Business Case and Intervention Summary
Acronyms
CSJ Community Security and Justice Programme
DFID Department for International Development
DP Design Phase
EFP Ethiopian Federal Police
FY Financial Year
GBV Gender Based violence
GoE Government of Ethiopia
GTP Growth and Transformation Plan
JLSRI Justice and Legal Systems Research Institute
M&E Monitoring and evaluation
MA Management Agent
MB Management Board
MoJ Ministry of Justice
OSJA Overseas Security and Justice Assessment
PCJ Harvard Kennedy School Program in Criminal Justice
PDP Peace and Development Programme
PSC Programme Steering Committee
PF Prison Fellowship
PSC Programme Steering Committee
SNNPR Southern Nations Nationalities and Peoples Region
ToR Terms of Reference
USAID United States Agency for International Development
VfM Value for Money
Table of Contents
Acronyms 1
Table of Contents 1
Intervention Summary 2
Strategic Case 7
Appraisal Case 21
Commercial Case 61
Financial Case 66
Management Case 70
Intervention Summary
Title: Community Security and Justice in Ethiopia: Putting Women and Girls
First (CSJ)
What support will the UK provide?How much funding does the UK expect to provide? How is the budget broken down?
DFID Ethiopia will invest a total of £20 million over the course of 5 years (FYs 2012/13-2016/17), with potential increase to £27 million at mid term review.
These funds will support the design and implementation of CSJ programme at federal, regional and local levels to deliver improved access to security and justice for one million women and girls in Ethiopia. The main intervention areas will be:
1. Improving access to citizen-responsive justice, particularly for women and girls (£3.5m).
2. Improving services on investigations and referrals for victims of Gender Based Violence (£3.3m).
3. Increasing capacity to prevent and resolve community conflict. (£3.8m)
4. Police services interacting with communities on local safety issues. (3.7m)
5. Lesson learning within and across the programme for maximising impact (£2.5m)
6. Improved capacity to use locally conceived indicators in the governance of justice and safety in Ethiopia. (£1.1)
£1.2m has been spent on design and piloting, and a further £0.9m will be spent on monitoring and evaluation.
If the programme is delivering successfully at mid term review, we would consider the case for a further investment of £7m in the areas listed above producing the best results, raising the total budget to £27m and delivering a 50% increase to our results.
How will the intervention be delivered and who will the funding go to?
The intervention will be delivered by a Management Agent (pts 1-5 above) and by Harvard Kennedy School Program in Criminal Justice (pt 6 above). The primary beneficiaries will be women and girls living in the CSJ intervention zones, but the support will target both service providers (eg police, courts, elders, bureau of women, etc.) as well as communities.
Period of funding?
5 years: Jan 2013 – Dec 2017 (Note that Jan - Aug 2013 comprises the design phase of the programme).
Why is UK support required?
Does funding the intervention contribute to delivering the Operational Plan or published DFID results commitments?
CSJ will contribute towards DFID’s “We Will” results commitment to improve access to security and justice for ten million women and girls, by providing at least 100,000 women and girls with improved access to security and justice services by March 2015. This is a significant share of DFID E’s total commitment of 0.5 million women and girls with improved access to security and justice by this deadline (moreover, by the end of the programme in December 2017, this number is expected to reach one million).
What need are we trying to address?
CSJ will tackle the problem of inadequate access to security and justice for women and girls in Ethiopia. Despite good progress in poverty reduction, there remains inadequate access to security and justice amongst most citizens and communities across almost all regions of Ethiopia, but especially for women and girls. High levels of gender based violence, community-level conflict, and limited access to fair or effective justice, are compounded by low levels of trust in police and judiciary. People want to use state-provided justice but it does not meet their needs – it is frequently remote, costly and poor quality. Non state security and justice may be more accessible, but is often unaccountable, inequitable and poor quality.
Women and girls suffer in particular. Due to the immobility of girls and women and the often negative attitudes towards them, it is more difficult for girls and women to access security and justice services. However, this is the population who need services the most. Systematic research on gender based violence (GBV) is scarce, but small scale studies indicate that the majority of women (70%) face violence at some point in their lives and fail to report it.[1] Acceptability of GBV remains high[2], and appropriate redress and rehabilitation options are very limited. Four key threats/ challenges to women and girls identified during the design phase will form the focus of our programme:
· The need to enhance access to justice, including improving the coordination between the state and non-state systems of justice.
· Gender-based violence and the structural causes of women’s vulnerability to violence, such as property rights and family systems in Ethiopia.
· Conflict and the harm caused, particularly to women and girls.
· The need to provide more responsive security for citizens through enhanced policing. (including community policing and a more responsive crime investigation process).
· Weak data management and capacity to measure performance.
In addition, this programme will address the need for national stability as well as stability within the wider Horn of Africa. Stability in Ethiopia is vital for wider peace and security in the Horn of Africa. Ethiopia is in one of the most conflict-prone regions of a conflict-prone continent. CSJ will also mitigate risks to the broader UK and DFID Ethiopia programme arising from security and justice deficits. Good management and governance of the security and justice sector is essential for the rest of UK’s development programme in Ethiopia. Measures to improve security and access to justice will contribute to improved livelihoods and economic development, better access to services and improved well-being. Security and justice programming represents a major opportunity for ‘uplift’ to our broader results offer.
What will we do to tackle this problem?
We will implement a bilateral programme that will work in three regional states (in selected zones) and at federal level to improve access to security and justice for one million women and girls[3]. This programme has been designed during an eight month design-and-piloting phase.
The programme will deliver a mix of capacity development for the service providers on the one hand, and build community awareness and engagement on the other. The majority of spend will be through technical assistance, with some spend on small grants and procurement of goods and services. Some selected local-level activities will include but are not limited to the following:
ü Support Peace Committees and community projects to prevent and manage conflict
ü Support development of local community safety dialogue fora and citizen feedback mechanisms for improved police accountability
ü Training investigators in handling cases of Gender Based Violence
ü Support development of access to legal aid services for marginalised communities, especially women and girls
ü Work with criminal justice institutions to identify and develop indicators that can drive and transform performance improvements.
Who will implement the support we provide?
A competitively-appointed Management Agent will implement the bulk of the programme, and Harvard Kennedy School Program in Criminal justice will implement the indicator component. An independent evaluation service provider will provide rigorous M&E throughout the lifetime of the programme.
What are the expected results?
What will change as a result of our support? How will impact be sustained?
There are a number of changes that will occur as a result of UK support. In five selected intervention areas[4], the programme will result in:
· 1 million women and girls better aware of security and justice services and how to access them
· 1 million women and girls able to access measurably improved security and justice services
· 30,000 women and girls direct users of improved security and justice services
The range of security and justice services that will improve include improved access to legal aid; improved quality of informal justice provision (e.g. decision making of elders); improved community policing; strengthened conflict prevention and management services; and strengthening / initiation of referral systems for gender based violence.
At federal level, the programme will result in improved policy and strategy on community policing, crime prevention (Federal Police) and public legal education (Ministry of Justice); and better capacity to measure results and generate indicators that can help drive performance improvement (security and justice sector).
In sum, CSJ will result in more efficient, accountable, accessible and trusted security and justice service provision in five[5] zones (across three regions: Oromia, SNNPR and Gambella) of Ethiopia, benefitting at least 1 million women and girls. The programme will contribute to a safer environment in which men and women, girls and boys are more confident that security and justice providers are there to serve their interests.
This programme is essentially focussed on capacity building of the security and justice sectors. The CSJ will enshrine a systemic approach to capacity development, which will contribute to a sustainable improvement in capacity. CSJ provides an opportunity to bring expertise and ideas about new ways of working to the security and justice sector. Our assessment is that interventions that are successful in demonstrating impact, without being highly costly to replicate, will be most attractive to the Ethiopian Government (at all levels). Therefore, whilst a very small proportion of the overall programme cost will go towards hardware procurement (e.g. motorcycles or computers/ software) where this is identified as a key strategic investment, the majority of programme spend will go towards self-sustaining initiatives and investments such as developing policy and procedures, training of trainers, community engagement, and improving work practices.
What are the planned outputs of the project attributable to UK support?
This programme will be entirely DFID funded. All outputs are therefore attributable to UK support. Outputs will include:
1. Improved access to justice, particularly for women and girls in selected intervention areas of Ethiopia
2. Improved services on investigations and referrals for GBV, and increased awareness of rights to those services
3. State and non -state capacity to resolve and prevent conflict is increased
4. Community policing capacity strengthened to enhance community safety
5. Stakeholders more aware of research and lessons learned about community security and justice
6. Improved capacity to use locally conceived indicators in the governance of justice and safety in Ethiopia[6]
How will we determine whether the expected results have been achieved?
A robust monitoring and evaluation framework has been developed for the programme which includes a baseline assessment drawing on multiple data sources (e.g. training needs assessments of different institutions; perception surveys; crime data; participatory rapid assessment of security and justice). Beneficiary monitoring and feedback will be incorporated at various monitoring and review milestones.
Independent monitoring and evaluation of both components of CSJ will complement the on-going M&E conducted by the management agent and PCJ. An independent team has already completed the design of the evaluation, and baseline surveys will begin in September 2013.
What is the value for money assessment of the project?
The preferred option (“Option B”) represents good value for money in comparison to other women and girl focused interventions by DFID Ethiopia. There is moderate/ strong evidence underpinning the approach, and CSJ aims to improve access to security and justice for 1 million women and girls (indirect beneficiaries) for a total sum of £20 million. Excluding the PCJ indicators work, the total cost works out as £19 per female indirect beneficiary, and £636 per female[7] direct beneficiary i.e. 30,000 women and girls direct users of services. If all beneficiaries are considered (male and female), this equates to £271 per direct beneficiary. There are also extensive indirect, and hard-to-measure, benefits associated with this project, related to empowerment and the rights of women and girls, as well as indirect benefits from potential GoE scale-up of innovations. If we decide to invest a further £7 million at mid term review, our results will increase by 50%, improving the VFM assessment.
Although this governance project, like many such projects in this sector, presents significant challenges for quantifying and monetising benefits, the project will attempt to forge new pathways in assessing value for money in security and justice programming.
Business Case
Strategic Case
A. Context and need for a DFID interventionA1. Sector context and need for intervention
Conceptual clarification
The programme plans to address:‘Security provision’ for communities including prevention, protection and responses to violence, illegitimate coercion or confiscation, theft, intimidation, destruction of personal property, and illegal expulsion or restrictions. More generally, it includes providing a secure environment in which individuals and communities can engage in their normal lives and take development or poverty-alleviation opportunities without fear of violence or crime. The programme focuses on security from fear, violence and crime, rather than wider security issues (such as food security, or security of employment).
Similarly ‘justice provision’ for individuals and communities includes access to justice (criminal, civil) and dispute settlement services and mechanisms that are adequate, timely, effective, fair, respectful, gender-sensitive, non-discriminatory, and in accordance with the law and relevant standards and due-process procedures. It includes not only state justice provision but also non state provision of justice and dispute settlement services through customary or traditional mechanisms, religious courts, or other non-state systems.
There are a number of compelling and inter-linked reasons for engaging in the security and justice sector in Ethiopia:
A1.1. Global and regional justification
First, there is abundant global evidence of an association between high levels of crime and insecurity, and poverty (e.g. World Bank 2011; Kaufman and Kraay 1999; Ball et al 2007[8]). DFID’s (2005) Fighting poverty to build a safer world: A strategy for security and development is based on the recognition that development and security are linked: violent conflict destroys life and development; slow or uneven development fuels fragility and conflict. The Geneva Declaration estimates the cost of lost productivity from non-conflict or criminal violence at between $95 -163 billion per year. Crime affects the poor disproportionately. Given that the ability to work and earn income is often the most valuable asset of the poor, violent crime not only restricts movement in high crime areas but can also result in a loss of opportunities as businesses choose to relocate (e.g. Louw & Shaw 1997)[9]. DFID’s (2009) Building the State and Securing the Peace policy paper identifies security and justice issues as ‘state survival functions’, a reflection of their essential importance to the fundamental purpose of an effective state.