UNITED NATIONS OFFICE ON DRUGS AND CRIME ~ INDEPENDENT EVALUATION SECTION

FINAL
INDEPENDENT PROJECT EVALUATION

NATIONAL INTEGRATED
PROGRAMME FOR ETHIOPIA SUB-
PROGRAMME II: CRIMINAL JUSTICE
AND INTEGRITY (2013-2019)

PROJECT ETHX97

DECEMBER 2022
This independent evaluation report was prepared by an evaluation team consisting of Miguel Angel
Lombardo (PhD.), Team Leader and evaluation expert, Patrick Burgess, international expert, and Kumlachew
Dagne, national expert. The Independent Evaluation Section (IES) of the United Nations Office on Drugs and
Crime (UNODC) provides normative tools, guidelines, and templates to be used in the evaluation process.

The Independent Evaluation Section of the United Nations Office on Drugs and Crime can be contacted at:
United Nations Office on Drugs and Crime
Vienna International Centre
P.O. Box 500
1400 Vienna, Austria
Telephone: (+43-1) 26060-0
Email: [email protected]
Website: www.unodc.org/evaluation

Disclaimer
Independent Project Evaluations are scheduled and managed by the project managers and conducted by
external independent evaluators. The role of the Independent Evaluation Section (IES) in relation to
independent project evaluations is one of supervision, quality assurance, control, and support throughout
the evaluation process, but IES does not directly participate in or undertake independent project evaluations.
It is, however, the responsibility of IES to respond to the commitment of the United Nations Evaluation Group
(UNEG) in professionalizing the evaluation function and promoting a culture of evaluation within UNODC for
the purposes of accountability and continuous learning and improvement.
The views expressed in this independent evaluation report are those of the evaluation team. They do not
represent those of UNODC or of any of the institutions or Member States referred to in the report. All errors
and omissions remain the responsibility of the evaluation team.
All findings and recommendations as well as the management response pertain solely to the UNODC
project/programme being evaluated and is not in any way targeted to Member States, implementing
partners or other entities that took part in this project/programme.

© United Nations, December 2022. All rights reserved worldwide.

The designations employed and the presentation of material in this publication do not imply the
expression of any opinion whatsoever on the part of the Secretariat of the United Nations concerning the
legal status of any country, territory, city, or area, or of its authorities, or concerning the delimitation of its
frontiers or boundaries.
This publication has not been formally edited.

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 CONTENTS
CONTENTS iii
ABBREVIATIONS AND ACRONYMS iv
MANAGEMENT RESPONSE v
EXECUTIVE SUMMARY vii
I. INTRODUCTION 1
BACKGROUND AND CONTEXT 1
EVALUATION METHODOLOGY 2
LIMITATIONS TO THE EVALUATION 3
II. EVALUATION FINDINGS 5
RELEVANCE 5
EFFICIENCY 6
COHERENCE 8
EFFECTIVENESS 9
SUSTAINABILITY 11
HUMAN RIGHTS, GENDER EQUALITY, DISABILITY INCLUSION AND LEAVING NO ONE BEHIND 13
III. CONCLUSIONS 15
IV. RECOMMENDATIONS 16
V. LESSONS LEARNED AND GOOD PRACTICES 18
ANNEX I: TERMS OF REFERENCE 19
ANNEX II: EVALUATION TOOLS: QUESTIONNAIRES AND INTERVIEW GUIDES 30
ANNEX III: DESK REVIEW LIST 32
ANNEX IV: STAKEHOLDERS CONTACTED DURING THE EVALUATION 33

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 ABBREVIATIONS AND ACRONYMS
Abbreviation Full name/word Abbreviatio Full name/word
or Acronym n or
Acronym
ABIS Automated Biometric FPC Federal Prisons Commission
Identification System MINISTRY
OF JUSTICE
AACRRC Addis Ababa Children’s FSC Federal Supreme Court
Rehabilitation and Remand
Centre
AAG Amhara Attorney General JLAAC Justice and Legal Affairs Advisory
Council
AJPTLRI Amhara Justice Professionals MoJ Ministry of Justice
Training and Legal Research
Institute
ANRS Amhara National Regional State PDO Public Defenders Office
APC Amhara (National Regional State) SP II Sub Programme II
Prison Commission
CoJ Centre of Justice TA Technical Assistance
CCL Children in Conflict with the Law TNA Training Needs Assessment
CSO Civil Society Organization UNODC United Nations Office on Drugs and
Crime
FDRE Federal Democratic Republic of VAWC Violence Against Women and
Ethiopia Children

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 MANAGEMENT RESPONSE

Recommendations1 Management
Response
Accepted
1. UNODC’s national office capacities: It is recommended that the Programme
team in Ethiopia strengthens its management capacities for the development of
an M&E Plan, baselines, targets and indicators in a multi-year and result oriented
cooperation framework. In collaboration with donors and with the Regional
Section for Africa and Middle East (RSAME), the Programme team in Ethiopia
should seek opportunities for increasing human resources to address the need of
the stakeholders and to bring added value to UNODC cooperation, actively
participating in the committees, following up on different areas of criminal justice,
such as investigation, prosecution, judges, legal aid, prisons both at federal and
regional levels.

2. Partnerships: It is recommended that the Programme team in Ethiopia provides Accepted

institutional support funding in the next programmatic phase to trusted civil
society partners operating in regions outside the capital, thereby significantly
increasing potential impact and inclusion of vulnerable right holders in the
regions. Partnerships with line Ministries in areas of education or social policies
should also be encouraged in future programming with a focus on developing sub-
national policy, legislation and education programs, including education for
justice and criminal justice, including the particular challenges faced by women,
children and vulnerable groups including Persons with Disabilities.
3. Development of training manuals and training of trainers courses for police Accepted
and prison officers: It is recommended that the Programme team in Ethiopia
should seek follow-up funding for development of training manuals and training
of trainers for police and prison officers in early 2023. This follow up funding will
ensure that the good work done on creating training curricula for stakeholders is
not wasted and can lead to a significant impact through multiyear programs of
delivery of training across the country.
4. Legal aid for women, children and vulnerable groups: It is recommended that Accepted
the Programme team in Ethiopia, in coordination with UNODC’s Regional Section
for Africa and Middle East (RSAME) and the Crime Prevention and Criminal Justice
Section (CPCJS) in Vienna seeks opportunities for the deployment of expert
technical assistance to provide knowledge and lessons learned to stakeholders in
Ethiopia who are working on developing legal aid support for the poor and
vulnerable. The long-term goal of a sustainable national legal aid model should be
explored but in the short term more easily achievable goals such as establishing a
network on community-based paralegals should be considered. The Programme
team in Ethiopia should be provided with sufficient support to host this sub
program of planning national legal aid interventions, at both national and regional
levels. This support should include follow up of innovative current plans to draw

1
This is just a short synopsis of the recommendation, please refer to the respective chapter in the main body of the report for the
full recommendation.
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on resources such as local retired educated civil servants in areas where there are
few lawyers.
Support should be provided for the development of a national legal aid model,
particularly focusing on assisting vulnerable women and children who face
additional problems in the criminal justice system.
5. Pilot criminal justice programmes in the regions: It is recommended that the Accepted
programme team in coordination with the Regional Section for Africa and Middle
East (RSAME) in collaboration with the Crime Prevention and Criminal Justice
Section (CPCJS), seeks partnership opportunities with other UN Agencies, local
authorities and specialized CSOs for developing pilot programmes in the regions,
to be developed with local authorities and specialized CSOs, to strengthen the
capacities at the national levels -prosecution, judiciary and the police- and to
address relevant issues on criminal justice for women and children, as well as to
improve human rights approaches in prison management.
6. South to south cooperation: The programme team in Ethiopia should provide Accepted
opportunities for key personnel in the criminal justice systems to be exposed to
experience and lessons from other regional and international jurisdictions.
However, these activities should be carefully considered to ensure that the
comparative models are relevant to the stage of development and challenges in
Ethiopia and that the persons involved in the activities are those who will be able
to contribute in a meaningful way to reform. Those opportunities should include
a mix of national and sub-national personnel with an appropriate gender balance.
7. Integrating national experts from CSO and academia: The programme team in Accepted
Ethiopia should support key areas of the criminal justice system that includes both
international experts and national experts drawn from civil society and academia.
Technical experts will contribute to the drafting of policies and laws, develop
manuals and other tools and contribute to capacity building.

MANAGEMENT RESPONSE vi
 EXECUTIVE SUMMARY

INTRODUCTION

PROJECT DESCRIPTION AND OBJECTIVES

The National Integrated Programme for Ethiopia (NPE), Sub- Programme II (SP II): Criminal Justice and
Integrity, is intended to strengthen the criminal justice system in order to operate more effectively within
the framework of the rule of law, while promoting human rights and protecting vulnerable groups. The SP II
is running from 2103 and has contributed to build capacities and policy harmonization in the criminal justice
system, in particular with the Federal Office of the Attorney General (now the Ministry of Justice), the
Federal Police Commission (FPC), the Federal Prison Association (FPA) and the Federal Supreme Courts (FSC).
In 2018, the FDRE launched a series of reforms to broaden democratic participation, strengthen justice and
rule of law with new accountable systems. Reforms in the justice sector included legislative review, as well
as structural and leadership changes in key justice institutions at the Federal level. In the context of UNODC’s
mandate and within the framework of the Regional Programme for Eastern Africa (2016 – 2021) various
projects have been implemented in Ethiopia in addition to SP II in the areas of countering transnational
organized crime, migration and trafficking in persons, among others.

PURPOSE, SCOPE AND METHODOLOGY OF EVALUATION

The purpose of this evaluation is to explore and review the relevance of the SP II in the long-term
development of Ethiopia, its coherence, efficiency and effectiveness as well as its sustainability in the
medium and long term, the main users being the SP II and regional managers, donors and the above-
mentioned governmental stakeholders. The methodology was based on qualitative research with the goal
to understand the perceptions and the assessment of the stakeholders involved. Primary data sources
included up to 21 in-depth interviews (15 male and 6 female) developed both remotely and in person. It also
involved observation techniques through a field visit to the Amhara region that was undertaken by the
National Expert between the 25th to the 27th October. The evaluation has developed a gender-sensitive,
inclusive, respectful and participatory approach and methodology to capture disability and gender equality
issues.

MAIN FINDINGS PER EVALUATION CRITERIA

UNODC’s support to Criminal Justice has been highly relevant as long as it represents an opportunity to bring
support in areas where the interest of other agencies and programmes is limited. The sub programme,
although ambitious since it touches a variety of aspects and institutions, was endorsed by the government
in 2013, and the institutions maintain this interest in a context of leadership changes and crises such as the
seven declared states of emergencies. UNODC’s support to the Child Justice Project of the Federal Supreme
Court was highly relevant in a context where many programs of support for vulnerable women and children
that had been running for up to 15 years had been discontinued. For example, the number of “child friendly
benches” in courts, which include video and audio equipment to avoid physical contact between victims and
perpetrators had fallen from over 100 to only one but with UNODC’s assistance this has increased to eight.
In relation to developing capacities, prison training has been traditionally focused on security issues but
UNODC has made it possible to include human rights and international conventions standards.
The efficiency of the SP II was significantly hindered by the political situation in the country. This restricted
the ability to extend the reach of programs from the capital into the regions and to advocate for reforms in

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many areas. However, the SP II is efficient since the amount of work that requires is vast: the provision of
expertise for the revision of laws, TA contractual procedures, the organization of several events in
coordination with regions, the follow up with the key stakeholders, participation in meetings and
committees, and the coordination with other UN and international donors for 7 expected outcomes which
include prison management, prosecution, investigation, access to justice to vulnerable groups, and the
protection of children in conflict with the law, among others. At least six important pieces of legislation in
the criminal justice sector were developed with the help of UNODC in recent years. Some of these draft
legislations, including those on federal prisons and human trafficking were subsequently adopted by the
Federal Parliament, while the enactment of others, such as the Criminal Procedure and Evidence Code is still
pending. The evaluation noted that, although it was passed into law, the applicability of the Federal Prisons
Proclamation is limited to the 6 federal prisons. The prison reform should therefore be embedded in the
regional states, where more than 90% of the country’s prisons are found.
The evaluation finds that SP II is coherent in its coordination with the government across the line of the
Criminal Justice institutions. The fact of having this sub-programme working for 9 years is also an indicator
of a reliable partnership with the stakeholders stated. In relation with other partners, however, the sub
programme is not performing in an ideal manner but the evaluation couldn’t explore if the reason why this
is happening is due to others ability or willingness to coordinate with UNODC. Joint activities with UN
WOMEN, UNOHCHR, UNHCR, UNDP and UNICEF are now improving in terms of coherence.

The training for prosecution, police, and prison officers has been effective since the UNODC has been able
to bring in international standards even in difficult times. For instance, over the period December 2020-
March 2021, the sub programme partnered with key training institutes to deliver three weeks of training to
a total of 78 staff (58 Men / 20 Women) including prison officers, police officers and prosecution. The same
year, the sub programme facilitated the annual consultation forum of Federal and Regional Prison
Commissions that was attended by 120 officials representing all regional commissions. The main
shortcomings which have been identified are related to the lack of follow up to the Training of Trainers (ToT),
especially important in a sub programme that is strategically grounded in capacity building approaches. The
other problem, and connected to the latter, is the fact that the capacity building does not trickle down to
the regional level. With regards to the National Crime Prevention Strategy and Action Plan, UNODC’s support
have been effective and will allow the criminal justice actors to devise preventive measures to address the
conditions in which crime occurs. ICT support was well appreciated but limited in relation to the significant
needs in regional areas.

The contribution to the development of policy was important and this reinforce the sustainability the
achieved outcomes. The completion of the new curriculum for the prison officer training was well done and
will have an ongoing impact. The first ICT centre was established at the prison training centre, at a Police
University, Federal Justice Professionals Training Center, and at Amhara regional level prison.2 Beneficiaries
have been introduced to the UNODC Global e-learning modules and they have already received their
corresponding certifications in different topics including Alternatives to Imprisonment for Women Offenders
and the Nelson Mandela Rules. In relation to the Judicial Code of Conduct, UNODC has briefed the new
administration of the Federal Supreme Court, and in line with the on-going reforms the new advisory council
conducted a revision that includes other drafts. The prosecutors, police and other stakeholders were brought
together by UNODC to learn about models of legal aid and how they can assist the vulnerable in the criminal
justice system.

In general terms, there are signs that the government will enable more sustainable capacity building and
information management in the future such as the Annual conferences held between the Federal Prison

2
Among others, functional ICT centres have been developed at the Aleltu Prison Police College, the Justice and Law
Institute, the Police University, the Amhara Region Justice Organs Professionals Training Centre and Amhara Region
Police Training College.
EXECUTIVE SUMMARY viii
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Commission and all regional prisons (with UNODC’s support), the Federal and Regional Prosecutors Council,
the new policies, and the recent changes in the political context.

The FDRE has implemented several policy and institutional measures with the objective of eliminating
discrimination against women. It has also established child and women protection units in police stations
responsible for handling cases of Violence Against Women, investigation and prosecution team and child friendly
and victim friendly benches within federal as well as regional courts. In this regard, the SP II has developed a
specific outcome to expand programmes for improving access to justice for vulnerable and at-risk groups.
The gender aspect was also included in the various training and capacity building initiatives.
The institutions still need more specific training on how to protect the rights of women, children and
vulnerable groups, including minorities, refugees, persons living with disability. The program could not
take the next steps to try to strengthen community programs that would provide an alternative to prison for
those who are from 9 to 14 years of age and to advocate for the extension of the age of criminal responsibility
from nine to 14, or at least 12 as a transitory measure. The limited approach of working at the federal level,
and the limited partnerships with CSOs (except for the context of VAWG, ICT and others), governments and
the courts in the regions, is hindering the possibility of being more effective in terms of human rights and
leaving no one behind.

MAIN CONCLUSIONS
Over the years, the sub programme has been distinguished by its alignment to UNODC regional lines,
international policies and governmental alignment, and with a particular focus at the federal level. The sub
programme has been very efficient in supporting the government with Technical Assistance in a
comprehensive set of legislation to comply with international standards in a diversity of areas from the
Judicial Training Curriculum to the National Crime Prevention Strategy, the prosecution led crime
investigation law, Criminal Procedure Code, and the Prison Legislation Development. However, the SP II lacks
strategic long-term approach, as well as regular follow up in the implementation of training, especially for
Training of Trainers activities which are fundamental to reach out and impact all over the Criminal Justice
institutional chain and the regions. The approach of the sub programme for using the institutional training
mechanisms can be more effective and eventually impact at the regional level in a political context that is
beginning to open up.
UNODC has a niche-provision of technical support in terms of training and knowledge management,
including sharing best practices and facilitating effective networking/collaboration between CSOs and other
stakeholders at the national, federal and regional levels, but these mechanisms need to be developed in a
more coherent and coordinated way, including the coordination with other international partners and UN
agencies

MAIN RECOMMENDATIONS3
Among the main recommendations of the evaluation, these include the need of reinforcing the capacity of
the national office in Ethiopia with human resources and project management tools that include an M&E
Plan, baselines, targets and indicators in a multi-year and result oriented cooperation framework. It is also
recommended that UNODC provide institutional support funding in the next programmatic phase to trusted
civil society partners operating in regions outside the capital, thereby significantly increasing potential
impact and inclusion of vulnerable right holders in the regions. In addition to this, the UNODC program in
Ethiopia should be provided with follow-up funding for development of training manuals and training of
trainers for police and prison officers in early 2023. This follow up funding will ensure that the good work
done on creating training curricula for stakeholders is not wasted and can lead to a significant impact through
multiyear programs of delivery of training across the country.

3
Please note that the Executive Summary only includes the most important recommendations as identified by the evaluation
team. All recommendations can be found in the main body of the report.
EXECUTIVE SUMMARY ix
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MAIN LESSONS LEARNED AND GOOD PRACTICES

Training on international standards and best practices such as the Nelson Mandela Rules for prisons were
greatly appreciated by stakeholders and are far more effective if combined with real lessons learned from
similar contexts in the region or other countries with similar levels of development. Also, creating “child
friendly benches” in courts, including video and sound equipment can protect children and women victims
from direct contact with alleged perpetrators during court proceedings. The cameras and sound equipment
have a direct significant effect not only on the well-being of the victims but on the integrity of the criminal
cases, reducing the potential for evidence to be influenced by intimidation and fear.

EXECUTIVE SUMMARY x
 I. INTRODUCTION
BACKGROUND AND CONTEXT

OVERALL CONCEPT AND DESIGN

The National Integrated Programme for Ethiopia (NPE), Sub- Programme II: Criminal Justice and Integrity, is
part of the framework of the UNODC Regional Programme for Eastern Africa (ROEA) “Promoting the Rule of
Law and Human Security 2009-2012/13;” the UNODC Regional Programme for Eastern Africa “Promoting
the Rule of Law and Human Security in Eastern Africa 2016-2021”; and UNODC’s Strategic Frameworks
(2014-2015; 2016-2017 and 2018-2019). The Federal Democratic Republic of Ethiopia (FDRE) has signed the
UNODC Regional Programme and over the years UNODC’s support has increased in the country. Under the
Sub Programme II (SPII) expertise have been provided to the FDRE in developing criminal justice
interventions across the main institutions which are essential in the system: the Ministry of Justice), the
Federal Police Commission (FPC), the Federal Prison Administration (FPA) and the Federal Supreme Court
(FSC). UNODC has supported these institutions by conducting institutional assessments and providing
technical assistance for capacity building, with an integrated human right basis approach and the protection
of vulnerable groups. The geographical scope of the sub-programme is the national territory of Ethiopia.

The activities of the SP II have been designed around seven major expected outcomes: 1) the sustainability
of a broad-based National Crime Prevention Strategy and Action Plan 2) the adoption of professional
standards, systems and legislative and administrative measures 3) the adoption of standards and strategies
for greater efficiency, effectiveness and accountability of the prosecution 4) the implementation of
programmes to strengthen human and secure imprisonment and alternative programmes 5) support to
victims and witnesses 6) the adoption of programmes to improve the protection of children in conflict with
the law and 7) the access to justice for indigents, in particular vulnerable and at risk-groups.

CONTEXT
The project has been running in a context of weak criminal justice institutions until 2018, restricted CSO
environment and difficulties for providing international support on justice and rule of law. The context has
begun to change in 2018, where the FDRE launched a series of reforms to broaden democratic participation,
strengthen justice and rule of law with new accountable systems. Reforms in the justice sector included
legislative review, as well as structural and leadership changes in key justice institutions at the Federal level.
In the context of UNODC’s mandate and within the framework of the Regional Programme for Eastern Africa
(2016 – 2021) various projects have been implemented in Ethiopia in addition to SP II in the areas of
countering transnational organized crime, migration and trafficking in persons

The country is addressing critical challenges related to the devastating armed conflict in Northern Ethiopia.
Following mediation efforts under the auspices of the African Union, the warring parties (GoE and TPLF) have
signed a Cessation of Hostilities Agreement (CoH) in Pretoria and UNODC has new opportunities to address
these changes building on its mandate to provide the service in all the areas related to Criminal Justice. The
Cessation of Hostilities Agreement (COH) signed in Pretoria between the warring parties (GoE and TPLF)
addresses issues related to transitional justice and accountability. GoE has drafted a green document on
transitional justice options with the support of OHCHR and plans to hold stakeholder consultations in
December 2022.

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PURPOSE AND SCOPE

The purpose of this evaluation is to explore and review the relevance of the SP II in the long-term
development of Ethiopia, its coherence, efficiency and effectiveness as well as its sustainability in the
medium and long term, the main users being the SP II and regional managers, donors and the above-
mentioned governmental stakeholders. It has been carried out from September to December 2022, and it
has also explored partnerships with UNDP, UNICEF, OHCHR and the ICRC. The evaluation reviewed strategies
to incorporate Gender in the policy framework of Criminal Justice and Integrity in the country, and it has also
reviewed the activities developed by the Sub Programme to include Persons Living with Disabilities (PLWDs).
The evaluation has taken into consideration the effects of the Covid-19 Pandemic when analysing the results,
adaptation and target review of the sub-programme.

THE COMPOSITION OF THE EVALUATION TEAM

Miguel A. Lombardo is an international expert in programme evaluation. He has participated in the 2020
UNEG report on the implementation of the United Nations General Assembly Resolution 69/237 for National
Evaluation Capacities, and he has been regional advisor for UNDP Africa. He holds a PhD in Political Science
from the University Complutense of Madrid, Spain.
Patrick Burgess is an international expert on rule of law, legal aid, human rights and transitional justice. He
was previously Director of Human Rights for UNDPKO Peacekeeping missions, Commissioner for the Timor
Leste Judicial Commission and was one of the expert drafters of the UN Model Criminal Code and the UN
Model Law on Legal Aid in Criminal Justice Systems.
Kumlachew Dagne is a business and human rights lawyer with 23 years of experience in the Ethiopian
academia and legal practice where he taught electoral law, federalism and human rights. He is currently the
Board Chair of InterAfrica Group-Ethiopia. Kumlachew was also chair of the Ethiopian Human Rights Council
(EHRCO), the only human rights monitoring CSO in Ethiopia, from 2015-2017.

EVALUATION METHODOLOGY
The methodology was based on qualitative research with the goal to understand the perceptions and the
assessment of the stakeholders involved. Primary data sources included up to 21 in-depth interviews (15
male and 6 female) developed both remotely and in person. The evaluation team has selected a convenience
sampling strategy since political and social changes could undermine the feasibility of implementing another
strategy, such as a random sample. In this regard, the sample includes members from the civil society,
government, penitentiary institutions, judiciary branches, and other beneficiaries of the Sub Programme, as
well as the Project Management Unit and other regional programmes. Focus groups were not recommended
due to the sensitivity of the context. Secondary data sources had included SP II annual reporting.

In-depth interviews have been structured with a set of questions defined in advance in accordance with the
evaluation matrix. The use of open-ended questions allowed the informant to share in-depth knowledge of
the subject and to open the room for exploratory or additional inquiry. Data collected via interviews had
been used for qualitative analysis and to derive conclusions after understanding all actions and different
stakeholders’ opinions. The triangulation was undertaken with documentary review and also contrasted
with different informants. The analysis has been undertaken assigning values to the main indicators for each
of the questions approved by the evaluation team and the SP II programme management unit. The three
consultants reviewed the annual reports and carried out interviews with different informants, sometimes
coincident as for areas of action: prison management, prosecution, police, etc. This allowed the team to
triangulate through regular meetings the information collected from different sources in the same type of
activities. The expertise of the team with one national consultant very knowledgeable on criminal justice,
and one international expert in human rights and transitional justice, was crucial to quickly identity the key
points for the analysis and the indicators’ performance.
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The evaluation also involved observation techniques through a field visit to the Amhara region that was
undertaken by the National Expert between the 25th to the 27th October to observe the delivery of
equipment (computers) and to undertake interviews with the following institutions: regional Prison
Commission, the education and training prison department, the Police Commission, Attorney General,
Amhara Judges and Prosecution training institute, the regional branch of the Addis Hiwot Rehabilitation and
Reintegration Association, Ethiopian Human Rights Commission in Amhara, and the Bahir Dar University Law
School.

The evaluation has developed a gender-sensitive, inclusive, respectful and participatory approach and
methodology to capture disability and gender equality issues. Special attention had been paid to ensuring
the voices and opinions of both men, women and other marginalised groups. All the activities have been
informed by the UNSDG Good Practice Note on Conflict Sensitivity, Peacebuilding and Sustainable Peace, in
particular including gender and conflict sensitivity, sensitivity to the peace and conflict context, and a focus
on how UN activities interact with peace and conflict in Ethiopia.

LIMITATIONS TO THE EVALUATION

Limitations to the evaluation Mitigation measures

Convenience sampling has been chosen for this

context due to political and security sensitivities. The
Convenience sampling selection of stakeholders and the manner in which
the interviews are conducted were informed by
those priorities identified by the Evaluation Team and
the availability of the stakeholders.

Timeframe (2 - 3 months) for data collection, analysis The evaluation was selective in the number of
and reporting criteria, questions, sub questions and indicators.
Impact was disregarded as a criterion of analysis.
Financial aspects as procurement process and others
were not taken into consideration in the analysis of
efficiency. In terms of design, the Theory of Change
of the Programme was not reviewed with an in-depth
analysis. Statistics of annual training/participants
couldn’t be developed specifically for the evaluation
and by the evaluation team itself. A sample of the
trainings developed in 2020-2021 was selected.

The field visits cannot be conducted across all regions Documentary review and expert analysis had been
and will be limited to the Amhara region strengthened. Due to political and security
sensitivities. The selection of stakeholders and the
manner in which the interviews were conducted in
the region were informed by those priorities
identified by the experts and the management team.

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Not all of the foreseen informants responded to the The list of informants was extended in the Amhara
interview request region (field visit). Other informants were prioritized
by its primary role in the Sub Programme
implementation

INTRODUCTION 4
 II. EVALUATION FINDINGS
RELEVANCE
EVALUATION QUESTIONS:
To what extent has the sub programme been relevant to stakeholder’s needs and priorities?
- Is the sub programme aligned with the priorities and needs of the institutions and beneficiaries?
Are the institutions aligned with international conventions and standards?
- What are the major changes observed in the context in terms of new priorities and opportunities?
- Has the sub programme been designed with gender perspective, human rights, the inclusion of
vulnerable groups, and Persons with Disabilities?

UNODC’s support to Criminal Justice has been highly relevant as long as it represents an opportunity to bring
support in areas where the interest of other agencies and programmes is limited. The sub programme,
although ambitious since it touches a variety of aspects and institutions, was endorsed by the government
in 2013, and the institutions maintain this interest in a context of leadership changes and crises such as the
seven declared states of emergencies. The programme was designed in consultation across all sectors and
offices, namely the Federal Police Commission, the Federal Office of the Attorney General, The Federal
Supreme Court and the Federal Prisons Commission, and the approach has proven to be consistent since it
addresses the specialized staff at the institutional levels, so that the benefits remain in time. The consultation
extended to the Ministry of Women and Social Affairs, The Federal Justice Professionals Training and
Research Centre, the Police University- the ethics and anti-corruption commission and other UN agencies
among others.

UNODC’s support to the Child Justice Project Office was highly relevant in a context where many programs
of support for vulnerable women and children that had been running for up to 15 years had been
discontinued. For example, the number of “child friendly benches” in courts, which include video and audio
equipment to avoid physical contact between victims and perpetrators had fallen from over 100 to only one
but with UNODC’s assistance this has increased to eight. The age of criminal responsibility is only nine years
old and the support to the Office was also highly relevant to create a larger base of understanding through
training to police and prosecutors so that children can be dealt with in a more appropriate way in the criminal
justice system.

UNODC support for the training of the prison officers and the new curriculum for the police training centre
was relevant and much needed. The development of curricula is a key building block in developing capacity
as prison training has been mainly focused on security issues, but UNODC has made it possible to include
human rights and international conventions standards. There are significant changes in terms of the laws
since 2018 onwards, as there was a significant gap in relation to appropriate laws relating to prisons. At
government request, a comprehensive set of legislation was reviewed by the sub programme to comply with
international standards:

- Trafficking and Smuggling of Migrants - National Legal Aid strategy

Law, - National Child Justice Strategy
- Asset Recovery Law - Performance Measurement for
- Anti-terrorism Law Prosecution
- Firearms Law - Prosecution Led Crime Investigation Law
- Criminal Procedure Code - Police Internal Accountability;
- Judicial Training Curriculum - Oversight and Integrity
- National Crime Prevention Strategy - Use of Force in Law

5
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- Subsidiary Prison Legislation

Development.

The significant UNODC support to the Federal Prison Commission legislation was much needed and produced
a positive result. In addition, some of the UNODC staff provided help at the technical task force on policy
and legislation initiatives at the national level that provided assistance to the drafting process of at least six
important pieces of legislation, including the Federal Prisons Proclamation, the Revised Criminal Procedure
Code.

Before 2017 there were limitations on gender mainstreaming in SP II activities, but for the last 5 years the
sub programme started to understand the challenge and provided capacity building training ensuring the
participation of women, and also to provide training in critical aspects such as Violence Against Women and
Children (VAWC) and Protection of Children in Conflict with the Law (CCL) (see section below: Human Rights
and Gender Equality). The sub programme has also worked to include the rights of persons with disabilities
in the prison training, as this is a significative aspect with potential multiple grounds of discrimination.
However, there is an opportunity to reinforce the partnership with the institutions that are prominent in this
area of work such as the Ministry of Women and Social Affairs4 and the civil society, and the government
has endorsed a National Plan of Action for Persons with Disabilities (2012-2021). There are an estimated 15
million children, adults and elderly persons with disabilities in Ethiopia, representing 17.6 percent of the
population.

- Finding 1: Highly relevant as the institutions maintain its interest in cooperating with UNODC and
criminal justice in a context of leadership changes and crises such as the seven declared states of
emergencies.

- UNODC support for the training of the prison officers and the new curriculum for the police was
relevant and much needed, and a comprehensive set of legislation in Criminal Justice was reviewed
by the sub programme to comply with international standards.

- UNODC’s support to the Child Justice Project Office was highly relevant: the number of “child friendly
benches” in courts, which include video and audio equipment to avoid physical contact between
victims and perpetrators had fallen from over 100 to only one but with UNODC’s assistance this has
increased to eight

- Other areas need to be mainstreamed in its design, particularly in the domain of gender and persons
with disabilities

EFFICIENCY
EVALUATION QUESTIONS:
To what extent has the sub programme delivered outputs in a timely and efficient manner?
- Has the sub programme been flexible to adapt to the changes in execution?
- Have the mechanisms of institutional cooperation been reinforced to facilitate the sub
programme implementation?
- Has the sub programme followed appropriate monitoring mechanisms for the implementation?
- Are the technical, human and financial resources adequate to the programme implementation?

The efficiency of the SP II was significantly hindered by the context. This restricted the ability to extend the
reach of programs from the capital into the regions and to advocate for reforms in many areas. On the other

4
Merged of the previous Ministry of Labour and Social Affairs (MoLSA) with the Ministry of Women, Children and Youth Affairs
(MoWCY)
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hand, the worsening security situations and resulting travel restrictions posed serious challenges to the
implementation of activities during the second half of the year. The activities that were able to be conducted
appear to have been conducted in a relatively efficient manner, particularly considering the challenges.

The UNODC office is small, therefore much of the work is focused on the federal level. At least six important
pieces of legislation in the criminal justice sector were developed with the help of UNODC in recent years.
Some of these legislations, including those on prisons, terrorism, firearms and human trafficking have been
promulgated as laws, while others, such as the Criminal Procedure and Evidence Code are still at the draft
stage. However, there are factors which affect the full implementation of these laws. Although the Federal
Prisons Proclamation contains progressive standards regarding treatment of prisoners, it applies only to
federal prisons. Furthermore, the FPP could not be effectively implemented at the federal level as the
Federal Prisons regulation is not issued by the Council of Ministers, thereby making it difficult for the FPC to
issue directives consistent with the Proclamation. On the other hand, the new laws on terrorism and human
trafficking are better both in terms of quality of laws and enhanced implementation, although the absence
of a national policy and specialized agency/institution on migration and human trafficking have hindered
effective execution of the legislation on human trafficking.

The level of personnel, technical assistance and funding was not sufficient to support a program that could
extend the reach of important work to achieve results outside region around the capital. For example, at the
federal level there are only five prisons, but across the country there are more than 100 centres, with their
own codes and justice offices but more focused on the national level. The UNODC did not start to partner
with the local civil society organizations until 2018 since the legal framework did not enable the CSO to work
in these areas and they were not able to extend their reach. The sub programme started to elaborate a CSO
mapping to match with UNODC’s mandate, and to build new partnerships with them.

COVID-19 pandemic has hindered the sub programme execution as it happened in general with all the
interventions at the regional and country level, but the sub programme avoided this gap by implementing
different online modules and providing ICT support, including computers for various institutions. Another
component of this support is the UNODC e-learning platform that provides courses online for officers from
various backgrounds of law enforcement. Plans are underway for the engagement of an ICT specialist to
assist UNODC in undertaking assessments and supporting the installation of equipment, and the
establishment of resources centres at national and regional institutions.

The use of the institutional training platforms of the police, judges and prosecutions is also highly efficient
as it avoids parallel programmes and reinforces the internal institutional capacities. However, there is an
important gap in terms of Training of Trainers (ToT), since no follow up has been developed after the training.
The evaluation could not explore the reasons and the context to explain why this was not possible. The
participants did not understand that they were expected to perform as trainers afterwards, and they did not
develop resources to implement them using the skills that they had gained from the ToT. The evaluation
finds that this is caused by the absence of a Monitoring and Evaluation plan for the sub programme which
would reinforce the medium - long term view of the interventions. Activities appear to be implemented with
no attachment to any fixed multi-year plan, even though the sub programme is running for almost a decade,
and in spite of the fact that the annual report of 2019 already includes indicators, base lines and targets for
all the outcomes and activities. The evaluation could not find statistics on the number of people trained or
sex disaggregated data, although they are mentioned in the annual activity reports. The limited human
resources of the office make difficult to implement the appropriate M&E structure (the system and the M&E
officer), but also the governmental will that reinforces short terms agreements rather than a multi-year
planning approach.

The SP II has been managed with the support of the Regional Office in Eastern Africa, in Kenya, with the Head
of Criminal Justice. The national team is integrated by the Program coordinator, a National Programme
Officers, Programme Assistant, UNV and Driver. The SP II has also benefited from one international
consultant and two national consultants for a limited period of time. In terms of human resources, the SP II
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is efficient since the amount of work that requires is vast: the provision of expertise for the revision of laws,
TA contractual procedures, the organization of several events in coordination with regions, the follow up
with the key stakeholders, participation in meetings and committees, and the coordination with other UN
and international donors for 7 expected outcomes which include prison management, prosecution,
investigation, access to justice to vulnerable groups, and the protection of children in conflict with the law,
among others.

- Finding 1: operational focus and level of personnel, funding and resources led to a focus at the
national level and restricted the efficient extension to the regions where they are needed

- Finding 2: the use of the institutional training platforms of the police, judges and prosecutions is also
highly efficient as it avoids parallel programmes and reinforces the internal institutional capacities.

- Finding 3: the absence of a comprehensive Monitoring and Evaluation system and the lack of a multi-
year plan for the sub programme diminishes the medium - long term view of the interventions and
appropriate follow up of ToT activities

- Finding 4: In terms of human resources, the SP II is efficient since the required amount of work is vast
to address 7 different outcomes.

COHERENCE
To what extent has the sub programme established and maintained appropriate partnerships, including
with UN agencies, CSO, academia, etc.?
- To what extent the sub programme complements UNODC Regional Programmes?
- Are there other UN initiatives that complement the sub programme on the related subjects?
- To what extent has the sub programme developed partnerships with CSO

UNODC developed and maintained a close relationship with the Ministry of Justice, prisons and the police
which enabled cross-sectoral capacity building to take place and created a base for future work. UNODC
supported the Federal and regional prison commissioner’s forum, allowing for the sharing of experiences
across the various sectors of the legal mechanisms and the training of prosecutors, police and judges on
issues relating to prisons, the rights of women and children and international human rights standards was
much needed. It is also a sign of coherence that UNODC brought together the prosecutors, police and other
stakeholders to learn about models of legal aid, and how they can assist the vulnerable in the criminal justice
system. The support in this regard has been largely financial and logistical.

More participation and synergies are expected throughout the whole institutional chain when designing the
interventions, such as some participation of prison officers in the curricula or the training, or the
participation of the Programme in Ethiopia in developing their own activities vis a vis the regional
programmatic lines. It is important to ensure the synergies with the regional programmes and to reinforce
coherence for a better impact, but a bottom-up approach was also requested by the informants to bring in
a particular national/local perspective that otherwise would be missing. Due to the legal impediments for
the CSO to operate in some substantive areas, the sub programme support to CSO until 2018 was focused
on rehabilitation of child offenders. The Centre of Justice was invited to participate in many activities, asked
to share their experience from the regions. However, the partnership between UNODC and CSOs has so far
been largely informal. There are no signed MoUs between the Centre of Justice or other CSO and UNODC to
distribute responsibilities and to outline the terms of the partnership.

The evaluation finds that the government has improved the interest in reinforcing the institutional
cooperation with UNODC. The fact of having this sub-programme working for 9 years is also an indicator of
a reliable partnership with the agencies stated above, and its persistence with small funding is also an
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indicator of efficiency. In relation with other partners, however, the sub programme is not performing in an
ideal manner and they have come recently to identify this problem. Joint activities with UN WOMEN,
UNOHCHR, UNHCR, UNDP and UNICEF are now improving in terms of coordination, as UNODC is pushing to
work and co-chairing the Joint Justice Assessment, and this will help to have coordinated views for the
children and women in the domain of criminal justice. UNODC facilitates the conversation between the UN
and the government and technically contributes to the process by drafting and reviewing ToRs, concept
notes, methodologies and findings. The evaluation couldn’t explore if UNODC is part of other joint
forums/structures.

- Finding 1: UNODC developed and maintained a close relationship with the Ministry of Justice, prisons
and the police which enabled cross-sectoral capacity building to take place and created a base for
future work.

- Finding 2: More participation and synergies are expected throughout the whole institutional chain
when designing the interventions

- Finding 3: In relation with other partners - UN and other international agencies- the sub programme
is not performing in an ideal manner and coordination must be reinforced

EFFECTIVENESS
EVALUATION QUESTIONS:
To what extent did the sub programme achieve its intended outcomes and objective? If so, why? If not,
why not?
- Has the sub programme influenced positively in improving the effectiveness of investigation,
prosecution, access to justice, fair trial and execution of penal sanctions, and by securing the
protection of vulnerable groups?

The sub programme has been able to identify entry points to work in policy harmonization and capacity
building over a long period of time. It has developed activities to integrate human rights approaches in the
official training institutions and contributed to the completion of the new curriculum for the prison officer
training, and worked in the assessment of five federal prisons.

In Amhara, in the second half of 2020, the sub programme conducted the Training Needs Assessment (TNA)
based on an initial programming assessment and equipment needs conducted in 2019 at the federal level
and in the Amhara Region. The TNA reviewed the institutional frameworks, capacities, needs and priorities
of the targeted institutions, and also informed the development of ToT and specialized training curriculum,
manual preparation, and training workshops.

The training of prosecution, police, and prison wardens has been effective since the UNODC has been able
to bring in international standards even in difficult times. For instance, over the period December 2020-
March 2021, the sub programme partnered with key training institutes to deliver three weeks of training to
a total of 78 staff (58 Men / 20 Women) including prison wardens, police officers and prosecution. The same
year, the sub programme facilitated the annual consultation forum of Federal and Regional Prison
Commissions that was attended by 120 officials representing all regional commissions, and the Attorney
General’s Forums and the Joint Forum on Legal Reform in Bahirda, very important activities as they have a
positive influence in terms of coordination and replication of the reforms.

In general, having the understanding of the Prison Commission and the Ministry of Justice has led to
producing new documents, training management, and according to the interviews there’s a change in
behaviour at the federal level. The prison in Addis Ababa is much better handled now, with respect to the
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application of the United Nations Standard Minimum Rules for the Treatment of Prisoners (Mandela Rules),
covering the minimum standards for medical, health and hygiene related services, essential against COVID-
19 pandemic. The government is also building a new federal prison facilities and there is a gradual discussion
on the improvement of conditions for Persons Deprived of Liberty.

The main shortcomings which have been identified are related to the lack of follow up to the ToT, especially
important in a sub programme that is strategically grounded in capacity building approaches, although more
context might be relevant at this point for a better understanding of the problematic. The other problem,
and connected to the latter, is the fact that the federal arrangement does not always allow adequate space
for trickle down the results into the regional level. This has been particularly evident in the judiciary, but is
also an issue for police and prosecution as well as prison commissions despite the coordination forums. The
small number of staff of UNODC in the country office and the lack of funding for core and program support
to civil society organisations in the regions also hinder the capacity to build a solid mid-term approach for
the programme to be effective. Currently the activities have a strong focus on national issues, policy and
legislation and a relatively weak focus on the regions and civil society. Reinforcing technical assistance,
coordination and capacity building to the regional prison commissions and CSOs could significantly help to
implement the prison reforms at the federal level.

The sub programme, however, has contemplated plans to support the exchange and sharing of best practice
alongside improving coordination between prosecutors and investigators at the federal and regional levels
across all UNODC thematic areas of crime prevention and criminal justice. In 2018, a series of regional
trainings on basic investigation and prosecution techniques on these areas were carried out in Nairobi,
Kenya. A Judicial colloquium was also organized bringing together seventeen regional judges (Amhara,
Southern Nation and Nationalities People (SNNPP) and Oromia regions) and six judges from Addis Ababa
with two visiting judges from Kenya, who attended to share some of their best practices.

With regards to the National Crime Prevention Strategy and Action Plan, UNODC’s support have been
effective and will allow the criminal justice actors to devise preventive measures to address the conditions
in which crime occurs. The support started with a roadmap in 2014 and a Task Force that included also the
Justice and Legal System Research Institute, Addis Ababa Police Commission, Federal Ethics and Anti-
Corruption commission and Federal Prison Administration. The sub programme has also supported an
interinstitutional initiative led by the Government to enhance the capacity of law enforcement to use
technology in the process of investigation. As a result, an Automated Biometric Identification System (ABIS)
has been installed within the law enforcement institutions to strengthen their capacities in conducting
investigations.

The nature of support provided to the Child Project Office was effective as the hardware and office support,
computers and equipment, were essential tools for the work and there was no other funding available. This
allowed the Office to conduct the training, input to policy and legal change. The sub programme also
conducted two ToT workshops that included aspects to prevent and respond to crimes against women and
children, with 55 participants in total (39 Men / 16 Women) nominated from the Ethiopian Police University
College and the Amhara Regional State Police Commission.

Following the completion of the ICT Needs Assessment for the Criminal Justice, the equipment was handed
over in Aleltu and Sendafa for the Police University and the Prison Police Training Centre respectively.

Information obtained from a field visit by the evaluation team to the Amhara region also confirms the above-
mentioned findings. UNODC’s support in terms of computers and IT equipment was found useful by partners
in the region, including the Attorney General’s Office and AJPTLRI. The ICT support was well appreciated but
limited in relation to the significant needs in regional areas. For example, there remain issues relating to
maintaining reliable prisoners’ records. This leads to some prisoners remaining in custody after their
sentences have expired. The program was not sufficient to be able to address this challenge.

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The subprogramme has also developed a component on Education for Justice: webinars at 11 universities
were undertaken in 2020 and modules were printed (Criminal Justice, Trafficking in Persons and Smuggling
of Migrants) to the law schools based at Bahir Dar and Debre Markos universities in the Amhara region. The
sub programme plans to upscale the support provided to the university lectures and to facilitate integrating
the materials into the curriculum of the universities.

- Finding 1: Having the understanding of the Prison Commissioner has led to producing new
documents, training management, and according to the interviews there’s a change in behaviour at
the federal level.

- Finding 2: Capacity building does not trickle down to the regional level and since Ethiopia is a federal
state with regional laws and regulations the sub programme also needs to address them to achieve
the desired results
- Finding 3: The sub programme, however, has contemplated plans to support the exchange and
sharing of best practice alongside improving coordination between prosecutors and investigators at
the federal and regional levels on Trafficking in Persons and Smuggling of Migrants

SUSTAINABILITY
EVALUATION QUESTIONS:
To what extent are the benefits of the sub programme likely to continue after it ends?
- To what extent the National Plans, Strategies and training are still a priority for the government,
civil society and international agencies?
- To what extent the national institutions have the capacity (technical and financial) to sustain the
policies and priorities selected by the sub programme in the criminal justice system?

The judicial code of conduct was completed with the basic framework developed with the help of UNODC.
The Code of Conduct was produced in a highly consultative manner; however, the draft has not been
adopted by the Judicial Administration Council. UNODC has briefed the new administration of the Federal
Supreme Court, and in line with the on-going reforms the new advisory council conducted a revision that
includes other draft developed by USAID’s Feteh (Justice) Programme. The Code was adopted in 2020, and
it has had limited extension into practice due to the limited nature of the UNODC program. It will have a high
potential for ongoing impact if training can be carried out for the judges and other stakeholders.

The prosecutors, police and other stakeholders were brought together by UNODC to learn about models of
legal aid and how they can assist the vulnerable in the criminal justice system. This base of understanding is
crucial for the future development of the legal aid system but needs to be built on in the follow-on programs,
particularly with the coherent strategy of integrating all the concerned stakeholders. Training needs to be
interrelated to avoid running from silos and being sustainable on time with the support of different national
institutions.

The contribution to the development of policy was important. The completion of the new curriculum for the
prison officer training was well done and will have an ongoing impact. The first ICT centre was established
at the prison training centre, at a university and at Amhara regional level prison. Participants have been
introduced to the UNODC Global e-learning modules and they have already received their corresponding
certifications in different topics including Alternatives to Imprisonment for Women Offenders and the
Nelson Mandela Rules. They have been trained in human rights and gender best practices, changes in the
Ethiopian criminal justice legislation, among other issues as part of a long-term governmental plan to
institutionalize the human rights, rehabilitation and security best practices.

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Plans are underway for the engagement of an ICT specialist to assist UNODC in undertaking assessments and
supporting the installation of equipment, and the establishment of resources centres at national and
regional institutions. However, the Ethiopian justice system is still to adopt professional systems to enhance
IT court management, and there is no centralized repository for accessing data from various departments
within the judiciary in a timely and effective manner.

To sum up, there are signs that the government will enable more sustainable capacity building and
information management in the future such as the Annual conferences held between the Federal Prison
Commission and all regional prisons (with UNODC’s support), the new policies, and the recent changes in
the political context. In addition to this, the sub programme has the capacity of being sustainable as long as
it continues developing the strategy of addressing the technical people, demand driven and supporting
gradual changes. As for the area of prosecution, for instance, the Ministry of Justice has created specialized
areas such as asset recovery and child trafficking, and this is an indicator that the full UNODC support is
evolving in specialized sections that will last. Other activities, such as the exchange of experiences with other
countries (i.e. visit to the Uganda prisons) were addressed by the senior manager staff at the Federal Prison
Commission. In this regard, for the activities to be highly sustainable there have to be strategies to identify
other technical profiles as well.

The role of the CSO is also important in terms of sustainability. Improved support to structured partnerships
with CSO will help to maintain the demand and increase the outreach of the sub programme. Also support
to CSO alliances is needed to operate at the regional level and integrate partnerships with UNODC regional
programme.

- Finding 1: The judicial Code of Conduct can only have a potential for ongoing impact and
sustainability if training can be carried out for the judges and other stakeholders

- Finding 2: The first ICT centre was established at the prison training centre, at a university and at
Amhara regional level prison. These achievements will continue to enable more sustainable capacity
building and information management in the future.

- Finding 3: For the area of prosecution the Ministry of Justice has created specialized areas such as
asset recovery and child trafficking, and this is an indicator that the full UNODC support is evolving
in specialized sections that will last.

HUMAN RIGHTS, GENDER EQUALITY, DISABILITY INCLUSION

AND LEAVING NO ONE BEHIND
EVALUATION QUESTIONS:
To what extent has the sub programme design and implementation fully considered human rights, gender
equality, social inclusion as well as marginalised groups, including People with Disabilities?
- To what extent has the sub programme included a gender perspective in its design and
implementation?
- To what extent has the sub programme considered a Human Rights Based Approach and the
inclusion of People with Disabilities in its design and implementation?
- In the past it was prohibited for non-government actors to provide legal aid in any form but this has
recently changed (2019).5 The UNODC support to the Child Justice Support Office enabled them to
take a strong role in advocating for legal aid for women victims, children and vulnerable groups. This
has led to the initial stages of a national legal aid system and a concept of community-based

5
Proclamation No. 1113/2019 Organization of Civil Societies Proclamation. Federal Government, FDRE
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paralegals drawn from retired educated civil servants with ‘time on their hands.’ The work was
hindered by a lack of funding.

In 2021, the sub programme completed the translation of the Mandela Rules into Amharic, and this will
benefit the staff and prisoners, covering the minimum standards for medical, health and hygiene related
services, essential against COVID-19 pandemic. The Prison Training Curriculum, adopted in March 2021, was
shared with the Federal and Regional Prisons Commissioners in a 2-day training workshop. The
representatives were taken through the concepts of Modern Prison Management and the Mandela Rules.

The training for the judges and prosecutors on child rights and the Mandela Rules were effective but need
to be expanded. There are low levels of understanding among police, prosecutors and judges on how to deal
with victims of sexual violence, child labour, trafficking, etc. and the new specialized areas (prosecution)
need to be expanded in other institutions. The program could not take the next steps to try to strengthen
community programs that would provide an alternative to prison for those who are from 9 to 14 years of
age and to advocate for the extension of the age of criminal responsibility from nine to 14, or at least 12 as
a transitory measure.

The FDRE has implemented several policy and institutional measures with the objective of eliminating
discrimination against women such as the adoption of the National Women and Change Strategy, the
National Criminal Justice Plan, the implementation of the Strategic Plan for an Integrated and Multisectoral
Response on Violence Against Women and Children and Child Justice, and the adoption of the National Strategy
on Harmful Traditional Practices. It has also established child and women protection units in police stations
responsible for handling cases of Violence Against Women, investigation and prosecution team and child friendly
and victim friendly benches within federal as well as regional courts. In this regard, the SP II has developed a
specific outcome to expand programmes for improving access to justice for vulnerable and at-risk groups.
The gender aspect was also included in the various training and capacity building initiatives. In May 2021,
for example, the sub programme was involved in the development of a Second Strategy and Action Plan of
Violence Against Women and Children (VAWC) and Protection of Children in Conflict with the Law (CCL),
2021 – 2026. Through this intervention it was expected that the strategy reinforces multisectoral and
stakeholder coordination to ending VAWC and protecting the rights of CCL. The training activities also
targeted law enforcement and prosecution personnel, and covered aspects of Gender mainstreaming for
law enforcement personnel, as well as preventing and responding to crimes against women and children. All
the participants were drawn from the Federal and Regional Attorney General’s office.

The institutions still need more specific training on how to protect the rights of women, children and
vulnerable groups, including minorities, refugees, persons living with disability. Although there were some
important activities at the federal level for juvenile justice, there are only two facilities for juvenile offenders
in the regions. The limited approach of working at the federal level, and the lack of partnerships with the
CSO and governments and the courts in the regions, is hindering the possibility of being more effective in
terms of human rights and leaving no one behind.

- Finding 1: The UNODC support to the Child Justice Support Office enabled them to take a strong role
in advocating for legal aid for women victims, children and vulnerable groups

- Finding 2: There are low levels of understanding among police, prosecutors and judges on how to
deal with victims of sexual violence, child labour, trafficking, etc. and the new specialized areas
(prosecution) need to be expanded in other institutions.

- Finding 3: The program could not take the next steps to try to strengthen community programs that
would provide an alternative to prison for those who are from 9 to 14 years of age and to advocate
for the extension of the age of criminal responsibility from nine to 14, or at least 12 as a transitory
measure.

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- Finding 4: The gender aspect was included in the various training and capacity building initiatives.
Training of Trainers activities were developed covering aspects of Gender mainstreaming for law
enforcement personnel, as well as preventing and responding to crimes against women and children

EVALUATION FINDINGS 14
 III. CONCLUSIONS

Criminal Justice is an area of critical support in Ethiopia, moreover in a new context that is going to be
characterised by the Cessation of Hostilities Agreement (COH) signed in Pretoria between the warring parties
(GoE and TPLF) and that includes transitional justice and accountability new standards. Over the years, the
sub programme has been distinguished by its alignment to UNODC regional lines, international policies and
governmental alignment, and with a particular focus at the federal level. The sub programme has been very
efficient in supporting the government with Technical Assistance in a comprehensive set of legislation to
comply with international standards in a diversity of areas from the Judicial Training Curriculum to the
National Crime Prevention Strategy, the prosecution led crime investigation law, Criminal Procedure Code,
and the Prison Legislation Development. However, the SP II lacks strategic long-term approach, as well as
regular follow up in the implementation of training, especially for Training of Trainers activities which are
fundamental to reach out and impact all over the Criminal Justice institutional chain and the regions. The
approach of the sub programme for using the institutional training mechanisms can be more effective and
eventually impact at the regional level in a political context that is actually beginning to open up, but records
and statistics of participants need to be included, and the current activity-oriented approach needs
reorientation for further follow up on medium-long term outcomes.

UNODC has a niche-provision of technical support in terms of training and knowledge management,
including sharing best practices and facilitating effective networking/collaboration between CSOs and other
stakeholders at the national, federal and regional levels, but these mechanisms need to be developed in a
more coherent and coordinated way, including the coordination with other international partners and UN
agencies. UNODC might use its comparative advantage and focus on more technical support, beginning with
the normative framework at the regional level and also continuing providing support at the regional level.
The current stakeholders map is also limited to the federal government but other crucial organisations and
institutions are missing as counterparts, particularly the national governments since the vast majority of the
population is affected by the regional laws and regulations which have received far less focus. Strengthening
the linkages with national parliamentary commissions, academic institutions and specialised CSOs may also
help to enhance the sustainability of the sub programme.

The SP II has developed a specific outcome to expand programmes for improving access to justice for
vulnerable and at-risk groups. The gender aspect was also included in the various training and capacity
building initiatives. However, the country still needs more specific training on how to protect the rights of
women, children and vulnerable groups, including minorities, refugees, persons living with disability.
Although there were some important activities at the federal level for juvenile justice, there are only two
facilities for juvenile offenders in the regions. The limited approach of working at the federal level, and the
lack of partnerships with the CSO and governments and the courts in the regions, is hindering the possibility
of being more effective in terms of human rights and leaving no one behind.

15
 IV. RECOMMENDATIONS

RECOMMENDATION 1 – UNODCS NATIONAL OFFICE CAPACITIES

It is recommended that the Programme team in Ethiopia strengthens its management capacities for the
development of an M&E Plan, baselines, targets and indicators in a multi-year and result oriented
cooperation framework. In collaboration with donors and with the Regional Section for Africa and Middle
East (RSAME), the Programme team in Ethiopia should seek opportunities for increasing human resources
to address the need of the stakeholders and to bring added value to UNODC cooperation, actively
participating in the committees, following up on different areas of criminal justice, such as investigation,
prosecution, judges, legal aid, prisons both at federal and regional levels.

RECOMMENDATION 2 – PARTNERSHIPS
It is recommended that the Programme team in Ethiopia provides institutional support funding in the next
programmatic phase to trusted civil society partners operating in regions outside the capital, thereby
significantly increasing potential impact and inclusion of vulnerable right holders in the regions. Partnerships
with line Ministries in areas of education or social policies should also be encouraged in future programming
with a focus on developing sub-national policy, legislation and education programs, including education for
justice and criminal justice, including the particular challenges faced by women, children and vulnerable
groups including Persons with Disabilities.

RECOMMENDATION 3 – DEVELOPMENT OF TRAINING MANUALS AND TRAINING OF

TRAINERS COURSES FOR POLICE AND PRISON OFFICERS.
It is recommended that the Programme team in Ethiopia should seek follow-up funding for development of
training manuals and training of trainers for police and prison officers in early 2023. This follow up funding
will ensure that the good work done on creating training curricula for stakeholders is not wasted and can
lead to a significant impact through multiyear programs of delivery of training across the country.

RECOMMENDATION 4 – LEGAL AID FOR WOMEN, CHILDREN AND VULNERABLE

GROUPS
It is recommended that the Programme team in Ethiopia, in coordination with UNODC’s Regional Section for
Africa and Middle East (RSAME) and the Crime Prevention and Criminal Justice Section (CPCJS) in Vienna
seeks opportunities for the deployment of expert technical assistance to provide knowledge and lessons
learned to stakeholders in Ethiopia who are working on developing legal aid support for the poor and
vulnerable. The long-term goal of a sustainable national legal aid model should be explored but in the short
term more easily achievable goals such as establishing a network on community-based paralegals should be
considered. The Programme team in Ethiopia should be provided with sufficient support to host this sub
program of planning national legal aid interventions, at both national and regional levels. This support should
include follow up of innovative current plans to draw on resources such as local retired educated civil
servants in areas where there are few lawyers.
Support should be provided for the development of a national legal aid model, particularly focusing on
assisting vulnerable women and children who face additional problems in the criminal justice system.

RECOMMENDATION 5 – PILOT CRIMINAL JUSTICE PROGRAMMES IN THE REGIONS

It is recommended that the programme team in coordination with the Regional Section for Africa and Middle
East (RSAME) in collaboration with the Crime Prevention and Criminal Justice Section (CPCJS), seeks
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partnership opportunities with other UN Agencies, local authorities and specialized CSOs for developing pilot
programmes in the regions, to be developed with local authorities and specialized CSOs, to strengthen the
capacities at the national levels -prosecution, judiciary and the police- and to address relevant issues on
criminal justice for women and children, as well as to improve human rights approaches in prison
management.

RECOMMENDATION 6 – SOUTH TO SOUTH COOPERATION

The programme team in Ethiopia should provide opportunities for key personnel in the criminal justice
systems to be exposed to experience and lessons from other regional and international jurisdictions.
However, these activities should be carefully considered to ensure that the comparative models are relevant
to the stage of development and challenges in Ethiopia and that the persons involved in the activities are
those who will be able to contribute in a meaningful way to reform. Those opportunities should include a
mix of national and sub-national personnel with an appropriate gender balance.

RECOMMENDATION 7 – INTEGRATING NATIONAL EXPERTS FROM CSO AND

ACADEMIA
The programme team in Ethiopia should support key areas of the criminal justice system that includes both
international experts and national experts drawn from civil society and academia. Technical experts will
contribute to the drafting of policies and laws, develop manuals and other tools and contribute to capacity
building.

RECOMMENDATIONS 17
 V. LESSONS LEARNED AND GOOD PRACTICES
LESSONS LEARNED
A small UN team that is not provided with significant funding for regional civil society and government
partners may be forced to focus only on federal level activities. This will significantly reduce potential impact
in a large country with a decentralized federal system of government. Future program design should include
not only participation of civil society partners in training and events but also multi-year core and program
funding so that they can extend the impact of the program to the regions.
Electronic information management systems are of crucial importance in defending the rights of the
vulnerable, including prisoners whose sentences have expired but may remain in custody due to inaccurate
or missing records. However, the support for electronic systems needs to include strategies that include all
prisons across the country and require ongoing technical support to maintain them
Investment in key policy goals such as creation of a Judicial Code of Conduct were eventually successful but
the impact limited because there were insufficient resources to follow up and spread to the regions.
Experts drawn from civil society and academia can make a significant contribution to developing government
policy and legislation if provided with support from donors. Those experts can provide a particular expertise
and focus that is unavailable from government sources.

GOOD PRACTICES
Training on international standards and best practices such as the Nelson Mandela Rules for prisons were
greatly appreciated by stakeholders and are far more effective if combined with real lessons learned from
similar contexts in the region or other countries with similar levels of development.
Most law graduates from regional backgrounds leave those areas to seek more lucrative jobs in cities. The
plan to provide much needed legal aid services for women, children and vulnerable groups through drawing
on the experience and education of retired civil servants who live in those regions and will remain living
there is innovative.
Creating “child friendly benches” in courts, including video and sound equipment that can protect children
and women victims from direct contact with alleged perpetrators during court proceedings. The cameras
and sound equipment have a direct significant effect not only on the well-being of the victims but on the
integrity of the criminal cases, reducing the potential for evidence to be influenced by intimidation and fear.

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ANNEX I: TERMS OF REFERENCE

Project duration (dd/mm/yyyy-dd/mm/yyyy): 1 November 2012 to 30 September 2022

Location (Country/ies and sub-national focus areas, if
Ethiopia, Addis Ababa
relevant):
The National Integrated Programme for Ethiopia
was developed within the Framework of the
following:
UNODC Regional Programme for Eastern Africa
“Promoting the Rule of Law and Human Security
Linkages to Country, Regional and Thematic Programmes & 2009-2012/13”6.
UNODC Strategy 2021-2025: UNODC Regional Programme for Eastern Africa
“Promoting the Rule of Law and Human Security in
Eastern Africa 2016-2021”7; and
UNODC’s Strategic Framework for 2014-2015;
UNODC’s Strategic Framework for 2016-2017; and
UNODC’s Strategic Framework for 2018-2019.
SDG 5: Gender equality
5.1 - End all forms of discrimination against all
women and girls everywhere
5.2 - Eliminate all forms of violence against all
women and girls in the public and private spheres,
including trafficking and sexual and other types of
exploitation
5.c - Adopt and strengthen sound policies and
enforceable legislation for the promotion of
gender equality and the empowerment of all
women and girls at all levels
Linkages to the SDG targets to which the project SDG 16: Peace, Justice and Strong Institutions
contributes: 16.3 - Promote the rule of law at the national and
international levels and ensure equal access to
justice for all.
Target 16.5: Substantially reduce corruption and
bribery
16.6 - Develop effective, accountable and
transparent institutions at all levels.
16.a - Strengthen relevant national institutions,
including through international cooperation, for
building capacity at all levels, in particular in
developing countries, to prevent violence and
combat terrorism and crime.
UNODC Programme Office in Ethiopia/
Executing Agency (UNODC office/section/unit):
DO/IPB/RSAME
International Committee of the Red Cross (ICRC);
Partner Organizations:
Centre for Justice, UN Agencies: UNICEF, UNDP,

6 The RP for Eastern Africa was politically endorsed by 12 out of 13 countries (Burundi, Comoros, Djibouti, Ethiopia, Kenya, Ma dagascar,
Mauritius, Rwanda, Seychelles, Somalia, Tanzania and Uganda) through the signing of the Nairobi Declaration on 23 Novemb er 2009 in
Nairobi, Kenya. The Regional Programme was extended to the end of 2013.

7 The new UNODC Regional Programme for Eastern Africa (2016-2021) succeeds the previous RP (2009 – 2015), covering Burundi,
Comoros, Djibouti, Ethiopia, Kenya, Madagascar, Mauritius, Rwanda, Seychelles, Somalia, Tanzania and Uganda through the signing of
the Nairobi Declaration on 23 November 2009 in Nairobi, Kenya. The new RPEA focuses mainly on Ethiopia, Kenya and Somalia, wi th
minor interventions in the other countries.

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OHCHR, UNWOMEN. (See Annex III for full list of

Partners and Contact)
Donor(s): Governments of Netherlands, Sweden and Norway
The Addis Ababa Police Commission and Federal
Police Commissions, The Federal Prison
End Beneficiaries/Recipients:
Commission, Federal Supreme Court, The Ministry
of Justice
Total Approved Budget (USD): 5,579,177 USD
Total Overall Budget (USD): 6,000,000 USD
Total Expenditure by date of initiation of evaluation (USD): 5,166,517 USD
UNODC Regional Office for East Africa, Sub-
Name and title of Project/Programme Manager(s) and
Programme II: Criminal Justice and Integrity
implementing UNODC office(s)/section(s)/unit(s):
Programme Manager, Charity Kagwi
Time frame of evaluation: (planned start and end date of the
9 June 2022 – 30 October 2022
evaluation process)
Budget for this evaluation in USD8: USD 75,000
Number of independent evaluators planned for this
3
evaluation9:
No prior evaluations were conducted for Sub-
Type and year of past evaluations (if any):
programme II on Criminal Justice and Integrity

PROJECT OVERVIEW
The National Integrated Programme for Ethiopia (NPE), Sub-programme II (SPII): Criminal Justice and
Integrity (2013-2019) (Project ETHX97) was created in 2012 and was funded by Norway, Sweden and the
Netherlands, receiving a combined amount of $ 5,167,682 USD for implementation by the UNODC
Programme Office for Ethiopia (UNODC-POETH). The NPE was elaborated within the broader framework of
the UNODC Regional Programme for Eastern Africa (ROEA) “Promoting the Rule of Law and Human Security
2009-2012/13” and the UNODC Regional Programme for Eastern Africa “Promoting the Rule of Law and
Human Security in Eastern Africa 2016-2021”; and UNODC’s Strategic Frameworks (2014-2015; 2016-2017;
and 2018-2019). The NPE aimed to contribute towards the efforts of the Federal Democratic Republic of
Ethiopia (FDRE) to make Ethiopia safer from the threats posed by organized crime and illicit drug use while
ensuring access to justice and the rule of law, and is based on the following three sub-programmes: Sub-
programme I: Illicit Trafficking, Organized Crime and Border Management-aimed to support the FDRE in its
effort to address illicit trafficking and organized crime, including through the strengthening of border control
capacities. Sub-programme II: Criminal Justice and Integrity-aimed to support the FDRE’s efforts against
corruption and to strengthen the criminal justice institutions by improving the effectiveness of investigation,
prosecution, access to justice, fair trial and execution of penal sanctions, and by securing the protection of
vulnerable groups. Sub-programme III: Drug abuse prevention, drug dependence treatment, HIV prevention,
treatment and care- aimed to support the FDRE in its efforts to reduce the demand for drugs, prevent drug-
related HIV infections, as well as HIV/AIDS in prison settings, and promote treatment to reduce health-
related and social consequences of drug use.
The UNODC Programme Office in Ethiopia developed a subsequent programme – The National Plan of Action
(NPA) that outlined the nature and scope of technical assistance to be provided to Ethiopia from 2019 to
2021. The National Plan of Action (2019-2021) is aligned with the UNODC Regional Programme for Eastern
Africa “Promoting the Rule of Law and Human Security in Eastern Africa 2016-2021” which supports the
efforts of countries in the region to better respond to evolving threats to national security as well as to

8
Including fees for evaluation team, travel, printing, editing, translation, interpretation, etc.
9
Please note that the recommendation for any UNODC evaluation is at least two independent evaluators, i.e. one
Evaluation Expert and one Substantive Expert in the subject area of the project to be evaluated.
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promote the rule of law and human security. The National Plan of Action (2019-2021) aims to provide “a
safer community, free from the threats posed by organized crime and drug use and confident in the integrity
of the criminal justice system to provide access to justice” and has the following five pillars:
• Pillar 1: Countering Transnational Crime and Trafficking
• Pillar 2: Countering Corruption,
• Pillar 3: Terrorism Prevention,
• Pillar 4: Crime Prevention and Criminal Justice
• Pillar 5: Prevention of Drug Use, Treatment of Case of Drug Use Disorders and HIV and AIDS
Prevention and Care

Sub-programme II: Criminal Justice and Integrity

UNODC as the custodian of United Nations standards and norms in crime prevention and criminal justice
holds a mandate to support Member States in building fair and effective criminal justice systems and
developing crime prevention programmes. More specifically, under Sub-programme II, UNODC-POETH
remains the primary technical support provider in the criminal justice arena, which continue to be relevant
to the long-term development of Ethiopia. UNODC-POETH’s assistance to provide to the FDRE and its
partners across Criminal Justice in Ethiopia falls in line with its mandated activities which includes upgrading
crime prevention and criminal justice systems as well as promoting the Rule of Law.
The role of UNODC-POETH remains to support the FDRE to achieve the outcomes outlined in the NPE through
the delivery of technical assistance and capacity-building. UNODC-POETH is thus responsible and
accountable for the quality of its support services as well as ensuring that they contribute to the desired
outcomes. The programme mainly engaged with key Criminal Justice agencies including the Federal Office
of the Attorney General (now Ministry of Justice), Federal Police Commission, Federal Prison Commission
and Federal Supreme Court. Within the same period, UNODC has formed partnerships with various
organizations including, but not limited to UNDP, UNICEF, OHCHR and ICRC.
The mainstreaming of Gender and Human Rights and Social Inclusion has been critical during the
implementation of the project. This has been established through capacity building using UNODC-developed
manuals and training schedules when dealing with various counterparts, especially at senior levels in order
to facilitate trickling down of concepts and dissemination of knowledge. Some of the ways in which this was
strengthened included as well as informing the various counterparts of the need to submit lists with 30%
participation by women in workshops and/or trainings. UNODC has also continued to engage with other key
stakeholders such as the Ministry of Women, Youth and Children. The Programme has also been deliberate
in its engagement with Civil Society Organizations that focus on marginalized and vulnerable groups such as
People Living With Disabilities (PLWDs).
Implementation following the onset of the COVID-19 pandemic in 2020 has been hampered as UNODC
operations were affected by the pandemic, like many organizations globally. The period witnessed a slow
uptake of implementation as well as a general decrease in staff morale with programme work moving purely
online within a context of poor internet connectivity in the country and remote working arrangements not
being practiced especially by government counterparts. The programme however seized the opportunity to
provide immediate support to various government partners to prevent as well as contain infections in the
respective institutions. The programme also provided ICT support to institutions to enable them undertake
their usual duties in the context of the pandemic. With vaccination being implemented on a global scale and
new COVID-19 cases decreasing steadily, the office has bounced back and is resuming normal activities
including carrying out workshops and meetings in person.

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The Project’s Objective:

NPE Sub-programme II: Criminal Justice and Integrity-aimed to support the FDRE’s efforts against corruption and to
strengthen the criminal justice institutions by improving the effectiveness of investigation, prosecution, access to
justice, fair trial and execution of penal sanctions, and by securing the protection of vulnerable groups.

The Project’s Outcomes:

1 National authorities adopt a sustainable broad-based National Crime Prevention Strategy and Action Plan
2 The Ethiopian justice system adopts professional standards, systems and legislative and administrative
measures for improved effectiveness, accountability and integrity.
3 Ethiopian prosecution service adopts standards and strategies for greater efficiency, effectiveness and
accountability.
4 Ethiopian authorities implement programmes to strengthen humane and secure imprisonment and reduce
overcrowding in prisons by the use of alternatives to imprisonment and early conditional release
5 Ethiopian authorities implement measures to provide support to victims and witnesses, in line with
international standards
6 The Government of Ethiopia adopts programmes for the improved protection of children in conflict with the
law
7 The Government of Ethiopia expands programmes for improved access to justice for indigent, in particular
vulnerable and at-risk-groups.
8 Anti-corruption efforts and Capacity to implement the National Plan of Action Strengthened in line with the
UNCAC

II. PURPOSE AND SCOPE OF THE EVALUATION

Planned utilisation of the Donor reporting as well as project development of subsequent project proposals and
evaluation results10: design
Main users of the evaluation Donors, UNODC senior management
results11: and programme management
Unit of analysis (full Full project
projects/segment/etc.)
Time period covered by the 1 November 2012 – 30 September 2022
evaluation:
Geographical coverage of the Addis Ababa, Ethiopia
evaluation:

All findings and recommendations as well as the management response pertain solely to the UNODC
project/programme being evaluated and is not in any way targeted to Member States, implementing
partners or other entities that took part in this project/programme.

III. EVALUATION CRITERIA

The evaluation will be conducted based on the below selected relevant DAC criteria12. All evaluations must
include gender, human rights, disability inclusion and no one left behind. Ideally these are mainstreamed
within the evaluation questions. Moreover, the evaluation needs to identify lessons learned13 and good
practices. The evaluation questions will be further refined by the Evaluation Team in the drafting of the
Inception Report.

10
e.g. inform the future development of the project or similar projects, for organizational learning, assess the success
and areas of improvement of the project etc.
11
e.g. senior management, programme management, stakeholders, beneficiaries, donors etc.
12
https://www.oecd.org/dac/evaluation/daccriteriaforevaluatingdevelopmentassistance.htm
13
Lessons learned concern the learning experiences and insights that were gained throughout the project/
programme.
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Criteria Evaluation question

Relevance14: Is the To what extent has the project been relevant to stakeholder’s (e.g., governments, Member
intervention doing States, etc.) needs and priorities?
the right thing?

Coherence15: How To what extent has the project established and maintained appropriate partnerships,
well does the including with UN agencies, CSOs, academia, etc.?
intervention fit?

Efficiency16: How well To what extent has the project delivered outputs in a timely and efficient manner?
are resources being
used?

Effectiveness: Is the To what extent did the project achieve its intended outcomes and objective? If so, why? If
intervention not, why not?
achieving its
objectives?17
Impact18: What
difference does the
intervention make?

Sustainability19: Will To what extent are the benefits of the projects likely to continue after it ends?
the benefits last?

Human rights, gender To what extent has the project design and implementation fully considered human rights,
equality, disability gender equality, social inclusion as well as marginalised groups, including people with
inclusion and leaving disabilities?
no one behind20: Has
the intervention been
inclusive and human
rights based?

IV. EVALUATION METHODOLOGY

All evaluations of the United Nations system are guided by the principles of human rights, gender equality,
disability inclusion and leaving no one behind. Gender-sensitive and disability inclusive evaluation methods
and gender-sensitive and disability inclusive data collection techniques are therefore essential to identify
key gender issues, address marginalized, disabled, hard-to-reach and vulnerable population.
The methods used to collect and analyse data

14
Relevance is the extent to which the activity is suited to the priorities and policies of the target group, recipient and
donor.
15
The compatibility of the intervention with other interventions in the country, sector or institution
16
The extent to which the intervention delivers, or is likely to deliver, results in an economic and timely way.
17
The extent to which the intervention achieved, or is expected to achieve, its objectives, and its results, including
any differential results across groups.
18
The extent to which the intervention has generated or is expected to generate significant positive or negative,
intended or unintended, higher-level effects.
19
The extent to which the net benefits of the intervention continue or are likely to continue.
20
The extent to which the project/programme has mainstreamed human rights, gender equality, and the dignity of
individuals, i.e. vulnerable groups, including those with disabilities.
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While the evaluation team shall fine-tune the methodology for the evaluation in an Inception Report, a
mixed-methods approach of qualitative and quantitative methods is mandatory due to its appropriateness
to ensure that evaluation conclusions, findings, recommendations, and lessons learned are substantiated by
evidence and based on sound data analysis and triangulation; as well as a gender-sensitive, inclusive,
respectful and participatory approach and methodology to capture disability and gender equality issues.
Special attention will be paid to: (i) ensuring that voices and opinions of both men, women and other
marginalised groups, such as people with disabilities are heard (including gender related and disaggregated
data, (e.g. by age, sex, countries etc.); (ii) ensuring an unbiased and objective approach and the
triangulation of sources, methods, data, and theories. The limitations to the evaluation need to be
identified and discussed by the evaluation team in the Inception Report, e.g. data constraints (such as
missing baseline and monitoring data). Potential limitations as well as the chosen mitigating measures should
be included. The evaluation team will be asked to present a dedicated methodology in the Inception Report
outlining the evaluation criteria, indicators, sources of information and methods of data collection. The
evaluation methodology must conform to the United Nations Evaluation Group (UNEG) Norms and
Standards as well as the UNODC Evaluation Policy, guidance, tools and templates. The evaluation team is
also expected to use interviews, surveys and/or any other relevant quantitative and/or qualitative tools as a
means to collect relevant data for the evaluation. While maintaining independence, the evaluation will be
carried out based on a participatory approach, which seeks the views and assessments of all parties identified
as the stakeholders of the project/ programme.
The final evaluation report will be externally independently assessed (facilitated by IES) and the final rating
will be included in the report. Based on this assessment, the report may not be published if it does not meet
minimum quality standards.
All tools, norms and templates to be mandatorily used in the evaluation process can be found on the IES
website: https://www.unodc.org/unodc/en/evaluation/guidelines-and-templates.html

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V. TIMEFRAME AND DELIVERABLES

Evaluation stage Start date21 End date Subsumed tasks, roles Guidance / Process description
(dd/mm/yy) (dd/mm/yy)

Finalisation ToR (2-4 weeks) 09/06/2022 21/06/2022 Initiate the evaluation in Unite Evaluation Includes 1 week review by IES and 1 week review by CLPs;
and upload ToRs; finalise draft ToR based multiple revisions by PM based on IES and CLPs feedback;
on IES feedback; IES shares final draft with final clearance by IES; in parallel, outreach by PM to
CLPs; PM to finalise ToR based on CLPs qualified evaluators (consultation with IES on potential
feedback. candidates)
Recruitment 22/06/2022 13/07/2022 Consult with IES on potential evaluators; Review and clearance of evaluators by IES before
(3-4 weeks) PM manages full recruitment process22 recruitment can be initiated by PM. Note: please follow the
usual process for recruiting international/national
consultants.

Inception Report, incl. desk 14/07/2022 04/08/2022 Kick-off meeting with PM and evaluators; Includes 1 week review and clearance by IES; IES may
review desk review by evaluators, followed by participate in the kick-off meeting
(2 weeks) draft Inception Report; Review by IES;
clearance of revised Final Inception
Report by IES
Data collection (incl. field 05/08/2022 02/09/2022 Field missions; observation; interviews; Coordination of data collection dates and logistics by PM.
missions) etc. by evaluators
(3-4 weeks)23
Analysis and draft report 03/09/2022 24/09/2022 Data analysis and drafting of report by Includes 1 week review by IES, followed by 1 week review
(3-4 weeks) evaluators by PM

21
Required preparations before the start: completed ToR; 1 week review of ToR by the Core Learning Partners; finalised ToR based upon comments received; clearance by IES;
assessment of qualified evaluation team candidates; clearance by IES; recruitment (Vienna HR for international consultants requiring a minimum of 2 weeks; UNDP for national
consultants which may take up to several weeks); desk review materials compiled.
22
Please follow the official recruitment process for international, regional or national consultants at UNODC.
23
Data collection is currently likely to take longer than usual due to competing priorities of stakeholders and beneficiaries due to COVID-19. Data collection phase may imply on-
line interviews, surveys etc instead of travel/face-to-face interviews.
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25/09/2022 16/10/2022 Review by IES; review by PM; revision of

draft report by evaluators
Draft report for CLP comments 17/10/2022 23/10/2022 CLPs review and provide comments to IES CLP comments are compiled and shared by IES with
(1 week) evaluators

Final report, evaluation brief, 24/10/2022 30/10/2022 Revision by evaluators; Evaluation report, Includes 1 week review and clearance by IES of Final Report
PowerPoint slides, and External 2-page Evaluation Brief and PowerPoint and Brief and 1 week review by PM of Brief and PowerPoint
Quality Assessment slides are finalised by evaluators based slides; 1 week for external quality assessment facilitated by
(1-2 weeks) upon feedback by IES and PM; external IES
quality assessment of report; completion
of MR and EFP by PM
Presentation (1 day) 31/10/2022 31/10/2022 Presentation organised by PM. Date of presentation of final results to be agreed between
PM and evaluators; IES to be invited.

The UNODC Independent Evaluation Section may change the evaluation process, timeline, approach, etc. as necessary at any point throughout the evaluation
process.

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VI. EVALUATION TEAM COMPOSITION

Role Number of consultants24 Specific expertise required25

(national/international)
Evaluation 1 International consultant Expertise in Evaluation methodologies and tools
Expert
Senior Expert 1 International consultant Expertise in Criminal Justice reform
Substantive 1 National consultant Expertise in Criminal Justice reform
Expert

The evaluation team will not act as representatives of any party and must remain independent and impartial
and must not have been involved in the design and/or implementation, supervision and coordination of
and/or have benefited from the programme/project or theme under evaluation.
Furthermore, the evaluation team shall respect and follow the UNEG Ethical Guidelines for conducting
evaluations in a sensitive and ethical manner. The qualifications and responsibilities for each evaluation team
member are specified in the respective job descriptions attached to these Terms of Reference (Annex 1).
The evaluation team will report exclusively to the Chief or Deputy Chief of the UNODC Independent
Evaluation Section, who are the exclusive clearing entity for all evaluation deliverables and products.
The evaluation team will be issued consultancy contracts and paid in accordance with UNODC rules and
regulations.
The payment will be made by deliverable and only once cleared by IES. Deliverables which do not meet
UNODC and UNEG evaluation norms and standards will not be cleared by IES. IES is the sole entity to request
payments to be released in relation to evaluation. Project/Programme Management must fulfil any such
request within 5 working days to ensure the independence of this evaluation process. Non-compliance by
Project/Programme Management may result in the decision to discontinue the evaluation by IES.

VII. ROLES AND RESPONSIBILITIES

IN THE EVALUATION PROCESS
Please ensure that the full evaluation process is managed through Unite Evaluations
(evaluations.unodc.org)26. All communication of preliminary, draft or final evaluation results needs to be
reviewed and cleared by IES before dissemination
Evaluation Project Manager IES Evaluation team
stage
Overall Provide management, administrative Ensure the independence, Submit deliverables on
and logistical support to the participation, and quality of the time and meeting
evaluation process, as per IES’s tools, evaluation process, as per quality standards, as
guidance and templates, in line with UNODC Evaluation Policy, UNEG per IES’s tools,
UNODC Evaluation Policy, UNEG Norms and Standards, and guidance and
Norms and Standards, and DMSPC DMSPC Guidelines for evaluation templates, in line with
Guidelines for evaluation. –including the review and UNODC Evaluation
approval of all evaluation Policy, UNEG Norms
deliverables. and Standards, and

24
Please note that an evaluation team needs to consist of at least 1 independent evaluator – the Evaluation Expert –
and ideally one Substantive Expert.
25
Please add the specific technical expertise needed (e.g. expertise in anti-corruption; counter terrorism; etc.) –
please note that at least one evaluation team member needs to have expertise in human rights and gender equality.
26
The Unite Evaluations user manual for Project Managers is available here.
27
 FINAL INDEPENDENT PROJEC EVALUATION NATIONAL INTEGRATED PROGRAMME FOR
ETHIOPIA SUB-PROGRAMME II: CRIMINAL JUSTICE AND INTEGRITY (2013-2019)

Evaluation Project Manager IES Evaluation team

stage
DMSPC Guidelines for
evaluation.
ToR Draft, uploading to Unite evaluations 1 round of comments
and finalising
Identify stakeholders and CLPs Share ToR with CLPs for
Compile the desk review material comments (1 week)
Identify potential substantive Support the Project Manager in
evaluators and experts the identification of suitable
evaluation team, when possible
Recruitment Propose evaluators and experts after Review & clear proposed Submit all required
consultation with IES evaluation team before documentation for the
Administrative process and recruitment process starts selection and
recruitment (in line with recruitment process
organisational rules and regulations
for consultants)
Finalise the compilation of the desk
review material
Inception Engage with the evaluation team and Attend kick-off meeting as Participate in kick-off
Report provide all required information, necessary, and provide relevant meeting
documents, stakeholder lists, schedule templates and guidance, review Draft Inception Report
kick-off meeting etc. draft Inception Report in line in line with UNODC
with UNODC and UNEG norms templates and
and standards guidelines27
Provide Final Inception
Report
Release payment once requested by Clear Final Inception Report
IES before any data collection can
start
Data All logistical arrangements for the Provide guidance on the Conduct an
collection evaluators (including travel evaluation process to the independent,
and analysis arrangements, set-up of interviews as evaluation team and/or the participatory and high-
requested, note verbales, etc.). project team, as needed. quality data collection.
Timely travel arrangements, payments Implement the
of DSAs, etc. methods and tools
developed in the
Inception Report.
Participate in de-briefings, as Engage with Project
necessary Management to
request further
information and
assistance as required.
Conduct de-briefings to
PM, as necessary
Provide further data, documents, Conduct a thorough
stakeholders, etc. as requested by the analysis to ensure
evaluation team. triangulation of
evidence.
Draft report Provide further information to Provide a high-quality
evaluators as requested draft report, in line
with UNODC and UNEG
N&S
1 review of the draft report for factual Review of the draft report
errors, once cleared by IES

27
https://www.unodc.org/unodc/en/evaluation/normative-tools.html
ANNEX I: EVALUATION TERMS OF REFERENCE 28
 FINAL INDEPENDENT PROJEC EVALUATION NATIONAL INTEGRATED PROGRAMME FOR
ETHIOPIA SUB-PROGRAMME II: CRIMINAL JUSTICE AND INTEGRITY (2013-2019)

Evaluation Project Manager IES Evaluation team

stage
Release payment, once cleared by IES Initial clearance or rejection of Incorporate comments
draft report of IES and consider
those of PM
Share draft report with CLPs (1 Incorporate comments
week) of CLPs.
Final report, Complete Management Response and Facilitation of external quality Based on the external
Brief and Evaluation Follow-up Plan assessment of the report. assessment, finalise the
Presentation report, 2-page
Evaluation Brief and
PowerPoint slides.
Review the 2-page Evaluation Brief Final review by IES and either 1) Present the results as
and PowerPoint slides and organize an clearance for publication or 2) agreed with Project
MS Teams presentation of the results non-clearance for publication if Management and as
to internal and external stakeholders it does not meet UNODC & cleared by IES within 4
UNEG norms and standards weeks of approval of
IES to attend final presentation the final evaluation
as necessary report.
Release all outstanding payments, as Clear all deliverables for
requested by IES payment, once they meet UNEG
In case the report is not cleared by IES, Norms and Standards and
use it exclusively for internal reporting UNODC evaluation policy,
(NOT for dissemination) templates and guidelines.
Follow-up Yearly update on the implementation Report on the implementation
of recommendations. of recommendations to Member
States and the Executive
Director on an annual basis.

ANNEX I: EVALUATION TERMS OF REFERENCE 29

 ANNEX II: EVALUATION TOOLS:
QUESTIONNAIRES AND INTERVIEW GUIDES

The Evaluation Team has been tasked with preparing a report on Final Evaluation of the National Integrated
Programme for Ethiopia Sub-Programme II: Criminal Justice and Integrity (2013 - 2019) coordinated jointly
by UNODC.

Interview informed consent form:

(To be read out before the beginning of the interview)

My name is … and I am undertaking this assignment. Please take note of the following:

- Your participation in this Evaluation is voluntary and you may opt to withdraw from the research at any
time.

- The interview will take 30-60 minutes and you are free to decline answering any questions you may not
feel comfortable with

The interview responses will be kept strictly confidential. No specific details with respect to respondents’
names, addresses, contact numbers will be disclosed.

- Should you have any questions regarding the research please feel free to contact the researcher, Miguel A.
Lombardo at [email protected]

Please verbally acknowledge that you have understood the information shared and provide your informed
consent to participate in the study.

1 Process

1. Introduce myself and the reason for the interview (if not someone I have dealt with)
2. Ask for confirmation of name, job title
3. Read out informed consent and ask if they are comfortable
4. If they have prepared a written input (very helpful) thank them.
5. For all the questions they answer consider whether to explore:
· What appear to be good practices that should be built on?
· What lessons have you learned?
· What recommendations would you have for strengthening this and making it more
sustainable?
6. Finally explore the lessons
7. Thank the interviewee

2 Nature of the Sub - Programme

2.1 What is your perception of the work of UNODC work [IES3] [ML4] n building capacities for Criminal
Justice and Integrity?

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 FINAL INDEPENDENT PROJEC EVALUATION NATIONAL INTEGRATED PROGRAMME FOR
ETHIOPIA SUB-PROGRAMME II: CRIMINAL JUSTICE AND INTEGRITY (2013-2019)

2.2 What role do your institution play in the system?

3 How the Criminal Justice System has evolved

3.1 What is your perception of the demand for CJ System improvements

- within Federal Government or Regional?

- from the UN Agencies or other multilateral institutions?

- Are there any other institutions that should be considered to support national priorities and the
public policy cycle through capacity building on Criminal Justice?

3.2 Building coherence and coordination

- Does the UN in Ethiopia share a common framework of building capacities for Criminal Justice?

- Has support from the UN to CJ in Ethiopia been coherent and coordinated with other donors?
What problems have emerged? How were these resolved?

4 Changes in outcomes (behaviour and performance)

4.1 What interventions have been particularly successful in promoting CJ and the motivation of policy
makers to use evidence?

5 Sustainability and upscaling

5.1 How do you think the SP is likely to evolve in the next few years?

- What factors are influencing this going forward?

- Are other CJ programmes / initiatives emerging?

5.2 What changes could be made to strengthen the impact of the CJ and expand the system

6 Overall lessons the UNODC has learned

6.1 What are your recommendations for the role of the UN in supporting CJ in this country or more
widely

6.2 What are your recommendations for roles of others

ANNEX II : EVALUATION TOOLS : QUESTIONNAIRES AND INTERVIEW GUIDES 31

 ANNEX III: DESK REVIEW LIST
UNODC DOCUMENTS
● National Integrated Programme for Ethiopia (2013-2016)

● ToR of Project ETHX97

● Annual Progress Report Project ETHX97 – National Integrated Programme for Ethiopia (Sub-
Programme II) January - December 2014

● Guidance Note on Gender Mainstreaming in UNODC (2013)

● UNODC Regional Programme for Eastern Africa (ROEA): “Promoting the Rule of Law and Human
Security in Eastern Africa in 2009-2012/2015”;

● United Nations Principles and Guidelines on Access to Legal Aid in Criminal Justice Systems (UNODC
2013.)

● 2013 - 2021 POETH Criminal Justice Annual Reports (9 Reports in Total)

● UNODC Strategic Framework 2014-2015 for the United Nations Office on Drugs and Crime for
programme 13 “International drug control, crime and terrorism prevention and criminal justice”
(future A/67/6 (Prog. 13)) E/CN.7/2012/CRP.2

EXTERNAL DOCUMENTS
● Proclamation No. 1113/2019 Organization of Civil Societies Proclamation. Federal Government,
FDRE
● Government of the Federal Democratic Republic of Ethiopia: Growth and Transformation I (GTPI)
(2010/11-2014/15)

● Government of the Federal Democratic Republic of Ethiopia : Growth and Transformation Plan II
(GTPII) 2015/16-2019/2020

● A Homegrown Economic Reform Agenda: A Pathway to Prosperity (Ed. 2020)

● Government of the Federal Democratic Republic of Ethiopia: National Crime Prevention Strategy
(2019)

● Government of the Federal Democratic Republic of Ethiopia: Strategic Plan for an Integrated and
Multisectoral Response on Violence Against Women and Children and Child Justice in Ethiopia

● Government of the Federal Democratic Republic of Ethiopia: National Free Legal Aid Strategy

32
ANNEX IV: STAKEHOLDERS CONTACTED DURING
THE EVALUATION
Organisation Number of Type of stakeholder Sex Country(ies)
stakeholders (see note below) disaggregated
data
UNODC, Donor, Child 4 Program implementer Male: 3 Ethiopia, Kenya
Justice Project Office of Female:1
Ethiopia
Ministry of Justice, Police 14 Government recipient Male: 11 Ethiopia
Commission and Federal Female:4
Police, Federal Prison
Commission, Amhara
Region Attorney General,
Amhara Regional Supreme
Court, Amhara Prison
Commission, Amhara
Police Commission, Bahir
Dar Prison
Ethiopian Human Rights 3 Civil Society Male: 1 Ethiopia
Council, Amhara Judges Organization Female: 1
and Prosecution Training
Institute, Centre for
Justice
Total: Total: 21 Male: 15
Female: 6
Note: A stakeholder could be a Civil Society Organisation; Project/Programme implementer; Government
recipient; Donor; Academia/Research institute; etc.

33