Projects Evaluation in Pakistan

8/18/2019 Projects Evaluation in Pakistan

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Projects Evaluation in Pakistan

Dr. Fazli Hakim KhattakDirector General (Imp. & Monitorin!

Plannin" Development & #e$orm DivisionIslama%a" the 'th Ma" )*+,


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Projects Evaluation in Pakistan

Dr. Fazli Hakim Khattak Director General

Planning Commission of Pakistan

Abstract

Government of Pakistan has been funing Projects an Programs for

socio!economic evelo"ment since formulation of the first five #ears "lan. $uch Projects

falls in thousans %ith a cost of trillion ru"ees. Presentl#& '((( "rojects an "rograms

are fune through evelo"ment buget at feeral an "rovincial levels. )his is a huge

investment& an on com"letion re*uires transformation to regular buget on sustainable

footing to ignite the engine of economic gro%th in long run. )herefore& evaluation of all

these "rojects is re*uire for assessment of ongoing an com"lete "rojects& "rograms&

"olic# an "lan to make im"rovement in their esign an im"lementation an stabilize

"olic# formulation b# inbuilt mechanism of monitoring an evaluation. )he Develo"ment

Assistance Committee +DAC, has alrea# set a criteria in this regar for evaluation of

evelo"ment assistance. -t inclues elevance& Effectiveness& Efficienc#& -m"act& an

$ustainabilit#.

-n Pakistan& Projects Planning& im"lementation& monitoring an evaluation

are "erforme using the conventional methos through ahoc ata collection +not

"ro"erl# anal#se, an %ithout ientification of the outcome an im"act of such

investment. )he tools use in the "rojects c#cle are kno%n PC!-& PC!--& PC!---& PC!-/ 0

PC!/. )hese are effective tools "rovie the ae*uate information is mae available

through a reliable 1anagement -nformation $#stem +1-$,. )he soft%are of Projects

1onitoring an Evaluation $#stem +P1E$, is of high %orth in this regar to anal#se the

ata an e2tract results for ientification of the outcome an im"act hel" the "olic#

makers for a change in the relate "arameters to achieve the targete level of economic

gro%th.

An -ne"enent Project Evaluation +-PE, has been more effective in

evaluation of the iniviual "roject esigne to achieve the s"ecific objectives& %ithin

allocate resources& in a "rescribe "erio& follo%ing the a""rove "lan of action %ithin


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the frame %ork of a broaer "rogram. -n this case /ision 3(34 "rovies the guiing

"rinci"les to achieve the targete results through kno%n inicators& an efine its

connectivit# %ith the national goals an objectives. )hese inventories ma# be reflecte

in the Five 5ear Plans. Ho%ever& a "rice tag of the "lan matching %ith the "h#sical

targets %ill further s"ecif# the evelo"ment interventions. -PE is initiate an manage

b# the "roject managers& an contribute b# the ine"enent e2ternal evaluators to

ensure *ualit# assessment in the entire "rocess of evaluation. Planning Commission of

Pakistan has ao"te a mi2e a""roach of monitoring an evaluation through Projects

6ing since 78'9. A fe% "rojects %ere monitore till 3((4. )he Projects 6ing %as

u"grae in 3((: b# investing s 9:( million through the Project ;1onitoring P$DP

Fune Projects +1PFP,


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>nce the "lan is finalize b# the national "lanning agenc#& res"onsibilit#

for its im"lementation "rimaril# rests %ith the ministries at the feeral level an %ith the

line e"artments at the "rovincial an regional levels. )his is not to sa# that the

Planning Commission is absolve of all res"onsibilit# in this regar. ?ational Economic

Council +?EC,& the su"reme "olic# making bo# in the economic s"here& bears

res"onsibilit# for monitoring an e2ecution of its "olicies& its subsiiaries& name

;E2ecutive Committee of the ?ational Economic Council +EC?EC,< an the Planning

Commission also share that res"onsibilit#. @# the same token& the Planning an

Develo"ment De"artments in the "rovinces share the res"onsibilit# of im"lementation of

the evelo"ment "rojects %ith the concerne line e"artments.

Monitoring and Evaluation:

Accoring to EC?EC ecision& the selecte feeral"rovincial "rojects

costing s 4( million an above %ere monitore b# the Projects 6ing. )he *uantum

%as usuall# monitoring about 4( "rojects& an "rouce evaluation re"orts of 7(

com"lete "rojects %as consiere to be reasonable annuall#. Ho%ever& a much larger

coverage of at least 9(( "rojects for monitoring is esirable along %ith evaluation of 4(

com"lete "rojects ever# #ear for %hich aitional resources an institutional

frame%ork %as "rovie. )he ;1PFP< "roject %as u"grae& an "lanning& monitoring

an evaluation +P1E, cells strengthenecreate in the feeral an "rovincial

s"onsoring agencies an a com"uterize 1-$ installe to "rovie a firm ata base. )his

coul not nourish ue to ca"acities "roblems relate to *ualification an e2"erience of

the human resource& management& an u"ate soft %ear etc.

)he Planning Division through Projects 6ing maintain close liaison %ith

the P1E cells in the feeral ministries an ivisions an the "rovincial governments

hel" maintain a uniform monitoring an evaluation a""roach %hich facilitates inter!"rovincial an inter!regional com"arison. )he ivision& in consultation %ith other

relevant agencies& also attem"t to collect& refine an evelo" ata collection instruments

an make efforts to these com"atible %ith the changes in the evelo"ment nees of the

econom#. )he ata base an the 1-$ facilities have been create %ithin the Projects


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6ing& an available to the P1E cells at all levels. )hese services are also available to

all agencies involve in "roject im"lementation.

)he Projects 6ing regularl# shares monitoring an evaluation re"orts %ith

s"onsoring e2ecuting agencies for taking remeial action. A *uarterl# re"ort is being

submitte to EC?EC on the monitoring an evaluation of "rojects. ?o% the "rojects

status ientifie through 10E have been share %ith the Public Accounts Committee

+PAC,& $taning Committees of ?ational Assembl#& $enate& an the Prime 1inister=s

$ecretariat. )his is a hel"ing "ractice in ientification of slo% moving "rojects& resolve

the issues in "rojects of strategic im"ortance& re!ajust "riorities an allocation of

resources for mi!course correction in "olic#& "lan as %ell im"lementation of the

"rojects.

ecognizing the nee for u"graing the kno%lege an skills of the

officers an staff engage in "lanning& monitoring an evaluation tasks in various

ministries& "rovincial line e"artments an large cor"orations& a Planning an

1anagement -nstitute +PP1-, is being set u" b# the Planning Division. )he -nstitute

offers "reliminar# an s"ecialize courses to train an im"art necessar# kno%lege an

skills to officers %orking in the areas like "roject formulation& a""raisal& management&

monitoring an evaluation an macroeconomic "lanning. )his is "lanne that all "roject

managers shoul com"lete a "roject management course from the -nstitute before

a""ointment. )he -nstitute %ill strengthen the in!house ca"acit# of ministries an line

e"artments an buil u" ca"acities in ever# major sector of the econom#.

Institutional Framework (IF):

)he -nstitutional frame%ork of government ecision making "rocess is

rather com"le2 instea to be absolutel# clear. )he -F emboies enforcement of "rojectc#cle& "articularl# in "rojects formulation base on the national nees& an in evaluation

after com"letion of "rojects for correction in "olicies. )he 10E is base on factual ata

an national "arameters. )hese are actuall# correlate %ith the evelo"ment "lans to

achieve the ultimate objectives of economic gro%th. )he value "arameters are actuall#

the national %eights an factual "arameters are government "ro"ensit# to re!invest or


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the marginal "ro"ensit# to invest in the "ublic as %ell as "rivate sector. )here are four

units %hich form the institutional frame%ork given as unerB

Formation is cruciall# e"enent on techni*ues of evaluation therefore the

fee back base on evaluation shall be re"orte to the "olic# makers for im"rovement

in formulation of "olic# an "lan& for use in future.

-n Pakistan evaluation also guies& transfer of "rojects to the regular

buget& %here accountabl# an trans"arenc# in funs utilization through e2ecution of

"rojects are the major objectives to assess an recommen for more value aition in

the "rojects an "rograms c#cles. For such "ur"ose& PC!---& PC!-/ an PC!/

P#-E/0 -P0IM12

34DE# 51#I-36

#14GE6 -F

410I-412

P1#1ME0E#6

P-2I/7

0 I - 4

0 E # 6

1 M E 0 E # 6

# 6

E 0 E # 6

0 E # 6

P#-E/0 E512310-#6

/E40#12

P#-E/0F-#M3210


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ocuments carries high significance. )hese instruments are e"icte in the Project

1onitoring an Evaluation $#stem +P1E$, for use.

)he P$DP size has gro%n u" from s 779 billion in 3((9!( to s 4(

billion. Follo%ing gra"h e"ict the P$DP size uring last 7( #earsB

$ourceB Projects 6ing& P0D Division& 1arch&3(7

)otal "rojects com"lete an registere %ith the Planning Commission till

Februar#& 3(79 are '(:& %here 7:9 PC!-/ +"rojects com"letion e"orts, have been

com"ile in the Evaluation $ection as follo%sB

$.?o 5ears Projects

com"lete

PC!-/

eceive

PC!-/ of

com"lete "rojects

7 3(('!(8 78( 7 33

3 3((8!7( 34 9 7:

9 3(7(!77 373 :7 38

3(77!73 74 78 73

)otal '(: 7:9 3( $ourceB 1-$ Projects 6ing& Planning Commission of Pakistan& 1arch& 3(7.

)he anal#sis of the above ata inicates that 1anagement -nformation$#stem +1-$, is the backbone of 10E %hich is %eak& an not "ro"erl# e*ui""e %ith

regars to the *ualifie an traine staff. )he u" ate an accurate ata is not

available %ith the 1-$. )he P1E$ soft %ear ho%ever re*uires u"ation to meet the

targets through integrate result base monitoring an evaluation.


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)he evaluation recor remaine %eak ue to absence of the "ro"er

mechanism an in"uts. Follo%ing is status of the Projects evaluate uring 3((:!79B

$ourceB Projects 6ing& Planning& Develo"ment 0 eform Division

M&E Status:

Project 6ing has been assigne the task of monitoring an evaluation

since 78'9. Projects monitore %ere more than the "rojects evaluate uring last 9(

#ears +78'9!3(79,. E2act criteria coul not be etermine for selection of the "rojects

meant for monitoring& an "articularl# for evaluation. Projects fune through P$DP

being s"onsore an e2ecute b# 9 1inistries an Divisions monitore uring last 7(

#ears are follo%ingB


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$ourceB Projects 6ing& Planning& Develo"ment 0 eform Division

Anal#sis of the above tren sho%s that number of mega "rojects having

irect bearings on the econom# has increase. )he "ost evolution after 3(7(& P$DP

fune "rojects have ecline to 73(( ue to transfer of "rojects to the "rovinces. A fe%

"rojects relate social evelo"ment have been accommoate an ajuste in the

ifferent 1inistriesDivisions at feeral level. )he Evaluation unit of Projects 6ing has

not elivere "ro"erl# an stans be#on the targete achievements. )his unit has not

mae the re*uire contribution to%ars the economic u" lift b# im"roving effectiveness&

efficienc#& an trans"arenc# in the e2ecution of the Projects. )he visible reason for less

eliver# is non availabilit# of the *ualifie man"o%er& an "ro"er guielines of

evaluation techni*ues. )his has actuall# resulte in& im"erfect outcome& an more of no

goo use for im"rovement in "olic# formulation as %ell as im"lementation. Follo%ing are

the major issues being face b# the Evaluation $#stemB

Issues:

?on!e2istence of evaluation "olic#& manual& guie lines.

o% eman sie of 10E.

ack of a%areness about the im"ortance of evaluation. -m"ro"er maintenance of im"ortant "roject information recor.

Deficiencies in "roject "re"aration an esign.

nuse evaluation finings.

-nsufficient ca"acit# builing of human resources.

ob insecurit#.

ack of clarit# an ca"acit# to integrate "roject %ithin res"ective sector.


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Deficiencies& in "roject "re"aration.

$hortcomings in PC!- %ith res"ect to its 1onitoring 0 Evaluation inicators.

Recommendations:

• 6ithin si2 months of "roject a""roval& etaile esign an costing shoul

be finalize an submitte to the com"etent authorit#. -m"lementation of

such "roject com"onents& %hich re*uire etaile esigning& shoul be

starte onl# %hen these have been finalize.

• Financial "hasing shoul be linke %ith the im"lementation scheule an

a realistic assessment mae of the resource availabilit# for the "roject.

)he "roject shoul not be initiate unless ae*uate funing is assure.

• -n a""roving the stanarize builing esigns& variation in climate&

to"ogra"h# an availabilit# of local material shoul be taken into

consieration for economic an efficient use of resources.

• )he im"lementation scheule shoul be base on bar charts PE)CP1&

an shoul form an essential "art of ever# "roject ocument. )he

scheule of rates use in estimating "roject cost shoul be regularl#

u"ate b# taking into account the market rates& instea of allo%ing

across the boar "remium on the scheule of rates.

• ualifie Project Directors shoul be a""ointe in case of each "roject&

an shoul not be transferre uring the currenc# of the "roject. )he

Project Director shoul be elegate full aministrative an financial

"o%ers. )hese measures %oul im"rove management an hel" assign

technical an financial res"onsibilit#.

• Plug!in the recommenations finings of 10E into the Planning an

Develo"ment $#stem through consieration b# CD6P an EC?EC& analso irect sharing %ith the stakeholers for enforcement an

im"lementation.

• Develo"ment of 10E "rocesses& "roceures& tools an manuals.

• Enhancement 0 u" graation of 10E information management s#stem.

• Ensuring the continuit# an ca"acit# builing of 10E "rofessionals.


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• Formal feeback "rocesses for 10E activities.

• Pro"er Coorination 0 close liaison among Feeral an Provincial 10E

Cells.

References:

7. Dasgu"ta& Amart#a $en onon $chool of Economics Guielines for ProjectsEvaluation& ?& 78I3.

3. $te"hen& Harvar niversit#& ?-D& 78I3.

9. Guielines for Project Evaluation& ? Pusercatin& ?-D> /iena& ?e%#ork& 78I3.

. Ith Five 5ear Plan& 78''!89& an Pers"ective Plan 78''!3((9& Planning

Commission of Pakistan& -slamaba.

4. Presentation on Evaluation b# P0D Division& Conclave& 73th 1arch& 3((&-slamaba& Pakistan.

:. Pakistan 1DGs e"ort 3(79& Planning Commission of Pakistan& -slamaba.'8

I. 1anual for Develo"ment& P& D 0 Division +788I,& -slamaba.

'. Project 1anagement Guielines& Planning Commission of Pakistan& 3((.

8. Projects 6ing& Planning& Develo"ment 0 eform Division& -slamaba& 1arch&3(7.


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)he $ecretar#& 1o Commerce& Government of Pakistan& -slamaba.

$ubjectB EE$) F> -$$A?CE E))E F> )HE EJP>) >F CE1E?)@AG$ F>1 PAK )> AFGHA?-$)A?.

Dear $ir&

-t is humbl# re*ueste to kinl# "rovie us one million cement bags& i.e.+uck#& Kohat an @est 6a#, for the transit of Pakistan to Afghanistan& as %e arealrea# oing this on internal level& therefore %e shall be thankful to #ou if our re*uestma# kinl# be acce"te.

3. -n vie% of the above& it is& therefore re*ueste that necessar# "ermissionma# kinl# be given an issue a letter for e2"ort of cement bags from Pakistan to

Afghanistan. .All necessar# re*uirements are com"lete in #our as"ects.

)hanking #ou&

5ours faithfull#&

+)allat ave,

RIEF F!R SEMI"#R !" M!"I$!RI"% #" E'##$I!"

Planning Commission res"onsibilities also inclue monitoring anevaluation of evelo"ment "rojects "rograms& anal#sis of these re"orts an"resentation of finings to the ?EC an EC?EC. $ubmission of monthl# "rogress


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re"orts of monitore Projects to Cabinet Division an im"lementation of "olic# ecisions"ertaining to e2ecution of "rojects is also "art of our uties.

Accoring to EC?EC ecision& the selecte feeral"rovincial "rojectscosting s 4( million an above %ere monitore b# the Projects 6ing. )he *uantum

%as usuall# monitoring about 4( "rojects& an "rouce evaluation re"orts of 7(annuall#. Ho%ever a much larger coverage of at least (( "rojects for monitoring an4( com"lete "rojects for evaluation %ere targete annuall#.

)he ;1PFP< "roject %as u"grae& an "lanning& monitoring anevaluation +P1E, cells strengthenecreate in the feeral an "rovincial s"onsoringagencies an a com"uterize 1-$ installe to "rovie a firm ata base through 1-$.

6eb base Projects 1onitoring 0 Evaluation $#stem +P1E$, is functionalfor facilitation of all stakeholers for effective im"lementation of the Projects Programs.

)he "roject title 1onitoring of P$DP Fune Projects +1PFP, %asoriginall# a""rove in 3((: b# CD6P at a cost of s 797 million %hich later on reviseto s 9:( million in 3(('. A"art from strengthening of 1onitoring sections of the 6ing&t%o ne% $ections i.e.& Evaluation an 1-$ %ere create uner the "roject.

$ince ince"tion of "roject ((( evelo"ment "rojects have beenmonitore b# the Projects 6ing& u"to une& 3(79 %hich is '7 of the target. E2!"ostevaluation of com"lete "rojects have been conucte out as 73 "rojects %hich comesabout :3 of the total target. )he main reason of shortfall in achieving the "ro"osetargets is insufficient "rovision of man"o%er uner the "roject as %ell as against theregular sanctione "osts.

)he on!line connectivit# of 1inistriesDivisions %as initiate uring 3((I!('. A total 9: 1inistriesDivisions have been "rovie on!line connectivit# u"to une&3(79.

)here has been a "ositive im"act of monitoring on im"lementation statusof "rojects. E2ecution of ela#e "rojects has been streamline. As a result the elementof timecost over!run has been minimize. Flo% of benefits to the beneficiaries has beenim"rove. Efforts have been mae to resolve the issues affecting the e2ecution of the"rojects for their timel# com"letion an %ithin the a""rove cost.

E2"erience >fficers$taff %ere hire in the "roject. 6ith the "assage atime& all of them have been %ell ac*uainte %ith the %ork an "erforming their uties as"er )>s. )he 1onitoring an Evaluation re"orts are "re"are an circulate to allconcerne for mi course correction an im"rovement in "olic# formulation anim"lementation of "rojects.


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Dr. Fazli Hakim Khattak Director General +$$,

Documents

Projects Evaluation in Pakistan