English - UNDP

United Nations Development Programme 

Tajikistan 

Local Governance 

and Decentralization 

Project Assessment 

The DGTTF Lessons Learned Series

Tajikistan 

Local Governance and Decentralization 

Project Assessment

Author: Tomislav Novovic 

Project coordination: Darko Pavlovic 

Designer: Keen Media (DGTTF Series); of this report, Phoenix Design Aid 

UNDP Disclaimer: The views expressed in this publication are the authors’ 

and do not necessarily represent those of the United Nations, including UNDP, 

or its Member States. 

For further information please contact: 


Regional Centre in Bratislava 

Grosslingova 35 

811 09 Bratislava 

Slovak Republic 

europeandcis.undp.org 


Bureau for Development Policy 

Democratic Governance Group 

304 East 45th Street, 10th Fl. 

New York, NY 10017 

Oslo Governance Centre 

Inkognitogata 37, 0256 Oslo, Norway 

www.undp.org/governance 

www.undp.org/oslocentre 


Tajiskistan 

39 Aini Street 

Dushanbe 

Tajikistan 

www.undp.tj 

Copyright ©2011 by the United Nations Development Programme. All rights reserved.

Table of 

Contents 

4 Acknowledgements 

5 Preface 

6 Executive summary 

9 Introduction 

9 Purpose, scope and methodology 

10 Structure of the report 

11 Country context 

11 Socio-economic situation 

12 Local governance system in Tajikistan 

12 Legal framework 

13 Financing of local government in Tajikistan 

15 Project Clean Start for Local Councils – 

Building Accountability at the Local Level (2006) 

15 Relevance 

15 Effectiveness 

16 Efficiency 

16 Innovation 

16 Catalytic effect 

16 Sustainability 

17 Gender 

18 Project Building National Capacities for Implementation 

of Poverty Reduction Strategies (2007) 

18 Relevance 


19 Efficiency 

19 Innovation 



20 Gender 

21 Project Building a Framework for Local Planning 

and Budgeting (2008) 

21 Relevance 


21 Efficiency 

22 Innovation 



22 Gender 

23 Lessons learned and recommendations 

25 Annex I: Codification of tools and instruments used 

26 Annex II: List of persons interviewed 

27 Annex III: Bibliography


Acknowledgments 

This report is published by the Regional Centre in Bratislava, in cooperation with 

the UNDP Democratic Governance Group through the Oslo Governance Centre, 

with funding from the UNDP Democratic Governance Thematic Trust Fund. The 

Regional Centre and the Oslo Governance Centre are grateful to the author, 

Tomislav Novovic, the language editor, Tom Woodhatch, and all those who were 

interviewed and consulted in the preparation and writing of this assessment report, 

who are listed here in alphabetical order: Abdugani Mamadazimov, Abdushukur 

Nazarov, Ali Aliev, Alijon Isoev, Dzamsir Nozirov, Halimov Rustam, Ibodullo Fattoev, 

Jamil Oglukov, Jan Bernard De Milito, Malika Boymuradova, Maqsud Aripov, Mirzo 

Olimov, Munirjon Aminov, Rastislav Vrbensky, Rustam Babajanov, Umed Davlatzod, 

Yusuf Kurbonkhojaev, and the project beneficiaries from the water supply project 

in Isfara. Also, we would like to thank Artur Ayvazov, Clare Romanik and Henri 

Schumacher. Javier Fabra has provided invaluable support to the coordination of 

this publication series. The project was coordinated by Darko Pavlovic. 

May 2011 

4

Tajikistan Project Assessment 

Preface 

The Millennium Declaration from the Millennium Summit in 2000 emphasizes 

the centrality of democratic governance for the achievement of the Millennium 

Development Goals (MDGs). World leaders agreed that improving the quality of 

democratic institutions and processes, and managing the changing roles of the state 

and civil society in an increasingly globalized world, should underpin national efforts 

to reduce poverty, sustain the environment, and promote human development. 

The Democratic Governance Thematic Trust Fund (DGTTF) was created in 2001 to 

enable UNDP Country Offices to explore innovative and catalytic approaches to 

supporting democratic governance on the ground. The DGTTF Lessons Learned 

Series represents a collective effort to capture lessons learned and best practices 

in a systematic manner, to be shared with all stakeholders, to serve as an input 

to organizational learning, and to inform future UNDP policy and programming 

processes. 

5

planning, and in the management and implementation of local 

development projects. The project strived to enhance local 

accountability, increase access to rural finance, and improve 

infrastructure and the delivery of basic services. 

Executive 

summary 

This report contains the findings of a review of three projects, 

funded by the Democratic Governance Thematic Trust Fund 

(DGTTF), in Tajikistan in 2006, 2007 and 2008. The review was 

conducted by an independent consultant. The projects were 

part of UNDP’s broad efforts to support the development of local 

governance and provide assistance to regional development 

in Tajikistan. 

The review examined the projects’ impacts within the context 

of history and political processes, relating specifically to local 

governance and regional development. It focused on the 

projects’ effectiveness, efficiency, innovation, catalytic effect, and 

sustainability. The report considers key underlying factors, drivers, 

and future scenarios, which provide a basis for determining the 

projects’ impact. 

Tajikistan is among the world’s least accessible countries. Its 

high, mountainous terrain and remoteness, compounded by 

a lack of infrastructure and a weak governance and regulatory 

framework, are significant barriers to external trade, connectivity, 

and investment. Its post-independence civil war (1992-97) 

resulted in substantial economic and human losses. The country 

remains the poorest of the former Soviet Union republics. 

About 53 percent of the total population, and up to 70 percent 

of people in isolated rural and mountainous areas, live below 

the poverty line. 

UNDP Tajikistan used a multi-sector approach to address poverty, 

rural, and local development. Work on poverty alleviation, 

decentralization, and local governance began in the aftermath 

of the civil war, and continued with the flagship intervention 

of UNDP Tajikistan Communities Programme (2004-2012). This 

programme supported the stated goals of the Government 

of Tajikistan to improve participatory processes by enhancing 

opportunities for community participation in local development 

The three projects supported through the DGTTF were integrated 

into a large UNDP Tajikistan poverty, rural development, and 

local governance portfolio, and were implemented within the 

Communities Programme framework. 

The first project, Clean Start for Local Councils – Building 

Accountability at the Local Level, began in 2006 with a 

total DGTTF contribution of US$200,000. It was designed to 

strengthen the capacity of local councils to perform their 

functions professionally, transparently, and accountably. The 

project also supported citizens’ participation in local decisionmaking 

processes through citizens’ report cards and the 

introduction of a Citizen Charter. The project helped to establish 

participatory planning mechanisms in the pilot districts. 

The project promoted an innovative approach to the delivery of 

public services by introducing new tools, such as citizen report 

card surveys and citizens’ charters. It also worked to build the 

capacity of district councils to comprehensively implement 

new functions deriving from the reformed legal framework. 

The project was implemented using the Communities 

Programme management and operational structure. This 

contributed to its effectiveness and efficiency, and all planned 

results were achieved within the planned timeframe. 

Its catalytic effect is found in its extension to the multi-donor 

funded Communities Programme (2007-2009). This programme 

had a total budget of around US$22 million, and was funded by 

UNDP, DFID, Asian Development Bank, CIDA, and GTZ. 

The participation of national partners in all project activities 

contributed towards a high level of sustainability. In addition, 

the Strategic Research Centre and the Institute for Civil Service 

Training adopted project results into their regular work and 

continued with implementation. 

DGTTF supported another project in 2007, Building national 

capacities for implementation of poverty reduction 

strategies, with US$130,000. This project developed a capacity 

development programme for elected representatives and civil 

servants from district and jamoat levels (third-level administrative 

divisions, similar to communes) to promote strategic planning 

for socio-economic development. This enabled district 

development plans to be prepared in three districts of Zarafshan 

Valley. In addition, the project assisted with the improvement of 

6


the government’s information systems for planning, monitoring 

and evaluation of public policy. 

The project began on time and achieved all its planned 

objectives. It introduced a unique and innovative approach in 

Tajikistan in preparing district development plans. These applied 

a participatory approach to identifying strategic priorities and 

establishing transparent implementation mechanisms. For the 

first time, a monitoring system based on specific local indicators 

(aligned with NDS/PRSP indicators) was introduced, and financial 

resources for implementation of priorities were identified. 

A new mechanism for donor aid coordination was supported 

by developing a comprehensive information system, collecting 

data from jamoat, district, and national levels on a wide range 

of issues. 

The project offered a catalytic springboard for a further phase 

of the Communities Programme: Building a Framework for Local 

Planning and Budgeting. Funding for this came from the DGTTF, 

the UK Department for International Development, and the 

Canadian International Development Agency. 

Partnership between UNDP and key national stakeholders 

were strengthened further. This is reflected in the cooperation 

agreements signed between UNDP and the Ministry of Economic 

Development and Trade, the Strategic Research Centre, the 

Institute for Civil Servants Training, the Ministry of Finance, the 

State Statistic Committee, the Ministry of Labour and Social 

Protection, and the Parliament. 

The DGTTF provided US$150,000 for a third project, Building 

a Framework for Local Planning and Budgeting. This 

contributed to the development of a comprehensive Programme 

of Reform of Tajikistan’s Planning, Budgeting, and Monitoring 

and Evaluation Methodology at district and regional levels. It 

also worked on a Guidelines and Training Curriculum for the 

new methodology, and enhanced the capacities of 220 district 

and regional officials to work with the new procedures. 

a The project was effective in delivering results through 

the Methodology for Planning, Budgeting, and Monitoring 

and Evaluation at District and jamoat level, backed up 

with a methodological guidelines and a training/mentoring 

programme for planning, budgeting, and monitoring 

and evaluation. 

a The project was implemented efficiently through the existing 

structure of the country programme’s head office in 

Dushanbe and area offices. 

a The project was highly innovative by introducing a new 

implementation approach to planning and budgeting in 

Tajikistan. This new approach was reflected in the Methodology 

for Planning, Budgeting and Monitoring and 

Evaluation at district and jamoat levels. 

a The project supported the implementation of a new 

planning and budgeting practice. For the first time in 

Tajikistan, national, (horizontal) and district and jamoats 

(vertical) planning and budgeting processes were integrated 

and coordinated. 

a The catalytic effect was recognized as the project expanded 

the scope of the Communities Programme to 

public administration. 

a The project team was institutionalized in the Ministry 

of Economic Development and Trade. The initial DGTTF 

project was followed up with a larger UNDP project (US$3 

million core funding), financed from UNDP’s own resources. 

Within the framework of this larger project, UNDP in 

partnership with the Ministry of Economic Development 

and Trade, expanded activities throughout the country by 

providing technical assistance to the new planning and 

budgeting model. 

a The engagement of regional authorities and national 

actors in introducing a standard participatory planning 

methodology was recognized as a key priority for 

Tajikistan. The methodology’s sustainability in preparing 

district development plans was strongly supported by 

national institutions. 

a The sustainability of training programmes for strategic 

planning, participatory budgeting, poverty mapping, and 

monitoring was ensured, as they were adopted by the Institute 

for Civil Service Training for its regular curricula for 

professional advancement of civil servants. 

Key lessons learned 

a The Citizens’ Report Cards activities represent an effective 

approach to articulating public perceptions of the performance 

of public services. However, local authorities 

directly concerned with the results of the citizens’ report 

cards were not able to bring about change or invest in 

service improvement. This activity should, therefore, be 

implemented as a part of a broader decentralization 

process, which should strengthen both downward and 

upward accountability within the governance structures. 

a Successful data-collection systems require national lead- 

7


ership and ownership, and should be part of the overall 

effort to increase the transparency and accountability 

of public management. Involvement of the national offices 

for statistics is crucial in ensuring that data collection 

methods, along with monitoring and evaluation, are 

properly integrated into the overall system of statistics 

and reporting at all levels. 

a Engagement of all key stakeholders in preparing the 

methodology for district development planning is crucial. 

It ensures that the critical views and comments from the 

national and regional decision makers are reflected and 

included. 

a A clearer link should be established between the financial 

resources needed for the implementation of district 

development plans and budget planning at the national 

level. 

a The sustainability of a participatory planning concept at 

the district level should be ensured. The district development 

councils should, therefore, be transformed into a 

more meaningful and sustainable institutionalized form 

of (district) development planning. 

a To facilitate horizontal learning and improve access to, 

and exchange of, knowledge developed during projects, 

it is recommended that DGTTF management works with 

the relevant regional service centre to establish a userfriendly 

knowledge management system. 

a Changes in the DGTTF implementation framework (extended 

duration of projects and increased budgets) will 

require a robust monitoring system. Given the two-year 

project period, it is recommended that mid-term reviews 

take place after the first year of implementation. 

8

Specifically, the project was designed to support the preparation 

of regional development plans, which reflected local and 

regional development priorities. At the same time, links with 

the national strategic framework and financial resources were 

established. 

The second and the third projects are interlinked and it is difficult 

to review one without also considering the other. While the two 

projects are presented separately, the similarities are evident. 

Introduction 

Purpose, Scope and Methodology 

The Democratic Governance Thematic Trust Fund (DGTTF) 

was created in 2001 to provide an opportunity for UNDP 

Country Offices to undertake innovative activities that could 

have a catalytic effect in supporting sustainable democratic 

governance. 

Within a broader range of UNDP activities in Tajikistan, the 

country office implemented three local governance projects, 

funded by the DGTTF, in 2006, 2007 and 2008. 

The first project, Clean Start for Local Councils – Building 

Accountability at the Local Level, with total DGTTF 

contribution of US$200,000, was designed to strengthen the 

capacity of local councils to work professionally, transparently 

and accountably. In addition, the project supported citizens’ 

participation in local decision-making processes through the 

implementation of citizens’ report cards and the introduction 

of a Citizens’ Charter. The project supported the establishment 

of participatory planning mechanisms in the pilot districts 

embodied in the District Development Councils. 

The second project, Building National Capacities for 

Implementation of Poverty Reduction Strategies, supported 

with US$130,000 funding from DGTTF, was designed to address 

development challenges at the district level by establishing 

district development plans, and connecting district authorities 

to civil society and the private sector. The project also worked 

to increase district authorities’ knowledge of budget planning 

and financial management, and to enhance capacities for aid 

coordination, especially with international donors. 

The third project, Building a Framework for Local Planning 

and Budgeting, also supported with US$150,000 from the 

DGTTF, built on the achievements of the second project. 

The purpose of this study is to assess the impact of these 

projects within the criteria of effectiveness, efficiency, innovation, 

catalytic effect, and sustainability, defined according to these 

DGTTF guidelines: 

a Relevance – How relevant is the project to the country’s 

priority needs, and was the right strategy applied within 

the country’s specific political, economic, and social contexts? 

a Effectiveness – Effectiveness is a measure of the extent 

to which an aid activity attains its objectives. 

a Efficiency – Efficiency measures the outputs in relation 

to the inputs. Were activities cost-efficient and were objectives 

achieved on time? 

a Innovation – Innovative projects address recognized 

critical democratic governance issues that, if resolved, 

may lead to substantial improvements in democratic 

governance. They are initiatives, in terms of the problem 

addressed or the approach taken, that have never before 

been attempted in a given country. And although they 

may be potentially risky or less certain of success than traditional 

projects, they will position UNDP as a key player 

in democratic governance, one that ‘pushes the frontier’. 

a Catalytic effect – A catalytic project has a high likelihood 

of receiving support from government or other governance 

institutions (including other donors) for scaling up 

or following up, if the project is successful. 

a Sustainability – Sustainability is concerned with measuring 

whether the benefits of an activity are likely to continue 

after donor funding has been withdrawn. Projects 

also need to be financially sustainable. 

The methodology utilized for this study consists of a preliminary 

literature review of all available project documents and reports, 

a political economy analysis of the situation in Tajikistan, and a 

field visit to Dushanbe and Sughd province. 

9

Structure of the report 

The report is structured in four sections, in the following manner: 


a In order to situate the DGTTF projects assessed in this 

report, the first section, Country Context, presents an 

overview of the socio-economic situation as well as the 

local system in Tajikistan. 

a The second, third and forth sections provide an analysis 

of the impact of the DGTTF projects Clean Start for 

Local Councils – Building Accountability at the Local 

Level (2006), Building national capacities for implementation 

of poverty reduction strategies (2007) and 

Building a Framework for Local Planning and Budgeting 

(2008), following the above-mentioned criteria. 

a Finally, lessons learned and recommendations are presented 

in the fifth section. 

10

sustainable national development 2 . Following the PAR Strategy, a 

new public administration system for the country was adopted 3 , 

and work on reorganizing public entities and institutions began. 

Country 

context 

A small, landlocked nation with a population of about 7.2 million, 

Tajikistan is one of the world’s least accessible countries. Its high, 

mountainous terrain and remoteness are compounded by a 

lack of infrastructure and a weak governance and regulatory 

framework. These are significant barriers to external trade, 

connectivity, and investment. It remains the poorest of the 

countries that emerged from the former Soviet Union and its 

fragile economy, still heavily reliant on agriculture, aluminium, 

and hydroelectric power – as well as on its neighbours, especially 

Uzbekistan, for international trade and transit – is vulnerable to 

unexpected shocks, such as the severe 2007-08 winter, the 2007 

upsurge in world food and fuel prices, and, more recently, the 

global economic crisis. Its post-independence five-year civil war 

(1992-97) resulted in significant economic and human losses 

amounting to an estimated 60 percent of GDP, and up to 50,000 

deaths, and greatly complicated its initial economic transition. 

Tajikistan is a presidential republic, with a bicameral legislature. 

The heavily centralized country is led by the President, Imomali 

Rahmon. The People’s Democratic Party of Tajikistan, led by the 

President, won the February 2010 general election with 71.04 

percent of the vote, and controls both houses. Real power 

is concentrated in the executive rather than the legislative 

branch of government. The role of civil society in politics, policy 

development, and decision-making processes remains weak. 

The public sector is also weak. Many public institutions are 

inefficient, lacking accountability and transparency in financial 

management and internal controls. The systems, procedures, and 

capacity to fight corruption are frail, and the legal and regulatory 

frameworks remain underdeveloped. The government has, 

though, attempted to deal with these deficiencies. In March 

2006, it adopted the Public Administration Reform Strategy 

of the Republic of Tajikistan 1 (2005-2015), whose goal was to 

develop an effective public administration system as a basis for 

Corruption remains one of the most serious problems for 

Tajikistan. One of the first steps taken to address the issue 

was the OECD’s Anti-Corruption Plan, adopted in Istanbul in 

2003 4 . The government developed the National Anti-Corruption 

Strategy, 2008 – 2012, as a nationwide anti-corruption plan. The 

State Committee on Financial Control and Fighting Corruption 5 

is responsible for implementing the anti-corruption measures. 

Socio-economic trends and developments 

Tajikistan’s macroeconomic performance has improved steadily 

in recent years. It has seen GDP grow at 8 percent annually, 

declining inflation, greater fiscal discipline, and a manageable 

external debt. Growth was fuelled mainly by high world prices 

for aluminium and cotton, Tajikistan’s principal exports, and by 

remittances. 6 The economy is gradually diversifying, and this is 

reflected, inter alia, in the much smaller share of aluminium and 

cotton in value added products 7 , and an increase in the output 

of non-traditional products. But Tajikistan remains the poorest 

of the former Soviet Union republics, with income per capita 

reaching just US$2,020 in 2010 8 . It has made progress in terms 

of enabling the business environment 9 , but efforts are still far 

below those of neighbouring countries 10 . Poverty has declined 

since 1999 (from 72.4 percent in 2003 to 46.7 percent in 2009 11 ), 

but still remains high. About 53 percent of the population, 

rising to 70 percent in isolated rural and mountainous areas, 

lives below the poverty line 12 . 

1 

Approved by Presidential Decree No. 1713 on 15 March 2006. 

2 

Specific objectives are to i) Increase effectiveness of the national development 

management: ii) Improve public administration in line with the market economy 

principles; iii) Increase effectiveness of the public finance management; iv) Form 

modern professional civil service; v) Develop administrative and territorial management; 

vi) Form local self-governance capable to provide qualitative services to 

the population. 

3 

Presidential Decree 541 (September 2008). 

4 

http://www.oecd.org/dataoecd/51/3/37228458.pdf Last access: 26 April 

2011. In particular, the Istanbul Action Plan of the ACN creates a peer review 

mechanism for a group of ex-Soviet countries. Tajikistan made its first status 

report to the group in January 2004, and remains committed to implement 

the resulting 21 recommendations. 

5 

Signed by the President on 24 January 2008. 

6 

Remittances rose from $82 million (5% of GDP) in 2003 to $2.6 billion (50% 

of GDP) in 2008. 

7 

10% in 2006 compared to 30% in 2000. 

8 

Compared for example with USD 2291 Kyrgyzstan and 3,084 Uzbekistan for 

more details ref. to: http://hdrstats.undp.org/images/explanations/TJK.pdf 

Last access: 26 April 2011. 

9 

World Bank’s Doing Business 2011 report showed improvement from 149 in 

2010 to 139 in 2011. 

10 

For example: Kazakhstan (59) and the Kyrgyz Republic (44). 

11 

MDG Progress Report. 

12 

Projections based on World Bank. 2008. Tajikistan Living Standards Measurement 

Survey, 2008. Washington, DC. 

11


Since early 2009, the global economic and financial crisis has 

negatively affected Tajikistan’s fragile economy. Remittances from 

migrant workers fell by almost 15 percent 13 , affecting private 

consumption, reducing imports, and reducing construction 

activities. In addition, labour migrants returning to Tajikistan, 

mainly from Russia, are placing new demands on public services 

and pressurizing the country’s social fabric 14 . As a result, poverty 

rates are likely to increase in the short to medium term. Job 

creation and fiscal stimulus measures are challenging under 

current macroeconomic conditions. 

The fundamental challenge facing economic policy and future 

reforms in Tajikistan is to ensure an acceptable post-crisis 

growth for the economy, to alleviate poverty, and to increase 

employment. 

In 2005, the government, in partnership with UNDP, undertook 

a detailed assessment of resources needed to achieve the 

MDGs. A key conclusion highlighted a large resource gap and 

recommended donors to double aid to help the country to 

meet its MDG targets by 2015. The assessment formed a basis 

for alignment of national development strategies and policies 

with MDG priorities. 

Following this assessment, the Government of Tajikistan, 

with UNDP’s support, designed and adopted the National 

Development Strategy 15 2006-2015. This strategy focuses on 

three interlinked goals: (a) promotion of sustainable economic 

growth, (b) improvement of public administration, and (c) 

development of human resources. 

Two poverty reduction strategies (2004-2006 and 2007- 

2009) were also developed to help implement the National 

Development Strategy. The government subsequently 

adopted a third poverty reduction strategy (2010-2012), which 

included an action plan with much more realistic and focused 

targets. However, implementation of that action plan remains 

challenging, as there are no direct links between the strategic 

framework and financial resources from the national budget. 

Local governance system in Tajikistan 

Legal framework 

The administrative and territorial structure of the Republic of 

Tajikistan did not change after independence from the Soviet 

Union. It is still determined by the country’s administrativeterritorial 

structure 16 , defined in the Law on Local Government 

and the Order of Formation and Restructuring of the 

Administrative-Territorial Units. 

Tajikistan’s territory is divided by regions (oblasts) that, in turn, 

are sub-divided into districts, towns and villages. The Gorno- 

Badakhshan Autonomous Region is a special territorial and 

administrative unit with more autonomy than Sughd and 

Khatlon regions. Among the country’s administrative and 

territorial units, only the Gorno-Badakhshan Autonomous 

Region enjoys the right of legislative initiative. Formation and 

abolishment of regions is the responsibility of Parliament, when 

requested by the government. 

The administrative structure has another specific feature: 13 

districts do not have a regional authority, but are directly ruled 

by the centre, including three towns, 91 jamoats and three 

settlements. This is because these districts are located close to 

the centre. In most cases, towns are directly accountable to 

regions and the central government 17 . 

The local government structure is organized as follows: 

a The community level: village and town governments in 

rural areas (jamoat, shakhrak and dekhot). 

a The district level: administrations of cities and districts 

(rayons) subordinated to regions (oblasts), four Dushanbe 

city districts subordinate to Dushanbe city government 

as well as those of thirteen districts directly subordinate 

to the Republic. 

a The regional level: administrations of Dushanbe, the Gorno-Badakhshan 

Autonomous Region, and Khatlon and 

Leninabad regions, all of which are directly subordinate 

to the national government. 

Local authorities consist of representative and executive bodies 

that act within their terms of reference. Representative bodies 

in regions, cities and districts are assemblies (majils) whose 

delegates are elected for a period of five years. The khukumat is 

the assembly’s executive body. Both the representative and the 

executive bodies are headed by a chairman, who is appointed 

by the president and approved by an assembly 18 . In contrast, 

13 

The Country Partnership Strategy for Tajikistan 2010-2014 by the Asian Development 

Bank 

14 

According to the Asian Development Bank Country Partnership Strategy 

2010-2014, the number of labour migrants returning to Tajikistan is estimated 

at 460,000. 

15 

http://www.untj.org/principals/files/nds/nds_first_draft.pdf- National Development 

Strategy for the Republic of Tajikistan 2006-2015. Last access: 26 

April 2011. 

16 

Art. 76-80 and 83 of the Constitution of the Republic of Tajikistan. 

17 

These are so-called ‘direct rule towns’, which have a population of less than 

200,000, but are of significant administrative, industrial and social and cultural 

importance. However, the legislation does not clearly define the concept of 

‘republican importance’ and ‘direct republican rule’. 

12


Figure 1 Administrative and territorial structure of the Republic of Tajikistan 

Republic of Tajikistan 

GORNO- 

BADAKHSHAN 

Autonomous Region 

7 districts and 

1 city 

KHATLON 

Region 

24 districts 

3 direct rule districts 

1 town of region rule 

SUGHD 

Region 

14 districts 

7 cities of region rule 

13 direct rule districts 

3 direct rule cities 

43 jamaots 

130 jamoats 

6 settlements 

20 urban type settlements 

113 jamoats 

91 jamaots 

3 settlements 

the village-level local administration is represented by a directly 

elected village jamoat. 

The way that local government functions is defined by the 

Constitution, the Law on Local Public Administration, and the 

Law on Local Self-Government in Villages and Towns. 

Local governments’ functions are categorized as their own 

(exclusive), delegated, joint, and those functions based on 

voluntary initiatives. Local governments have their own 

responsibilities and can propose initiatives, make decisions, and 

implement activities autonomously. Any issues not previously 

delegated to other authorities and involving local interests are 

referred to the local government. In addition, the Constitution 

grants local governments some authority to develop and 

implement their own budgets in coordination with national 

institutions, and to establish local fees, taxes, and duties. The 

Law on Local Public Administration allocates income tax to local 

budgets, to be utilized for the social needs of the territory in 

keeping with the Law on Social Insurance. 

The Constitution states that a jamoat is an institution of selfgovernment 

in towns and villages. The framework for their 

authority is set forth in the Law on Local Self-government in 

Towns and Villages 19 . Jamoats are formed on a territorial basis 

and possess legal status and an official seal. Town or village 

self-government revenue sources include budget allocations 

from city or regional councils, voluntary donations from citizens, 

and working collectives. 

The Law on Self-Activity and the Law on Public Association 

(kishlak – village organizations 20 ) regulate the workings of local 

self-government institutions 21 . 

Financing local government in Tajikistan 

Distribution of responsibilities between the central and local 

governments, and the procedure of planning and operating 

local budgets, are defined by the Constitution, the laws on 

Self-Government Bodies in Settlements and Villages, on State 

Finance, and annual Public Budget laws. 

Article 5 of the law on State Finance of the Republic of Tajikistan 

deals with local budgets: a) the budget of the Gorno-Badakhshan 

Autonomous Region and its cities and districts, b) the budgets 

of regions, cities and districts of regional rule, c) the budget 

of Dushanbe and its districts, d) the budgets of directly ruled 

cities and districts, and e) the budget of jamoats. However, 

financial autonomy in Tajikistan can be considered only at the 

level of regions, cities and districts. Therefore, jamoats do not 

have financial autonomy and their basic expenses are financed 

from city and district budgets 22 . 

18 

The Assembly has a right to carry out a vote of no-confidence in the head 

and other officials of local administration. 

19 

In this law, local self-governance is described as “the system of organizing 

public activities to address issues of local importance autonomously and at 

their own discretion, directly or indirectly, in accordance with the legislation of 

Republic of Tajikistan. Local self-governments resolve issues within their competence 

directly or through their representatives.” 

20 

The Constitutional Law “On Elections to Local Councils (Madjlis) of People’s 

Deputies” was proposed and adopted in December 1999 (effective as of 2000). 

It reflects the new political realities and enables participation of political parties 

and community organizations in the election process. In addition, this 

law stipulated that the establishment of no less than 70 single-seat electoral 

constituencies for the elections of Gorno-Badakhshan Autonomous region, 

regional and Dushanbe city councils, and no less than 40 single-seat electoral 

constituencies for elections of district and city councils. 

21 

Currently active are makhallia (community) committees, microraion councils, 

housing block committees or other kishlak (villages). 

22 

According to the amendment made in the law in 2009, jamoats can have 

their own budgets with effect from 2011. But the mechanism for implementation 

of this amendment has not yet been developed. 

13


The Tax Code (2004) specifies the local tax revenues: property 

tax, transport tax, state duties, and retail taxes. However, all 

other taxes are national and are shared between central and 

local budgets 23 . This is done in accordance with the Public 

Budget law for the following year. Non-tax revenues and duties 

include the proceeds from privatization, the sale of shares, 

patent fees, dividends on government shares, interest on state 

capital investments, administrative fees, fines, and penalties. 

Local budgets also receive revenue in the form of targeted 

funds, bank loans, and transfers for mutual settlement or the 

reduction of budget deficits. 

The budgeting process is centralized, with the Ministry of 

Finance playing a key role. It determines, on the basis of norms 

and estimations and required subsidies, the revenues and 

expenditures of local budgets. The gap between expenses and 

generated revenues has to be covered by the annual review of 

national tax distribution between central and local budgets, as 

well as by subsidies. 

23 

Taxes are shared in accordance with the Public Budget law for the following 

year. 

14

Project 

Clean Start for Local Councils – 

Building Accountability at the Local 

Level (2006) 

Project title 

Clean Start for Local Councils – Building 

Accountability at the Local Level 

Duration January – December 2006 

transparency and accountability, as defined in the revised legal 

framework (e.g. the Law on State Administration strengthened 

the position of district councils in their budgetary and 

administrative oversight). The scope of the intervention 

was valid, appropriate, clear, coherent, and had a consistent 

set of objectives in line with national priorities. 

The real time assessment showed that the project remained 

highly relevant throughout its implementation. Its targets 

and results defined during the formulation phase were 

appropriate, and adjustments were not needed. By addressing 

key development priorities, such as strengthening of local 

councils, reform of public administration, anti-corruption, 

transparency and accountability in the public sector, results 

contributed towards the development of good governance 

in Tajikistan. 

Effectiveness 

The project was implemented effectively, and all planned results 

were achieved. 

Funding 

Aim 

Results 

US$200,000 from DGTTF 

Strengthen the capacity of local councils to 

better guide local policy development to ensure 

a professional level of self-government, with 

a minimum of corruption, and a maximum of 

accountability 

a Capacity development programme for newly 

elected district councils 

a Citizen Report Cards introduced to measure 

citizen satisfaction with public services 

(delivered by local governments) 

a Citizen charters introduced as a tool to increase 

accountability at the local level 

The project aimed to develop the capacities of newly elected 

district councils. Specifically, they worked to generate better 

performance, and to provide policy guidance to local councils 

by reflecting citizen satisfaction and measuring performance 

through citizens’ report cards. The project also worked to increase 

local government accountability and commitment through 

the introduction of a Citizens’ Charter. The project achieved all 

of its objectives. 

Relevance 

The project was evaluated on its design phase and real time 

relevance. 

There was a high level of design phase relevance. The 

project addressed the specific needs of newly elected 

local government structures in Tajikistan (at district and 

jamoat levels) to carry out their functions with increased 

The capacity development component provided technical 

assistance to district and jamoat-level civil servants in the five 

pilot districts (Isfara, Vahdat, Tavildara, Rasht, and Kolkhozobad) 

on topics related to public administration and local governance. 

The project also addressed capacity needs of elected councillors 

at the jamoat and district levels in those five districts, increasing 

their knowledge of decentralization, civic participation, strategic 

planning, and municipal budgeting. 

Citizen Report Cards were designed and implemented in 

the same five districts. Approximately 4,000 households 

participated in the survey (the first pilot district accounted 

for 900 households – 600 rural and 300 urban). The project 

supported the implementation of the post-survey actions, 

such as informing stakeholders of the survey findings, and 

defining and implementing activities to improve specific 

aspects of service delivery. At the project level, the population 

of the five pilot districts reported a marked improvement in 

the quality of communal services delivered in 2007 in areas 

identified by the Citizens Report Cards in 2006 as problematic 

in 2006. 

Citizens’ charters in the jamoats were prepared with the 

assistance of the Institute for Civil Servants Training. Support 

to citizen participation in local decision-making processes 

was strengthened by establishing district development 

councils in the pilot districts. These are multi-sector forums 

with representation from the public, private, and civil 

society sectors. Four projects were selected by the district 

15


development councils and supported with small grants of 

US$3,000 24 . 

Efficiency 

The project was implemented under the UNDP Direct Execution 

Modality, whereby UNDP Tajikistan took overall responsibility 

for its general and financial management. 

Implementation was efficient, with timely outputs and fund 

utilization. The implementation mechanism developed for the 

Communities Programme was used, and that further increased 

efficiency in terms of using available resources in the office. 

Innovation 

The DGTTF funds have enabled UNDP Tajikistan to strengthen 

local governance by creating partnerships between the public, 

private, and civil society sectors at the jamoat and district levels. 

The project addressed gaps in the capacity of district councils 

to comprehensively implement new functions arising from 

the reformed legal framework. It has also enabled UNDP to 

introduce innovative tools, such as citizen report card surveys 

and citizens’ charters, to improve public service delivery. 

The project applied the following innovative methodology 

and tools: 

a The project pursued a systematic approach to training, 

encompassing the following key elements: situation analysis 

and training needs assessment (focused on analysing 

the existing problem and identification of the training 

needs); design of training (including model and methodology, 

learning objectives, and the content of training 

based on the results of the analysis); implementation of 

training (including mentoring and on the job-training 

to ensure that the training is relevant and practical), and 

evaluation of training. 

a Citizen Report Cards were developed for the first time 

to reflect public perceptions of the Poverty Reduction 

Strategy through transparent and systematic analysis of 

public services. The mechanism was based on a survey 

of the actual users of public services: the feedback of the 

households on their experiences with public services was 

collected, analysed and disseminated. 

a Citizen charters were designed to complement the citizens’ 

report card system. They list services that local governments 

provide, along with information on fees and 

service charges, including the time required to complete 

a formal administrative procedure or provide requested 

service. 

Catalytic effect 

The Government of Tajikistan took firm ownership of the project 

and its immediate results. Activities initially implemented in 

five pilot districts were expanded to a further six districts. The 

Strategic Research Centre led implementation of the citizens’ 

report cards and citizen charters, while the Institute for Civil 

Service Training directed the capacity development programme. 

These activities were supported financially by UNDP, DFID, ADB, 

CIDA, and GTZ, through the multi-donor funded Communities 

Programme 2007-2009. The total project budget for this 

period was approximately US$22 million, while this particular 

component was supported with around US$3.5 million 25 . 

The District Development Committees established with support 

from the DGTTF project introduced development plans in the 

five districts. The follow up project, Building National Capacities 

for Implementation of Poverty Reduction Strategies (US$130,000), 

helped communities to identify development priorities through 

the interaction of public, private, and civil society sectors 

represented in the committees. This approach was expanded 

further in a large scale Rural Growth Programme (funded by 

DFID, UNDP, and GTZ). A total of US$5 million is allocated for 

the 2010 – 2012 Good Governance component, whose key 

focus is development planning for 14 districts and 65 jamoats. 

Sustainability 

The review of each project’s sustainability suggests a very high 

level of sustainability for elements of the project. 

Training for the Institute for Civil Servants adopted the 

programme used to train civil servants in the pilot districts. In the 

preceding three years, nearly four thousand civil servants from 

the central and local governments, as well as local authorities, 

were trained. Then, in 2009, the Institute for Civil Servants 

launched a Master’s Degree Programme in Public Administration, 

where 61 civil servants are now continuing their education 26 . 

The Institute for Civil Servants also took responsibility for 

implementing the Citizens Charters, which are now funded 

from national resources. 

Meanwhile, the President of Tajikistan’s Strategic Research Centre 

took over responsibility for the implementation of the Citizens 

24 

The approved projects were: the construction of an IP telephone station in 

Tavildara, the construction of a women’s hospital in Kolkhozobod, the rehabilition 

of a water supply system in Isfara, and the reconstruction of a women’s 

clinic in Vahdat. 

25 

UNDP (2009) : Outcomes Evaluation Report: Communities Program in Tajikistan, 

prepared by Ton de Klerk, Elena Krylova-Mueller. 

26 

The official presentation of the Institute for Improving the Qualifications of 

Civil Servants of the Republic of Tajikistan: www.dtixd.tj Last access: 26 April 

2011. 

16


Report Cards, and this has become one of its core services. It 

is driven and financed by the Strategic Research Centre and 

the survey reports are released regularly in each calendar year. 

District Development Councils were established as a model 

for inclusive and transparent decision-making. They brought 

together local stakeholders, including government, civil society, 

and the private sector around common development challenges. 

These councils built trust between government, civil society, and 

the private sector, as well as helping to include some groups 

that have traditionally had limited access to decision-making 27 . 

Gender 

Since gender indicators were not included at the project design 

stage, gender mainstreaming was difficult to assess. Therefore, an 

analysis of the gender dimension within this project was done 

indirectly, reviewing activities, processes and analysing outputs. 

The training delivery reports show that all training sessions had 

an equal number of women and men. The project also promoted 

a gender balance in the district development councils. It will 

be more challenging to identify how district development 

priorities and goals affect women and men differently, and 

how to promote gender equality in implementing the strategy. 

27 

e.g. opposition or small political parties. 

17

Project 

Building national capacities for 

implementation of poverty reduction 

strategies (2007) 

team with partners from the central and local level. The analysis 

included a review of results from the previous Communities 

Programme (including DGTTF projects) and the key objectives 

and priorities as highlighted in the national development 

framework 28 . Therefore, by addressing regional and district 

development discrepancies, capacity gaps at the district levels 

in planning, budgeting, and financial management, along with 

lack of aid coordination mechanisms at the district level, the 

project proved highly relevant. 

The project intervention remained valid and relevant throughout 

its implementation: its results and targets, defined during the 

formulation phase, remained relevant during its implementation 

and adjustments were not needed. 

Project title 

Building national capacities for implementation of 

poverty reduction strategies 

Effectiveness 

The project’s expected results were completed, contributing 

to the achievement of the overall objective. 


The project’s key achievements included: 

Funding 

Aim 

Results 


To address district development differences through 

participatory mechanisms for identification of 

development priorities 

a District Development Plans elaborated in three 

Zarafshan Valley districts 

a Comprehensive capacity development 

programme for elected representatives and civil 

servants from the district and jamoat level 

a Improvement of the government’s information 

systems for planning, monitoring and evaluation 

of public policy 

The project aimed to address district development differences 

through participatory mechanisms for identifying development 

priorities. Specifically, it facilitated preparation District 

Development Plans in three Zarafshan Valley districts, using 

a participatory approach. In parallel, the project worked to 

enhance the capacities of elected representatives and civil 

servants from the district and jamoat levels to prioritize poverty 

reduction activities. At the national level, the project supported 

improvement of the government’s information systems for 

planning, monitoring, and evaluation of public policy. The 

project achieved all its objectives. 

Relevance 

The project was designed coherently and based on a detailed 

participatory approach involving stakeholders (target groups 

and beneficiaries) from the central government and district 

levels. The programming process followed an established model: 

the situation and needs analysis were conducted by the UNDP 

a The district development plans, which were implemented 

in three Zarafshan Valley districts, based on locally 

identified priorities and results of a baseline survey. The 

documents were also linked to National Development 

Strategy, Poverty Reduction Strategy, and MDG indicators 

to balance local needs with national priorities. From the 

perspective of district authorities and district development 

committee members, the plans served as a mechanism 

for coordinating the contributions of different actors 

to local development, including international assistance. 

By linking budget/financial resources with the District Development 

Plan, local authorities and citizens increased 

their awareness of the budget allocation system and reforms 

needed for full-fledged application of bottom-up 

planning and budgeting. 

a The project designed and implemented a comprehensive 

training programme: i) training on planning for district 

authorities and jamoat representatives; ii) training 

on poverty reduction planning and monitoring for the 

Economic Reforms, Statistics, and Finance departments, 

the Land Committees, the District Employment Centres; 

and iii) training for participatory budgeting and planning 

for councillors (local council deputies) and district finance 

officers. 

28 

Priorities are highlighted in the National Development Strategy, the PRS and 

the Public Administration Reform Strategy. 

18


a Although information on the effectiveness of training 

inputs is missing, district level actors and interviewed 

stakeholders from the district development committees 

confirmed that training provided in the process of elaborating 

district development plans made them better able 

to contribute to the planning process. Inclusion of district 

council members in the training proved beneficial 

for their understanding of the potential role of mid-term 

planning in the local development process. 

a The project helped improve the government’s information 

systems for planning, monitoring, and evaluation of 

public policy. This was done by introducing district and 

regional authorities to new information collection and 

registration tools, and aligning collected data with national 

indicators of MDG, National Development Strategy 

and Poverty Reduction Strategy targets. In addition to the 

main statistical data entry tool, other instruments were 

also introduced, such as socio-economic baseline survey 

and citizen report cards (these instruments were originally 

development within the framework of the DGTTFsupported 

project Clean Start for Local Councils – Building 

Accountability at the Local Level). 

Efficiency 

In recognition of the special development situation of 

Tajikistan and the limited capacity of local authorities to 

execute the project, it was agreed to use the Direct Execution 

implementation modality. The project was implemented directly 

by UNDP Tajikistan under the umbrella of UNDP’s Communities 

Programme in close collaboration with the government. This 

arrangement ensured efficient project delivery, with the overall 

responsibility for the management of the project resting with 

the Communities Programme. 

The Communities Programme adapted its structures as required, 

and established transparent project administration procedures 

and operation systems. This helped ensure the scheduled 

delivery of inputs and production of outputs. The project’s 

financial management was based on UNDP procedures, and 

regular financial reports were prepared. 

Innovation 

In post-conflict Tajikistan, the gap between districts deepened 

as a consequence of the existing differences in the economy, 

infrastructure, employment, income, and living standards 

between the country’s regions. At the same time, there was a 

lack of a comprehensive methodological framework to address 

priorities at the national, regional and local level and establish 

links between planning and budgeting processes. The project 

introduced a unique and innovative approach to prepare district 

development plans. It used a participatory approach to identify 

strategic priorities and to establish specific local mechanisms, 

instruments and indicators, aligned with National Development 

Strategy and Poverty Reduction Strategy indicators, and to 

allocate the required financial resources to implement priorities. 

In addition, the project provided tailor-made capacity 

development programme (training and mentoring) on poverty 

reduction planning and monitoring, plus design of district 

development plans. 

Finally, the project supported a new approach to donor aid 

coordination through a comprehensive information system. 

This system encompassed data from the jamoats, and from 

the district and national level on a wide range of issues and in 

particular, as a matter of priority, on development and poverty 

reduction trends in different parts of the country. 


The project operated within an existing partnership between 

UNDP and key national and international development partners, 

because it was implemented as a part of the Communities 

Programme. 

The positive experience and achievements of the project set 

the ground for the next phase of the Communities Programme. 

The project had secured additional funding from DGTTF (for the 

Building a Framework for Local Planning and Budgeting project, 

which was integrated into the Communities Programme), as 

well as from the UK Department for International Development 

and the Canadian International Development Agency. 

In addition, the project contributed directly to enhancing 

partnerships between UNDP and national partners. This is 

reflected by the agreements signed between UNDP and the 

Ministry of Economic Development and Trade, the Strategic 

Research Centre, the Institute for the Civil Servants Training, the 

Ministry of Finance, the State Statistic Committee, the Ministry 

of Labour and Social Protection, and the Parliament. 


Based on the results of the DGTTF project and following the 

same approach, the District Development Plans were prepared 

for the new six districts (in addition to those targeted by the 

project). At the same time, three districts that had already 

adopted development plans focussed on their implementation. 

These activities were implemented within the framework of the 

Communities Programme. 

The key role in this preparation process and implementation was 

and remained with the district development councils. They fulfill 

19


a number of functions that in a long run should become the 

responsibilities of district authorities and their departments (e.g. 

strategic development planning, decision making on resources 

allocation, updating, maintaining and analysing district socioeconomic 

database, coordination of development plans, and 

investments with external actors). The councils are currently 

supported through different projects and activities, which is 

why their sustainability remains critical. 

The sustainability of training programmes designed and tested 

with support of this project was ensured, because the Institute 

for Civil Service Training adopted them for its regular curricula. 

Training was delivered to district stakeholders in districts that 

have started to prepare development plans. However, capacities 

available at the district level are still weak, which affects the 

sustainability of the participatory planning concept. Despite 

intensive local capacity development efforts, the process of 

developing plans is being led to a large extent by national level 

experts, which is why further work on improving capacities at 

the district level is required. 

Improving the government’s information systems for planning, 

monitoring and evaluation of public policy helped to improve 

informed decision making and planning process. It also helped 

in monitoring and evaluating development inputs based on 

up-to-date and accurate data available at the district level. The 

introduction of multiple data collection and assessment tools 

required effort in terms of developing local partner capacities, 

but it currently operates well. 

The citizen report cards method became an attractive tool for 

monitoring changes based on citizens’ perception. The Centre 

for Strategic Research is leading and coordinating all activities 

related to collection of this information. 

Gender 

Gender indicators were not included at the project design stage, 

so gender mainstreaming was difficult to assess. The gender 

dimension within this project was, therefore, indirectly analysed, 

by reviewing activities, processes and analysing outputs. 

According to the training delivery reports, in all training sessions 

there were equal numbers of women and men. In addition, the 

project promoted gender balance in the district development 

councils. The data collected through the information system 

were disaggregated for men and women. This is the first required 

step in preparation of more gender sensitive policies. 

20

centralized and uncoordinated budgeting and a general lack 

of capacities among the civil servants. 

Project 

Building a Framework for Local 

Planning and Budgeting (2008) 

The project intervention remained valid and relevant throughout 

its implementation. The results and targets defined during the 

formulation phase remained relevant during its implementation 

and adjustments were not needed. 

Effectiveness 

Implementation of the project was effective. The expected 

results were completed, contributing to the achievement of 

the overall objective. 

The project delivered the following key results: 

Project title 

Building a Framework for Local Planning and 

Budgeting 


Funding 

Aim 

Results 


To strengthen effective and responsive governance 

by partnering with national level government 

institutions to reform the planning and budgeting 

processes at the district and region levels 

a The methodology for planning, budgeting 

and monitoring and evaluation at district and 

jamoat level 

a Proposal for reform of Tajikistan’s planning and 

budgeting system 

a Capacity development programme for planning, 

budgeting, and monitoring and evaluation 

a Training for district and region officials and 

results evaluated 

The project aimed to prepare a comprehensive programme of 

reform of Tajikistan’s planning, budgeting, and monitoring and 

evaluation methodology at district and regional levels. It also 

aimed to prepare guidelines and a training curriculum for the 

new methodology to enhance the capacities of 220 district and 

regional officials to comply with new procedures. The project 

achieved all of its objectives. 

Relevance 

In terms of the design phase, the project was highly relevant. 

It established a clear rationale for the intervention, with a welldefined 

hierarchy of objectives and a set of robust progress 

indicators at each stage. In terms of content, the project was 

designed to address some of the most challenging governance 

issues in Tajikistan: public sector inefficiency, lack of coordination 

and accountability in the public finance system, including 

a The Methodology for planning, budgeting, and monitoring 

and evaluation at district and jamoat levels: the 

methodology was based on the Proposal for Reform of 

Tajikistan’s Planning and Budgeting System, prepared 

by the National Expert Working Group 29 . In addition, the 

methodology reflected practical experience and results 

from the previous DGTTF projects, including lessons 

learned and recommendations. 

a A comprehensive capacity development programme, 

which comprised methodological guidelines and a training/mentoring 

programme for planning, budgeting, and 

monitoring and evaluation was developed. 

a Training was delivered to 220 district and regional officials, 

and the results were evaluated. 

Efficiency 

Like the other projects in this review, this project was directly 

executed in accordance with the DEX guidelines under the 

umbrella of UNDP’s Communities Programme and in close 

collaboration with the government. This arrangement ensured 

efficient project delivery, with overall responsibility for the 

project’s management, including financial management, resting 

with the Communities Programme. 

The project was implemented through the existing structure of 

the Communities Programme’s head office in Dushanbe. Area 

offices in Ayni, Khujand, Kulyab, Shaartuz, and Gharm were 

responsible for assisting local councils and district development 

29 

National Expert Working Group represented the partnership between UNDP, 

the Ministry of Economic Development and Trade, and the Ministry of Finance, 

with the principle role being to identify current planning and budgeting practices 

and determine how it can be best incorporated into the government’s 

existing planning and budgeting framework. 

21


committees in following up on the training, and for backstopping 

the activities. 

The project management structure ensured efficient 

implementation, with all results produced within the 

proposed timeframe. In addition, it enabled swift integration 

of achievements into the Communities Programme. 

Innovation 

The project introduced a new implementation approach to 

planning and budgeting in Tajikistan. This was elaborated in 

the methodology for planning, budgeting, and monitoring 

and evaluation at district and jamoat levels. At the same time, 

the project supported a new planning and budgeting practice. 

For the first time in Tajikistan, this integrated and coordinated 

national (horizontal), and district and jamoats (vertical) planning 

and budgeting processes. 

The project tested an innovative model in capacity development, 

which consisted of a well-balanced combination of training and 

mentoring. Learning by doing with the support of experienced 

peers proved an excellent tool for improving performance. 

In terms of innovation, the project enabled the Communities 

Programme to expand the scope of its intervention into a new 

area, reform of public administration. 


The project expanded the scope of the Communities Programme 

to public administration reform, and built on the quality and 

impact of past interventions. It strengthened UNDP’s presence 

at the national level and enhanced partnerships with the key 

national institutions. 

The project supported the development of the methodology 

for planning, budgeting and monitoring and evaluation at 

district and jamoat levels. This methodology was endorsed by 

the government and adopted as the official, national policy for 

planning and budgeting at district and jamoat levels. 

Although the policy framework was adopted, the issue of scarce 

capacities for its implementation remained evident. Therefore, 

after positive experience with DGTTF-funded activities and initial 

success in implementation of planning, budgeting, monitoring 

and evaluation in pilot districts, the project (including the 

project team) was institutionalized in the Ministry of Economic 

Development and Trade. The initial DGTTF project was followed 

up with a larger (US$3 million) UNDP project, financed from 

UNDP’s core resources. Within the framework of this larger 

project, UNDP in partnership with the Ministry of Economic 

Development and Trade expanded activities throughout the 

country by providing technical assistance to implement the 

new planning and budgeting model. 


Engaging regional authorities and national actors into a standard 

participatory planning methodology was deemed an absolute 

priority. The sustainability of methodology for preparation of 

district development plans was strongly supported by the 

key national institutions (including the Ministry of Finance, 

the Ministry of Economic Development and Trade, and the 

Strategic Research Centre under the President), resulting in its 

adoption as the national platform for planning at district level. 

Implementing the participatory planning and budgeting 

methodology has experienced some limitations, such as the 

lack of financial resources (especially the unpredictable transfers 

from the central level), insufficient links to sectoral programmes 

and reforms, the State Mid-Term Expenditure Framework, the 

ongoing public administration reform, and the overall discussion 

over decentralization of responsibilities and fiscal powers. 

The sustainability of training programmes on strategic planning, 

participatory budgeting, poverty mapping, and monitoring was 

ensured by their use by the Institute for Civil Service Training as 

its regular curricula for civil servants’ professional advancement. 

It is supported from the national budget and is an ongoing 

activity of the centre. 

Gender 

Gender indicators were not included at the project design stage, 

so gender mainstreaming was difficult to assess. Therefore, an 

analysis of the gender dimension within this project was done 

indirectly, reviewing activities and processes, and analysing 

outputs. 

Gender mainstreaming was addressed indirectly. The training 

delivery reports show that all training sessions had an equal 

number of women and men. 

It is difficult to know whether gender mainstreaming was 

considered during the design of the methodology for preparation 

of district development plans. Nevertheless, during the review 

it was confirmed that the Ministry of Economic Development 

and Trade was working with local authorities to update the 

methodology to consider cross-cutting issues, including gender. 

22

Lessons 

learned and 

recommendations 

Citizen Report Cards have limited impact 

in the centralized decision making system 

The development of tailor-made citizen report cards as an 

alternative and innovative tool to monitor access to, and quality 

of, basic public services in Tajikistan was a key achievement of 

the DGTTF. Initial activities showed for the first time how people 

perceived services and service providers. 

The citizen report cards method is currently the responsibility of 

the Centre for Strategic Research. Progress in its implementation 

is noticeable – it has spread to all districts – and it is becoming 

an attractive tool for monitoring changes based on citizens’ 

perception. 

However, the Tajikistan experience suggests that the real impact 

of citizen report cards is limited by centralized planning and 

decision-making. There is little evidence to suggest that local 

authorities directly concerned with the results of the citizen 

report cards are able to bring about change and invest in 

service improvement. 

Therefore, in order to ensure that citizen report cards improve 

performance, they should be part of a broader decentralization 

process. That should strengthen downward and upward 

accountability within governance structures 30 . 

Successful data-collection systems require 

national leadership and ownership 

The DGTTF projects supported improvement of the government’s 

information systems for planning, monitoring, and evaluation 

of public policy. This included strengthening the capacities of 

regional and district authorities in data collection. This new 

approach enabled the alignment of collected data from district 

and regional levels with national level indicators (primarily, 

indicators related to the national MDG targets, and National 

Development and Poverty Reduction Strategy targets). 

The project’s results established a basis for improving governance 

practices, especially in evidence-based policy and decisionmaking, 

and in monitoring and evaluation of public policies. 

Unfortunately, this was utilized only to a limited degree, as 

Tajikistan remains heavily centralized and the collected data 

and information are not publicly available. 

Therefore, development of a data collection system and a 

sound mechanism for monitoring and evaluating public policies 

have to be implemented in parallel with other activities aimed 

at improving the transparency and accountability of public 

institutions. 

The involvement of the National Office for Statistics is needed 

to ensure that the data collection methods and monitoring 

and evaluation are properly integrated into the overall system 

of statistics and reporting at all levels. 

Engagement of all key stakeholders in 

preparation of Methodology for district 

development planning was crucial 

The training provided through the DGTTF project support during 

the preparation of district development plans strengthened the 

abilities of the district development councils to embark on the 

planning process. The inclusion of district council members in 

training activities proved beneficial for their understanding of 

the potential role of mid-term planning in local development 

processes. 

Engaging regional and national authorities proved crucial for the 

success of the project, as it ensured that the critical views and 

comments from the national and regional decision makers were 

reflected. The proposed methodology was adopted as a standard 

participatory planning approach compatible with the overall 

system of planning and budgeting in Tajikistan. In this way, the 

DGTTF project introduced an innovative and unique practice 

in Tajikistan that differed from other similar district planning 

initiatives. Currently, the Ministry of Economic Development 

and Trade and the Ministry of Finance, in partnership with UNDP, 

provide technical support to district development committees 

in formulating their plans. 

30 

UNDP (2010): Fostering Social Accountability: from Principle to Practice. A Guidance 

Note. Page 9. 

23


Implementation of the District Development 

Plans requires financial resources from 

national budgets 

The methodology introduced for district development planning 

promoted a new development paradigm in Tajikistan. But the 

implementation of district development plans remains a much 

more challenging task, mainly due to limited financial resources. 

Financing district development plans is restricted mainly to 

mobilizing extra-budgetary funds (local and international) with 

no link to the national or regional budgets. Implementation 

is also hindered by cumbersome financial and reporting 

procedures imposed by international development partners. 

The Tajikistan experience shows that participatory planning 

could be successful during the planning phase. But to ensure 

that priorities are acted upon, planning processes must be 

linked to the national budgeting and expenditure frameworks. 

For better utilization of funds from international funding 

opportunities, there is a need to develop commonly adopted 

procedures in parallel with planning. 

The sustainability of a participatory planning 

concept at the district level has to be ensured 

District development councils supported through the DGTTF 

projects served as a coordination mechanism for different 

activities within the district development framework. By bringing 

together local stakeholders, including government, civil society, 

and the private sector around common development priorities, 

the councils have served as a platform for building confidence 

and trust among them and for participatory decision and policy 

making. 

The establishment and functioning of the district development 

councils is inherently linked to sustainability. The district 

development councils were an effective interim solution in 

the aftermath of the civil war and during the transition period 

for the establishment of the national (governance) institutions. 

However, there is a need to transform district development 

councils into a more meaningful and sustainable form of 

(district) development planning. The DGTTF support provided 

a solid basis for sustainability, especially by addressing gaps in 

technical expertise. Therefore, it will be essential to start with 

the transformation of district development councils, taking into 

consideration activities and results of the DGTTF supported 

projects in Tajikistan. 

DGTTF – need for comprehensive 

knowledge management 

DGTTF projects in Tajikistan produced valuable tools and 

knowledge products, such as citizens’ report cards, citizen 

charters, a methodology for planning, budgeting, and monitoring 

and evaluation at district level, a methodology for regional 

development planning, and a number of practical documents 

and learning materials to support transparent and accountable 

governance. However, this knowledge is not collected and 

captured systematically. Some of these documents are either 

stored in the project archives or are unavailable because of 

changes in the project management, or because of closure of 

project tools and products. 

Opportunities to establish a comprehensive and user-friendly 

knowledge management system to codify and store generated 

knowledge should be explored. This will facilitate the horizontal 

learning process and ensure better exchange of information 

and access to knowledge derived from different DGTTF projects. 

DGTTF should improve monitoring practice 

The review of the DGTTF projects in Tajikistan showed that 

monitoring (and, to a large degree, reporting practice) was 

critical in the management of projects. Projects were approved 

and implemented without a clear and measurable set of 

indicators at different levels of intervention logic (outcome, 

objective, results). Monitoring visits were not organized during 

implementation. This review was the first on-site visit to DGTTF 

projects in Tajikistan and it occurred long after completion of 

projects. 

Changes to the DGTTF implementation framework (extended 

duration of projects and increased budgets) would require a 

robust monitoring system. Considering that the project duration 

is two years, it is recommended that mid-term reviews are 

conducted after the first year of project implementation. This 

could identify deficiencies in the project implementation and 

provide recommendations for the remainder of the project 

period. Therefore, it will be essential to concretely define the 

results (outputs) at the formulation phase so that they are 

expressed in a manner that enables effective monitoring and 

subsequent evaluation 31 . 

31 

In other words, the results should be S.M.A.R.T. (Specific, Measurable, Attainable, 

Realistic, and Time-bound) 

24


Annex I: 

Codification of tools 

and instruments 

used 

a Citizen Report Cards 

a Citizens’ charters 

a Methodology for preparation of District Development Plans (and district development 

plans from three districts) 

a Training curricula and learning materials: 

i) training on topics related to public administration and local governance 

(for civil servants) 

ii) training on decentralization, civic participation, strategic planning and 

municipal budgeting (for elected councillors at the jamoat and district levels) 

iii) training on planning for district authorities and jamoats representatives 

iv) training on poverty reduction planning and monitoring for the Economic 

Reforms, Statistics, and Finance departments, the Land Committees, the 

District Employment Centres 

v) training for participatory budgeting and planning for councillors (local 

council deputies) and district finance officers 

a Information systems for planning, monitoring and evaluation of public policy. 

a The Methodology for Planning, Budgeting and Monitoring and Evaluation at 

District and jamoat level. 

a Methodological guidelines and training/mentoring program for planning, 

budgeting, and monitoring and evaluation was developed. 

25


Annex II: List of 

persons interviewed 

Abdugani Mamadazimov, Chairman, National Association of Political Scientists 

Abdushukur Nazarov, Director, NGO Municipal training centre, Khujand 

Ali Aliev, Deputy Rector, Institute for Civil Service Training (ICST) 

Alijon Isoev, Research Director Centre for Sociological Research “Zerkalo” 

Dzamsir Nozirov, Dr, Director of the Hospital in Vahdat 

Halimov Rustam, Coordinator Centre for Strategic Research (SRC) under the President 

Ibodullo Fattoev, DDC Chairman Meeting with DDC Isfara and district Majlis deputies 

Jamil Oglukov, Head of Jamoat Kistakuz, Gafurov districts 

Jan Bernard De Milito, Councillor European Commission- Mission in Tajikistan 

Malika Boymuradova, Khujand, NGO ASTI 

Maqsud Aripov, Area Manager, UNDP CP Khujand Area Office, UNDP Tajikistan 

Mirzo Olimov, Planning and budgeting project coordinator and the team, UNDP 

Planning and budgeting project based at the Ministry of Economic Development 

and Trade (MEDT), UNDP Tajikistan 

Munirjon Aminov, Head of Jamoat Resource Centre, Jamoat Kistakuz, Gafurov districts 

Rastislav Vrbensky, Country Director, UNDP Tajikistan 

Rustam Babajanov, Mainstreaming Human Development Project, Project Manager, 

on economic policy issues, UNDP Tajikistan 

Umed Davlatzod, Deputy Minister Ministry of Economic Development and Trade 

Yusuf Kurbonkhojaev, Senior Local Governance Officer, Communities Programme, 

UNDP Tajikistan 

Project beneficiaries , Visiting water supply project in Isfara 

26


Annex III: 

Bibliography 

United Nations Development Assistance Framework (UNDAF) for Tajikistan 2010-2015 

Country Programme Document for Tajikistan 2010 – 2015 

Country Programme Action Plan for Tajikistan for 2010 – 2015 

Assessment of Development Results- Republic of Tajikistan, 2009 

Tajikistan Living Standards Measurement Survey, 2008. Washington, DC 

Joint Country Support Strategy 2009-2012 

Millennium Development Goals Report 

Shadow economy report 

Poverty Reduction Strategy Paper, 3 (2010-2012) 

National Development Strategy (2007-2015) 

Public Administration Reform Strategy for Tajikistan 

Communities Programme Document 2004-2007, 2007-2009 

Annual Work Plans and Annual Progress Reports for the period 

External Evaluation of the Local Governance by Luigi de Martino, 2007 

The Constitution of Tajikistan and other laws of Tajikistan 

UNDP (2009): Outcomes Evaluation Report UNDP: Communities Program in 

Tajikistan”; prepared by Ton de Klerk, Elena Krylova-Mueller 

UNDP (2010): Fostering Social Accountability: from principle to practice. A guidance 

note. Oslo and New York 

Other documents and materials related to the projects that were reviewed 

27


Regional Centre in Bratislava 

Grosslingova 35 

811 09 Bratislava 

Slovak Republic 

europeandcis.undp.org 

Bureau for Development Policy 

Democratic Governance Group 

304 East 45th Street, 10th Fl. 

New York, NY 10017 

Oslo Governance Centre 

Inkognitogata 37, 0256 Oslo, Norway 

www.undp.org/governance 

www.undp.org/oslocentre 

May 2011

English - UNDP

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