2.1Achievements
Soon after the start of LUPP2 in 2003, DFID selected consultants7 to undertake a Baseline Institutional Assessment (BIA) of the LUPP environment, to produce an Influencing Strategy and a common monitoring and evaluation plan for the programme. Although the consultants produced the BIA, they produced proposals for the development of the LUPP Influencing Strategy and common monitoring and evaluation framework. Drafted by the LUPP team in February 2004, the Influencing Strategy formed the basis of the log-frame revision in November 2004.
Since then, the programme has had clear institutional targets and messages, albeit only formally articulated in the second year of LUPP2. The Coordination Unit has led the process of influencing based on the ongoing strategic direction of the INGO partners’ Country Directors Management Group (CDMG) with the input of the Programme Managers and Policy & Communications Officers from the project components.
A Communications Strategy and budget to support the Influencing Strategy was added to the programme and approved in May 2005.
Influence has been based on evidence of practice. LUPP has developed a critical mass of evidence created by 6 or more years’ practical experience and partnership building and by ‘spread’ and cross-learning of field-based experience amongst the 4 projects and 3 agencies (DW/OWA, CARE and SCUK). LUPP is in fact the only major programme in Angola with an exclusively urban focus.
LUPP has been able to give unified messages including using a strong ‘marketing’ approach based on a ‘branding’ of LUPP comprising use of common visual images and building relationships with media with systematic use of national days, project events, visits and project success stories. Key events have included visits from national and international media, the UK All-Party Parliamentary Group on International Development, and an international conference in London – the British Angola Forum. Other key influencing activities include exchange visits for politicians and government officials, including a visit for Municipal Administrators to observe the well-documented participatory urban management approaches in Brazil. Government representatives interviewed mentioned visits to musseque areas organised by LUPP and seminars or papers featuring LUPP practice in the field.
LUPP’s Policy and Monitoring Unit (PMU) has since 2003 helped to reinforce LUPP influencing with research8, media-scanning and monitoring through its Documentation Centre (CEDOC), and a GIS providing a tool for spatial analysis of urban poverty and programming. MINUA has expressed the wish to extend the GIS to develop with LUPP support a National Urban Observatory to monitor and map MDG indicators9.
The effect has been to raise the profile of Angolan urban poverty and to reinforce the messages from the 4 partner organisations and projects. A key outcome has been to strengthen the credibility and authority of LUPP to speak on urban poverty and pro-poor urban governance. This has opened doors and enabled LUPP partners to be represented at key consultations on policy and programme development (e.g. the Informal Decentralisation Working Group coordinated by UNDP). LUPP is now regularly contacted by journalists for news and progress. LUPP itself has organised key events such as consultation workshop on the PRSP and a National Urban Forum in preparation for the World Urban Forum. These events have been well-attended with participation from senior Ministers and officials as well as from all sectors of civil society.
Leverage has been possible because of the perception of LUPP as a national (Angolan) rather than international programme. This has facilitated engagement with GoA, enabling a lack of defensiveness on its part and a more ready acceptance of new ideas. This is particularly important in the post-conflict context when the government is having to shift gear, change the culture of government to adapt to a peace-time administration, to focus on service delivery, and, in particular, engage with and adopt new ideas and skills.
Evidence of the outcomes of LUPP’s influencing is shown by:
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Urban poverty expertise/experience: work with MinPlan and MINUA on:
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National Urban Forum (NUF) – LUPP was invited to work with MINUA on Angola’s submission to the World Urban Forum (WUF) in Barcelona in 2004 and also this year for the Vancouver WUF. In particular, MINUA is seeking ways to address WUF findings locally, and specifically to meet MDG target 1110. MINUA has recognised its own limited capacity, sought help from LUPP and, unusually for GoA, adopted a participatory approach to the discussion of urban poverty. It is seeking continued assistance “to institutionalise a National Urban Forum to provided a consultation space which will include civil society and the community to develop strategies to address urban development”.11 It has committed to cover the costs of the NUF from January 2007.
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MINUA strategic plan – MINUA also invited LUPP to assist with its internal strategic planning. Whilst LUPP has assisted to complete a strategic plan, the first amongst GoA ministries, MINUA has requested additional longer-term (6 months) technical assistance to develop and consult on its programme for 2007-10. It also requires assistance to develop technical capacity, particularly in relation to urban development, land use planning and management, and to mainstream and monitor urban poverty and programmes, specifically the PRSP.12
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PRSP – in the context of a Ministry of Planning (limited) consultation on the draft PRSP in 2004, LUPP organised a workshop attended by 170 people and submitted the outcome to MINPLAN. The draft PRSP did not make specific reference to urban poverty and reflects prevailing GoA thinking that most of the urban poor will return to the rural areas from which they were displaced during the war. LUPP’s submission has resulted in the MINPLAN agreeing to an external consultancy to prepare an Urban Profile to be annexed to the PRSP. The profile is heavily based on LUPP’s submission. LUPP is supporting the MINUA in its bid to ensure an urban perspective within the PRSP. At the time of writing, the Minister of Planning was chairing a discussion on the Urban Profile and its inclusion in the PRSP.
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National Urban Information System – LUPP has been working with the Provincial Government (GPL) and MINUA to develop data and GIS for planning and monitoring urban development and poverty, including PRSP monitoring. The basis of a GIS has been developed including for use at municipal level.
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Local government and decentralisation: work with MAT, MINUA, IFAL, other donors (described in more detail in Section 3 below):
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The development by LUPP project partners of mechanisms for inclusive, participatory local governance has reinforced processes of decentralisation in Angola. LUPP has been able to demonstrate successful models of community engagement in local government through the Kilamba Kiaxi Development Forum (KKDF), and the Hoji-Ya-Henda and Ngola Kiluange Communal Consultative Councils. The success of the KKDF is well-known and widely-acclaimed amongst key national, provincial and municipal stakeholders13. The success of the initiatives has encouraged the Ministry of Territorial Administration (MAT) to pursue a programme of pilot decentralisation in 41 Municipalities throughout Angola. With support from UNDP since 2004, MAT is pursuing the development of a policy, legal and regulatory framework for decentralisation. It is seeking to learn lessons from the experience of LUPP, FAS (World Bank-funded Social Assistance Fund in MINPLAN) and a new USAID Municipal Development Programme (MDP) (based on the LUPP model and recently contracted to the LUPP NGO partners). The Vice-Minister of MAT referred to the positive experience at Kilamba Kiaxi.
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Community-based models for service delivery planning and management (described in more detail in section 4 below):
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LUPP has, through practical experience in its SCSP (DW) and LURE (CARE) projects, developed models for community management of water supply in the musseques. Based on the community-based planning, provision and management of water standposts, they have demonstrated successful and sustainable models. The principle of community-managed water standposts has been incorporated within the new Water Law of 2004 and its regulations. LUPP, though DW, was invited to present evidence during framing of the new law. DW has supported development of water committees; CARE has supported area-based development committees which have expressed a priority need for water-supply. Both types of local-level committees have been federated into associations to provide an effective voice for communities to lobby local administrations and the national water parastatal, EPAL.
Demonstration of these models and continued discussion with EPAL and the parent Ministry MINEA has enabled the EU to develop a major community-based water and sanitation programme for a musseque population of 1.3 million in Luanda. A key component of the programme is community management of 350 standposts to be supported by NGOs, based on the LUPP experience14.
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Electricity – as a result of its work on community-managed water supply, LUPP has worked with MINEA and EDEL to provide electricity to the musseques. In Kilamba Kiaxi, it has demonstrated (through the LURE project) a participatory planning approach and community-based micro-finance to enable affordable electricity for urban poor communities. Based on this experience, USAID, in partnership with EDEL, has recently commenced a 3-year $5m project in Kilamba Kiaxi and Viana to scale up the programme. CARE International has been contracted to undertake the community development component of the project.
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Crèches (PICs) – LUPP through LUCPP (SCUK) has developed a model for community-managed crèches as a vehicle for early childhood development which is now being replicated by MINARS in 2 provinces with a programme to replicate in all 18. MINARS has also placed an ECD officer in Cazenga municipality where LUCPP has developed 16 PICs (it has also developed 4 in Kilamba Kiaxi and 1 in Sambizanga municipalities respectively). Municipal administrators are reported to be supporting development of PICs following their engagement in PIC inaugurations. French Cooperation has funded partners to replicate the model in 3 other municipalities in Luanda.
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Urban Livelihoods (see more detail in Section 4 below)
Further evidence of the extent of LUPP’s influencing, and the success of its participatory governance activities, comes from the influencing activities of the community itself though its own developing networks which are providing platforms for accessing rights and services (see Section 3 below).
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