Mid–Term Review of the project “Renewable Energy-based Rural Electrification Programme for Botswana"

Energy, like education and health services is a basic household need and rural electrification has therefore been an important component of recent national development plans. The Government of Botswana (GoB) in its commitment to achieve the objective of the Vision 2016 and equalize the distribution of economic benefits among all strata of its society has highlighted as essential, access to basic energy services. Access to reliable and affordable energy services is also crucial for the Country efforts towards the attainment of the Millennium Development Goals (MDGs).

However, the increasing cost of rural grid-based electrification has been a barrier to its access for 30% of villages and 99% of localities. It is against this backdrop that the Government of Botswana and the Botswana Power Corporation (BPC) have been exploring other non-grid solutions, including Solar Photovoltaic (PV) technology.

In this context, the Government of Botswana, in collaboration with United Nations Development Programme (UNDP) and the Global Environmental Facility (GEF), is currently implementing the “Renewable Energy-based Rural Electrification Programme for Botswana” (hereinafter referred to as the “RE Botswana Programme”). The Botswana Power Corporation (BPC) is the executing agency of the project on behalf of the Ministry of Minerals, Energy and Water Resources (MMEWR) with responsibility for sustained maintenance and operation. The project has been funded to the tune of US$ 6.6 million with the Government providing 3.6 million and GEF contributing US$ 3 million.

 Goal and Objectives of the Project
 
The RE Botswana Programme aims at reducing Botswana’s energy-related CO2 emissions by promoting renewable and low GHG technologies as a substitute for fossil fuel (paraffin and coal) and non-renewable biomass (fuel wood) utilized in rural areas. The activities proposed in the project are designed to remove barriers to the wide-scale utilization of renewable energy and low GHG technologies to meet the basic electricity needs of individual households in terms of lighting, power for radio-cassette/TV and income-generating activities. In turn, this project will help with the initiation of the intended renewable energy programme of the Government of Botswana and to encourage the development of the private sector industry in the provision of renewable energy in the country.
 
The RE Botswana Programme has been designed around the following 6 Components:

1.    Delivery of technology packages: implementation of different delivery models targeting different end-user groups and making use of different PV and fuel efficient appliance-based technology packages.

2.    Policy support and policy framework: To assist with the development of policy and institutional arrangements conducive for the integration and provision of off -grid electricity services.

3.    Awareness raising and changing of perceptions: To increase awareness and change perceptions among the general public, decision-makers and rural consumers on the potential role of PV and other renewable energy options in meeting basic energy needs.

4.    Private and public sector strengthening and training: To strengthen and support the public and private sector working in the PV and renewable energy sector to provide better quality of service.

5.    Financial engineering: To assist with the development of appropriate financing mechanisms for the larger scale dissemination of PV-based technologies to rural customers.

6.    Learning and replication: To disseminate experience and lessons learned to promote rapid implementation of rural electrification based on renewable and low GHG technologies throughout the country.

In order to provide the legal and institutional frameworks to effectively engage the private sector energy services, within the programme will be delivered through a Business Format Franchise. The Franchise, named BPC-Lesedi, will be owned and operated by BPC and a Strategic Partner through a Joint Venture Company - a ‘not for profit’ entity. The Strategic Partner will have special interests in social and environmental investment.

The franchisee network established by BPC-Lesedi will include small privately owned energy service companies providing products and services to households, government and business. The products and services will include:

• A Solar Charging Service sub-franchise - This micro-enterprise package will retail rechargeable electric lanterns and batteries and provide recharge-for-a-fee services;
• A Small Solar Electric System - providing power for 3 to 5 lights and low power appliances such as radios or cell phones;
• A Larger Solar Electric System - with power to supply 5 to 6 lights, a radio, a television and/or small refrigerator.  

In all cases these lighting and power options will be available packaged with efficient cooking appliances including improved efficient wood stoves and heat retention devices (hot bags) thereby ensuring an available complete energy package. Different ownership and financing models will be used depending on the nature of the product or service. In the case of the Solar Charging Service sub-franchise, the package will be purchased by local entrepreneurs with the option of finance available through a local financial institution. The Rechargeable Electric Lanterns and efficient cooking appliances will be purchased by customers and it is envisaged that finance will not be required. In the case of the Solar Electric Systems, these will be provided on a fee-for-service basis where customers will not purchase the system but will pay an initial ‘joining’ fee followed by a fixed monthly rental charge. In return, the system will be installed and maintained at no additional cost. This will ensure that the systems will always be in good operating condition

The overall objective of this Mid-Term Review is to review progress towards the achievement of the project objectives and outputs, identify strengths and weaknesses in implementation, assess the likelihood of the programme achieving its objectives and delivering its intended outputs, within the current timeframe and, where relevant, provide recommendations on modifications to increase the likelihood of success.

The report of the Mid-Term Evaluation will be disseminated for review to the executing and implementing agencies, national stakeholders and other partners of the project.  Upon finalization, it will be forwarded to UNDP/GEF Regional and Head Offices, as well as to the GEF Evaluation Office for purposes of capitalizing the gained experiences.

• Lead and manage the evaluation mission;
• Design the detailed evaluation scope and methodology and approach;
• Ensure efficient division of tasks with the national consultant;
• Conduct the outcome evaluation in accordance with the proposed objective and scope of the evaluation;
• Draft and communicate the evaluation report;
• Finalize the evaluation report in English and submit it to UNDP.

The Evaluation will address the project’s achievements according to the following Project Review criteria:

Assess progress towards attaining the project’s environmental objectives and outcomes. This should include the extent to which the project is likely to contribute to:

• Reduction of Botswana’s energy related CO₂ emissions and improved access to energy services for rural population;
• delivery of appropriate, reliable and accessible PV and efficient appliance-based technology packages.
• Policy and Institutional arrangements conducive to the integration and provision of off-grid electricity services;
• Strengthened Public and Private sector working in the PV and renewable energy sector to provide a better quality of services to rural areas;
• Improvement to quality of life (health and employment creation through access to and affordability of modern energy services);
• Appropriate financing mechanism for dissemination of PV-based technologies to rural customers and
• Dissemination of experiences and lessons learned to promote rapid implementation throughout the country for rural electrification, based on renewable and low GHG technologies.

• Review the clarity of roles and responsibilities of the various individuals, agencies and institutions and the level of coordination between relevant players.
• Assess the level to which the Logical Framework Approach (LFA) and performance indicators were used as project management tools;
• Evaluate any partnership arrangements established for implementation of the project with relevant stakeholders involved in the countries/region;
• Describe and assess efforts of UNDP in support of the implementing agencies, regional and national institutions;
• Make recommendations as to how to improve project performance in terms of effectiveness and efficiency in achieving impact on institutional and capacity development and the targeted conservation concerns.

• Assess the extent to which the representatives of the participating country (including governmental officials, civil society, etc.) are actively involved in project implementation.

• Assess whether the government and other partners have maintained financial commitments to the project and undertake a reconciliation of the co-financing pledged and realised.

• Assess the level of public involvement in the project and comment as to whether the scope of public involvement has been appropriate given the broader goals and objectives of the project;

• Review and evaluate the extent to which project benefits have or will reach the intended beneficiaries.

• Assess the likelihood of continuation of project outcomes/benefits after completion of GEF funding; and
• Describe the key factors that will require attention in order to improve prospects for sustainability of project outcomes. Factors of sustainability that should be considered include; institutional capacity (systems, structures, staff, expertise, etc.) social sustainability, policy and regulatory frameworks that further the project objectives, financial sustainability.

• Describe the main lessons that have emerged in terms of: strengthening country ownership/drivenness; strengthening stakeholder participation; institutional structure and capacity building; application of adaptive management strategies; efforts to secure sustainability; knowledge transfer; and the role of M&E in project implementation. In describing all lessons learned, an explicit distinction needs to be made between those lessons applicable only to this project, and lessons that may be of value more broadly.
• Make recommendations on how the lessons and experience can be incorporated into the design of similar initiatives in the future.

• Assess the financial control systems, including reporting and planning, that allowed the project management to make informed decisions regarding the budget;
• Assess the extent to which the flow of funds had been proper and timely both from UNDP and from the project management unit to the field;
• Evaluate the extent of due diligence in the management of funds and financial audits.

• Assess compliance with the incremental cost criteria (GEF funds used to finance a component of the project that would not take place without GEF funding and securing co-funding and associated funding); and
• Assess the extent to which the project has completed the planned activities and met or exceeded the expected outcomes according to schedule and as cost effectively as initially planned.

• Review the project’s reporting systems and their efficiency; and
• Review the implementation of the project’s monitoring and evaluation plans including any adaptation to changing conditions (adaptive management) – and specifically, assess whether the lessons, insights and recommendations of the mid-term evaluation were applied successfully to re-direct the project.

PRODUCTS EXPECTED FROM THE EVALUATION
The evaluator will present a final report to UNDP employing the headings outlined in these TORs (Annex I). The Report will include an Executive Summary summarising the main findings, lessons and recommendations. The evaluation will include ratings<!--[endif]--> on the following aspects

• Sustainability,
• Outcome/achievement of the objectives,
• Implementation approach.

The ratings will be Highly Satisfactory, Satisfactory, Marginally Satisfactory, Unsatisfactory and N/A as defined in the most updated “Guidelines for Implementing and Executing Agencies to Conduct Terminal Evaluations” of the GEF Evaluation Office (2007).

If applicable, field visits to project sites will be undertaken to monitor the progress in delivering the intended energy services to the rural customers.

• Proven expertise in evaluating multifaceted programmes/projects and results-oriented monitoring and evaluation;
• A thorough understanding of the rural energy sector and related issues in Sub-Saharan Africa and proven knowledge of issues/barriers preventing the widespread use of Solar PV technology in the region;
• Excellent analytical and reporting skills and fluency in written and spoken English are essential;
• Demonstrated ability to assess complex situations in order to succinctly and clearly distil critical issues and draw forward looking conclusions.

The International consultant (Team Leader) will be an independent, duly qualified and experienced professional conversant with the development context of Southern Africa. He/She will have a wide range of skills, including:

• Evaluation specialist with at least a Master’s degree in Renewable Energy, Environment, International Development, Engineering or other relevant field;
• A minimum of ten (10) years of relevant work experience in the field of renewable energy, particularly Solar PV and sustainable development. Relevant experience in Southern Africa will be added advantage;
• Proven knowledge of and experience with business development (SMEs, Franchising, etc.), public-private partnership and microfinance will represent a distinctive advantage;
• Previous experience in evaluating programmes/project for UNDP or other UN/multilateral agencies is essential; previous experience evaluating GEF projects will be a distinctive advantage;