culture of peace in the country. The second area of concentration was on poverty eradication, where the report focused on four different objectives: (i) to achieve an environment conducive for economic growth, (ii) to achieve community development where the people are empowered and participate in the development process, (iii) to promote sustainable livelihood, and (iv) to reduce malnutrition. The third area of concentration focused on human development. The objectives were (i) to improve the HIV/AIDs situation, (ii) to improve the health and nutritional status of Cambodians, (iii) to improve the reproductive health situation, (iii) to achieve equitable access to education, and (iv) to protect cultural heritage. The fourth area of concentration, on the management of natural resources, had as objectives (i) to contribute to sustainable management of land use, (ii) to strengthen capacity for forest management, (iii) to promote equitable and sustainable management of fishery resources, and (iv) to support the conservation of the country’s unique eco-system.[v] These broad objectives were set to be achieved within five years from 2001-2005.

UNDAF 2006-2010 was drafted in February 2005 and adopted by UN headquarter in 2006. Instead of having four areas of concentration, the second UNDAF focuses on three main areas: good governance, agriculture development, and human resource development. In addition to these areas, it also set the objective of assisting the government in developing a National Strategic Development Plan.

The monitoring of the UNDAF progress is conducted by the UN country system through the development of an annual UNDAF work plan at the end of each year, an annual Common Country Assessment Indicator Framework, a Joint Thematic Review by UN agencies, and a new CCA the year before the UNDAF expires.[2] Besides, the UNDAF working group is supposed to conduct annual reviews to identify ways to improve the progress of the work and to ensure that the framework is still in line with the current situation[vi].

Financial resources to implement UNDAF are obtained through allocation by each UN participating system agency and its donor partners.

III. UNDFA 2006-2010 and Its Analysis

“ The United Nations Country Team in Cambodia is committed to support the efforts of the Royal Government of Cambodia to improve the life of all citizens, especially those most excluded and vulnerable,” -- Commitment of UN Country Team in Cambodia.[vii]

To achieve their commitment the UN Country Team, in consultation with the government and other stakeholders, set goals and objectives in UNDAF for the new cycle of 2006-2010. Three main goals were set in addition to the one that aims to assist the government in developing a National Development Strategic Plan.[3]

Goal 1: Achieving Good Governance and Promotion and Protection of Human Rights

In order to achieve this goal, UNDAF lay out its objective as follows:

Objective 1: By 2010, Cambodia will have achieved significant progress towards effective participation of citizens, accountability and integrity of government in public decision making and policy implementation for the full realization of human rights and meeting the Cambodia Millennium Development Goals (CDMG).[viii]

While this objective describes the end state by 2010, there are some vague terms that should be defined. What percent of population participating in public decision making should be regarded as significant? Moreover, the meaning of accountability and integrity should be clearly defined. It can mean high level of ethics or just mean reducing corruption. Which human rights will the objective achieve? What level of government is the objective aimed at, national or local government? Besides, the objective is unrealistic. Considering the life cycle of UNDAF, there is a low probability that this objective will be achieved by 2010. It should be recalled that UNDAF 2001-2005 failed to achieve this objective. Past experience and a number of studies show that in order to achieve a high level of accountability and good governance, it take a long time and much change in the political system, especially if it aims at the national government level. Furthermore, this objective has nothing to do with Cambodia Millennium Development Goal (CMDG)[4], though it is generally accepted that achieving the goal will have indirect effect on CMDG.

Thus, the objective should be reformulated as follows.

Reformulated Objective 1:

By 2010, 80 percent of population aged 18 or over will take part in public decision making process and policy implementation, while corruption on the local government level will be reduced by 50 percent, to support the rights of free speech and decision making.

As a prerequisite to achieve the first objective, the UNDAF set out a number of outcomes as follows.

Outcomes of Objective 1

1. Increased participation of civil society and citizens in decision making for the development, implementation and monitoring of public policies

2. Improved public access to information

3. Effective, independent and impartial justice system set up and equal access increased

4. Corruption significantly reduced to ensure integrity and transparency in government management of public resources and services[ix]

Outcome 1 should specify means of participation. It should improve participation through voting. Outcome 2 should focus on the use of information rather than having access to information; moreover, outcome 2 should be more specific by defining what information is important to achieve the objective. Outcome 3 is unrealistic. It is impossible to set up an independent and impartial justice system for the country within a five year timeframe. Instead, it should aim to achieve an independent and impartial mechanism to set up local government. Outcome 4 is a good one, but it should relate to what the UN system is able to do to reduce corruption. The UN system is able to contribute to the adoption of anti-corruption law.

Reformulated Outcomes of Objective 1

1. Increased participation of civil society and citizens through voting in decision making for the development, implementation and monitoring of public policies

2. Information relevant to public expenditure, budget, audit result and procurement contracts is used by the population in their participation in decision making for the development, implementation and monitoring of public policies

3. An effective, independent and impartial mechanism in place to set up local government

4. Anti-corruption law is adopted to significantly reduce corruption to ensure integrity and transparency in government management of public resources and services

In order to measure the results of the first objective, performance indicators should be formulated.[5]

Formulated Performance Indicators for Objective 1

1. Percentage of NGOs personnel and citizens aged 18 or over participating in decision making process, implementation, and monitoring of public policies through voting

2. Number of provinces (or areas) having access to information relevant to public expenditure, budget, audit result and procurement contracts

3. The presence of an independent, effective, and impartial election law and procedure in nominating local government

4. Anti-corruption law adopted

Goal 2: Enhancement of Agriculture and Rural Development for Eradicating Extreme Poverty and Hunger by 2010

To achieve this goal, UNDAF set the following objective.

Objective 2: By 2010, agricultural and rural development activities will have improved livelihoods and food security, as well as reinforcing the economic and social rights of the most vulnerable in targeted rural areas.[x]

This objective should define some terms. It should define what type of agricultural activities will improve livelihoods. Moreover, what situation is defined as an improved livelihood of the targeted groups? Who are the most vulnerable? Or what locations are targeted located in?

Reformulated Objective 2

By 2010, the poor in the Tonle Sap Zone and in the Plateau/Mountainous Zone will have a daily income of $1 through the development of livestock production and irrigation system to ensure enough food and enjoy their economic and social rights.

As a prerequisite to achieve the second objective, UNDAF set out a number of outcomes as follows.

Outcomes of objective 2

1. Increased resources are mobilized and improving productivity and diversification of agriculture in line with cohesive national policies and programs for agriculture and rural poverty alleviation

2. Increased access to and utilization of land, natural resources, and markets to enhance livelihoods

3. The rural poor and vulnerable using their enhanced skills to increase productivity

4. Enhanced resilience to shocks[xi]

Outcome 1 should define the areas for agricultural diversification. Based on the reformulated objective, it should focus on livestock production. Outcome 4 should define the meaning of resilience. It can mean ensuring enough food. In the rural areas, people usually face food shortage; rice is not enough to meet the demand of local people. Thus, this outcome should aim at ensuring enough food for the rural poor through increased rice productivity.

Reformulated Outcomes of Objective 2

1. Family livestock production practiced by the residents, and irrigation system developed in the targeted regions

2. Increased access to and utilization of land, natural resources and markets to enhance livelihoods

3. The rural poor and vulnerable using their enhanced skills to increase productivity

4. Rice productivity increased in the targeted areas to eliminate food shortage in the region.

In order to measure the results of the second objective, performance indicators should be formulated.

Formulated Performance Indicators for Objective 2

1. Number of poor families practicing livestock production as their living, and the number of irrigation systems developed in those regions

2. Number of land parcels distributed to the poor in the targeted regions, number of fishing lots allotted to the residents, number of markets where the rural poor in the regions can sell their agricultural products

3. Daily incomes of the rural poor in the targeted regions and the number of poor families whose incomes are US$1 per day in the targeted regions

4. Comparison of rice yield per hectare before the implementation of UNDAF to that at the end period of the implementation of UNDAF in the targeted regions

Goal 3: Capacity Building and Human Resource Development for Social Sector

To achieve this goal, UNDAF set the following objective.

Objective 3: By 2010, Cambodia will have improved health, nutritional and educational status and gender equity of rural and vulnerable groups.[xii]

This objective should be divided into three different areas; i.e. education, health, and gender equity, in the targeted areas. Concerning education, it should specify what level of education it aims at. Based on the current situation in the country, this level should focus on basic education (grade 1 to 9). Likewise, it should also specify the areas of health it would like to focus on. It should aim at improving children’s health through vaccination against diseases such as malaria, measles, and polio, and improve child nutrition. Moreover, it should aim at improving maternal care as well. Regarding gender equity, it should define areas which it would like to improve. It should aim to increase the number of women in commune councils.

Reformulated Objective 3:

By 2010, children of the rural poor of the targeted regions will enjoy access to basic education (grade 1-9), their health will be improved through vaccinations against diseases, such as malaria, measles, and polio, and through improved food nutrition, while pregnant women enjoy maternal care, and the voice of women will be heard through the increased number of women in the commune councils in the targeted regions.

As a prerequisite to achieve the third objective, UNDAF set out a number of outcomes as follows.

Outcomes of Objective 3

1. Increased equitable access to and utilization of quality social services

2. Increased awareness and empowerment of the population, particularly women, children and youth, to claim their rights to social services

3. Significant reduction of all forms of violence against and trafficking of women and children[xiii]

Outcome 1 should focus on utilization rather than access to the services. Besides, it should define what quality services are focused on. As the objective shows, the quality social service should refer to basic education. Outcome 2 should be modified to refer to vaccination to help achieve the above objective. Likewise, Outcome 3 should focus on the number of women in commune councils in the target regions. Observing the above outcomes, we see that no outcome helps improve maternal health; thus, another outcome should be created which aims at bringing in maternal health care service for use by the rural poor in the regions.

Reformulated Outcomes of Objective 3:

1. Basic educational services (grade 1-9) will be in place to serve the need of the children of the rural poor in the targeted regions and increased number of children attending basic education in the targeted regions

2. Children of the rural poor in the targeted regions vaccinated against malaria, measles, and polio; and food enrichment programs available and used by the targeted groups

3. Maternal care service available and used by women in the regions

4. Increased number of women representatives in the communes councils in the targeted regions

In order to measure the results of the third objective, performance indicators should be formulated.

Formulated Performance Indicators for Objective 3

1. Increased number of schools and proportion of children attending basic education in the regions

2. Number of children who get vaccinations against malaria, measles, and polio; and number of children facing nutritional issues

3. Number of pregnant women who have access to maternal care service

4. Number of women representatives in commune councils in the targeted regions

Figure 1 summarizes the original goals, objectives, outcomes in UNDAF along with its reformulated components.

Figure 1: UNDFA 2006-2010 and its reformulated components

Goal 1: Achieving Good Governance and Promotion and Protection of Human Rights
Objective 1: By 2010, Cambodia will have achieved significant progress towards effective participation of citizens, accountability and integrity of government in public decision making and policy implementation for the full realization of human rights and meeting the Cambodia Millennium Development Goals (CDMG).
Reformulated Objective 1: By 2010, 80 percent of the population aged 18 or over will take part in public decision making process and policy implementation, while corruption on the local government level will be reduced by 50 percent, to support the rights of free speech and decision making.
Outcomes of Objective 1	Reformulated Outcomes of Objective 1	Formulated Performance Indicators of Objective 1
1. Increased participation of civil society and citizens in decision making for the development, implementation and monitoring of public policies 2. Improved public access to information 3. Effective, independent and impartial justice system set up and equal access increased 4. Corruption significantly reduced to ensure integrity and transparency in government management of public resources and services	1. Increased participation of civil society and citizens through voting in decision making for the development, implementation and monitoring of public policies 2. Information relevant to public expenditure, budget, audit result and procurement contracts is used by the population in their participation in decision making for the development, implementation and monitoring of public policies 3. An effective, independent and impartial mechanism in place to set up local government 4. Anti-corruption law is adopted to significantly reduce corruption to ensure integrity and transparency in government management of public resources and services	1. Percentage of NGOs personnel and citizens aged 18 or over participating in decision making process, implementation, and monitoring of public policies through voting 2. Number of provinces (or areas) having access to information relevant to public expenditure, budget, audit result and procurement contracts 3. The presence of an independent, effective, and impartial election law and procedure in nominating local government 4. Anti-corruption law adopted
Goal 2: Enhancement of Agriculture and Rural Development for Eradicating Extreme Poverty and Hunger by 2010
Objective 2: By 2010, agricultural and rural development activities will have improved livelihoods and food security, as well as reinforcing the economic and social rights of the most vulnerable in targeted rural areas.
Reformulated Objective 2 By 2010, the poor in the Tonle Sap Zone and the Plateau/Mountainous Zone will have a daily income of $1 through the development of livestock production and irrigation system to ensure enough food and enjoy their economic and social rights.
Outcomes of Objective 2	Reformulated Outcomes of Objective 2	Formulated Performance Indicators of Objective 2
1. Increased resources are mobilized and improving productivity and diversification of agriculture in line with cohesive national policies and programs for agriculture and rural poverty alleviation 2. Increased access to and utilization of land, natural resources, and markets to enhance livelihoods 3. The rural poor and vulnerable using their enhanced skills to increase productivity 4. Enhanced resilience to shocks	1. Family livestock production practiced by the residents, and irrigation system developed in the targeted regions 2. Increased access to and utilization of land, natural resources and markets to enhance livelihoods 3. The rural poor and vulnerable using their enhanced skills to increase productivity 4. Rice productivity increased in the targeted areas to eliminate food shortage in the region.	1. Number of poor families practicing livestock production as their living, and the number of irrigation systems developed in those regions 2. Number of land parcels distributed to the poor in the targeted regions, number of fishing lots allotted to the residents, number of markets where the rural poor in the regions can sell their agricultural products 3. Daily incomes of the rural poor in the targeted regions and the number of poor families whose incomes are US$1 per day in the targeted regions 4. Comparison of rice yield per hectare before the implementation of UNDAF to that at the end period of the implementation of UNDAF in the targeted regions
Goal 3: Capacity Building and Human Resource Development for Social Sector
Objective 3: By 2010, Cambodia will have improved health, nutritional and education status and gender equity of rural and vulnerable groups.
Reformulated Objective 3 By 2010, children of the rural poor of the targeted regions will enjoy access to basic education (grade 1-9), their health will be improved through vaccinations against diseases, such as malaria, measles, and polio, and through improved food nutrition, while pregnant women enjoy maternal care service, and the voice of women will be heard through the increased number of women in the commune councils in the targeted regions.
Outcomes of Objective 3	Reformulated Outcomes of Objective 3	Formulated Performance Indicators of Objective 3
1. Increased equitable access to and utilization of quality social services 2. Increased awareness and empowerment of the population, particularly women, children and youth, to claim their rights to social services 3. Significant reduction of all forms of violence against and trafficking of women and children 4. UNDAF does not define Outcome 4	1. Basic educational services (grade 1-9) will be in place to serve the need of the children of the rural poor in the targeted regions 2. Children of the rural poor in the targeted regions vaccinated against malaria, measles, and polio and food enrichment programs available and used by the targeted groups 3. Maternal care service available and used by women in the regions 4. Increased number of women representatives in the communes councils in the targeted regions	1. Increased number of schools and proportion of children attending basic education in the regions 2. Number of children who get vaccinations against malaria, measles, and polio and number of children facing nutritional issue 3. Number of pregnant women who have access to maternal care service 4. Number of women representatives in commune councils in the targeted regions

IV. Implementation of UNDAF

The UNDAF is implemented through the UN system in Cambodia. The UN system in Cambodia consists of 23 organizations[6], all of which are coordinated by the UN Resident Coordinator[7] . UN agencies set up their projects and programs to achieve the goal set in the UNDAF.

These UN agencies have the role of providing inputs to establish outputs to achieve the set outcomes identified in the UNDAF. Thus, a number of their projects implemented during the life cycle of the UNDAF have been examined to assess whether they provide necessary outputs needed to achieve the outcomes.

It should be recalled that UN agencies have their own strategic plan where they identify areas for their activities, thereby deviating from the set goal in UNDAF.

Figure 3 show the projects implemented by UN agencies to provide intended outputs.

Table 2: UN Agencies’ Projects to Support UNDAF 2006-2010

Goal 1: Good Governance and Promotion/Protection of Human Rights
Objective 1: By 2010, 80 percent of the population aged 18 or over will have taken part in public decision making process and policy implementation, while corruption on the local government level will be reduced by 50 percent, to support the rights of free speech and decision making.
Outcomes		Projects		Intended Outputs
1. Increased participation of civil society and citizens through voting in decision making for the development, implementation and monitoring of public policies		1. Civic and Democratic Engagement[xiv] · UNDP · Nationwide · 2006-2008 2. Democratic and Decentralized Local Governance[xv] · UNDP · Nationwide · 2006-2010 3. Demand for Good Governance[xvi] · World Bank · Nationwide · 2004-2008		Project 1: · Support the National Election Committee in preparation of Commune and National Election · Support promotion of the development of a culture of democracy and civic participation Project 2: · Develop a mechanism for multi-dialogue and partnership between the commune councils and other stakeholders (including NGOs and residents) · Establish local-to-local exchange information program for commune councils, local authorities, community organizations and local citizens Project 3: · Initiate an awareness campaign of human rights through support to human rights education and public media · Create and strengthen avenues for feedback of citizens and civil organizations to public officials
2. Information relevant to public expenditure, budget, audit result and procurement contracts is used by the population in their participation in decision making for the development, implementation and monitoring of public policies		1.Project to Support Democratic Development[xvii] · UNDP, DFID, SIDA · Nationwide · 2007-2009 2. Demand for Good Governance[xviii] · World Bank · Nationwide · 2004-2008		Project 1: · Conduct a study to establish local mechanisms to inform residents information regarding local public expenditure, audit result, and procurement contracts Project 2: · Assist the dissemination of information related to governance issues, processes, finance and laws to the ordinary public
3. An effective, independent and impartial mechanism in place to set up local government		1. Decentralization Support Program[xix] · UNDP · Nationwide · 2001-2007		Project 1: · Provide technical assistance for the drafting of the organic law
4. Anti-corruption law is adopted to significantly reduce corruption to ensure integrity and transparency in government management of public resources and services		1.Project to Support Democratic Development[xx] · UNDP, DFID, SIDA · Nationwide · 2007-2009 2. Integrity in Action[xxi] · UNDP · Nationwide · 2005-2007		Project 1: · Assisting the RGC in establishing the Commune Planning Guideline and mechanism regarding monitoring and evaluation of the implementation of the commune plan to achieve accountability at the commune level Project 2: · Provide technical and advisory services to develop legal framework in line with international standards and UN Commission on Corruption policy · Formulae a government-multi donor program for long-term assistance in curbing corruption · Provide capacity building to relevant corruption fighting institutions
Goal 2: Enhancement of Agriculture and Rural Development for Eradicating Extreme Poverty and Hunger by 2010
Objective 2: By 2010, the poor in the Tonle Sap Zone in the Plateau/Mountainous Zone will have a daily income of $1 through the development of livestock production and irrigation system to ensure enough food and enjoy their economic and social rights.
Outcomes		Projects		Intended Outputs
1. Family livestock production practiced by the residents, and irrigation system developed in the targeted regions		1. Unleashing Cambodian Enterprise[xxii] · UNDP · Nationwide · 2006-2009 2. Food Security and Income Generation[xxiii] · WFP · Location: Kompoung Speu, Prey Veng, Siem Reap, Svay Rieng · 2005-2008 3. Agricultural Development Support Project[xxiv] · IFAD · Nationwide · 2005-2008 4. The Tonle Sap Low Land Stabilization[xxv] · ADB · Tonle Sap Zone · 2006-2008 5. Water Resource Management Sector[xxvi] · ADB · Mekong and Tonle Sap Zone 6. Gender and Household Food Security[xxvii] · IFAD · Northeast region and Tonle Sap Zone · 2005-2009		Project 1: · Provide and facilitate access by rural poor to finance through micro-finance system (national policy and regulations regarding micro-finance institution) Project 2: · Provide technical training on sustainable agriculture, home gardening, and animal husbandry Project 3: · Provide technical assistance related to animal health care and diseases Project 4: · Provide assistance to the feasibility study of the establishment of small irrigation channels, and roads connecting to urban markets in the provinces Project 5: · Invest in small- and medium-scale irrigation systems covering a total target area of about 20,000 ha; and strengthening capacity of the capacity of the commune councils for sustainable management and maintenance of irrigation systems Project 6: · Support campaigns to encourage women households to participate in rice farming and poultry raising programs
2. Increased access to and utilization of land, natural resources and markets to enhance livelihoods		1.Project to Support Democratic Development[xxviii] · UNDP, DFID, SIDA · Nationwide · 2007-2009 2. Land Management and Administration Project[xxix] · World Bank · Nationwide · 2005-2008 3. The Tonle Sap Low Land Stabilization[xxx] · ADB · Tonle Sap Zone · 2005-2008 4. Trade Related Assistance for Development and Equity[xxxi] · UNDP · Nationwide · 2004-2010		Project1: · Assist the commune council in regulations and laws regarding the management of land and environmental resources Project 2: · Assist the Ministry of Land Management, Urban Planning and Construction in improving mechanism to ensure land tenure security, especially in rural areas · Review land registration procedure and develop new registration one based on new land law Project 3: · Provide assistance to the feasibility study of the establishment of small irrigation channels, roads connecting to urban markets in the provinces Project 4: · Provide of forum for rural poor to have their voices heard in policy making regarding access to domestic and overseas markets
3. The rural poor and vulnerable using their enhanced skills		1. Insights for Actions[xxxii] · UNDP · Nationwide · 20006-2008 2. Agriculture Development Support Project[xxxiii] · IFAD · Nationwide · 2005-2008		Project 1: · Conduct practical research into how to improve farm family incomes Project 2: · Support Seila Program in providing technical assistance to farmers to increase rice production and production of livestock
4. Rice productivity increased in the targeted areas to eliminate food shortage in the region.		1. Agriculture Development Support Project[xxxiv] · IFAD · Nationwide · 2005-2008 2. Insight for Action[xxxv] · UNDP · Nationwide · 2006-2008 3.Gender and Household Food Security[xxxvi] · IFAD · Northeast region and Tonle Sap Zone · 2005-2009		Project 1: · Support Seila Program in providing technical assistance to farmers to increase rice production and production of livestock Project 2: · Conduct practical research into how to improve farm family incomes Project 3: · Support campaigns to encourage women households to participate in rice farming and poultry raising programs
Goal 3: Capacity Building and Human Resource Development for Social Sector
Objective 3: By 2010, children of the rural poor of the targeted regions will enjoy access to basic education (grade 1-9), their health will be improved through vaccination against diseases, such as malaria, measles, and polio, and through improved food nutrition, while pregnant women enjoy maternal care, and the voice of women will be heard through the increased number of women in the commune councils in the targeted regions.
Outcomes	Projects		Intended Outputs
1. Basic educational services (grade 1-9) will be in place to serve the need of the children of the rural poor in the targeted regions	1.Cambodia Education Sector Support[xxxvii] · World Bank · Nationwide · 2005-2010 2. European Fund for Micro Projects, Phase II[xxxviii] · UNDP, European Commission · Battambong Province ( 4 districts) · 2006-2008		Project 1: · Conduct a study regarding educational demand and supply in Cambodia with the focus on primary and secondary education Project 2: · Construct school facilities (primary and secondary school)
2. Children of the rural poor in the targeted regions vaccinated against malaria, measles, and polio and food enrichment programs available and used by the targeted groups	1. Health Sector Support Project[xxxix] · World Bank · Nationwide · 2004-2008		Project 1: · Support the campaign of the Ministry of Health in providing immunization and increased awareness of the importance of the immunization
3. Maternal care service available and used by women in the regions	No projects available		No projects available
5. Increased number of women representatives in the communes councils in the targeted regions	1.Partnership for Gender Equity, Phase II[xl] · UNDP · Nationwide · 2004-2009		Project 1: · Support advocacy and campaign by NGOs to increase women representative in local government

As shown in this table, there are not enough projects to provide necessary outputs to achieve some outcomes. Regarding outcome 3 of the first objective, besides the provision of technical assistance to draft the organic law, which is supported by UNDP project, the following outputs are necessary to help achieve this outcome.

Suggested outputs for Outcome 3 of Objective 1:

· Provision of support to the reform of the National Election Committee

· Review and reform of the procedure, law and regulations related to the nomination of the National Election Committee

Likewise, concerning the Outcome 2 of the second objective, another two outputs should be in place to achieve this outcome.

Suggested outputs for Outcome 2 of Objective 2:

· Support for demining action in the targeted regions to get land so that the rural poor are provided with that mine-free land to support their livelihoods

· Provision of trainings to the local commune councils in natural resource management and support for the programs of empowering local government in natural resource management

Regarding Outcome 1 of the third objective, besides the construction of school facilities, another three outputs should be focused on so that this outcome will be achieved.

Suggested outputs for Outcome 1 of Objective 3:

· Establishment of an incentive scheme to encourage teachers to teach in the targeted regions

· Establishment of an incentive scheme to encourage people in the targeted regions to bring their children to school

· Provision of support for the Ministry of Health in establishing food enrichment program for the rural poor

As seen above, there is no project to support the Outcome 3 of the third objective.

Suggested outputs for Outcome 3 of Objective 3:

· Establishment of campaigns to raise awareness of the importance of maternal care to pregnant women

· Establishment of an incentive scheme to encourage nurse and family practioners to work in the targeted regions

· Provision of health care facilities in the targeted regions

V. Challenges and Recommendations

1. Challenges in implementation of UNDAF

First of all, the most noticeable challenge is related to the objectives and outcomes in the UNDAF. As analyzed in Section III, some objectives are not realistic, while its outcomes do not help achieve the intended objectives. Second, some outcomes lack necessary outputs. Third, because UN agencies have their own areas of concentration, the program and projects implemented do not necessarily support the targeted outcomes. Last, their project life cycle is not in harmony with the life cycle of the UNDAF. Some projects start before the establishment of the UNDAF, coupled with the lack of performance indicators in the UNDAF itself, making it hard to track the progress of the implementation of the UNDAF.

2. Recommendations

In order to make the UNDAF workable and really contribute to the development of Cambodia, the UNDAF should:

· First, limit the scope of its areas of concentration by reformulation of its objectives and outcomes as suggested in Section III to make them realistic and achievable during the timeframe

· Formulate performance indicators so that progress is easily tracked

· Establish projects to provide the outputs suggested above for the rest of its life cycle

· Harmonize the strategic plan of each UN agency with the goal and objective set in UNDAF so that the agencies concerned can focus their activities more to help achieve the goals and objectives of the UNDAF

References

(2006). Cambodia Halving Poverty by 2015? Phnom Penh: World Bank.

(2003). Common Country Assessment and United Nations Development Assistance Framework: Guidelines for UN Country Teams preparing a CCA and UNDAF 2004. United Nations, New York.

Office of the Resident Coordinator in Cambodia. (1998). United Nations Common Country Assessment: Cambodia. Phnom Penh: United Nations.

Office of the Resident Coordinator in Cambodia. (2000). United Nations Development Assistance Framework: Cambodia 2001-2005. Phnom Penh: United Nations.

Office of the Resident Coordinator in Cambodia. (2005). United Nations Development Assistance Framework: Cambodia 2006-2010. Phnom Penh: United Nations.

World Bank. (2007). Status of Projects in Execution-FY07. Washington D.C.: World Bank.