FINAL DRAFT Review of the United Nations Development Assistance Framework (UNDAF), Trinidad and Tobago 2008 - 2011 First Year Progress Review, January / February 2009 Prepared by Independent Consultant, Guy Summers February 2009 Received 01April 2009 Joy C. Brathwaite Table of Contents ABBREVIATIONS ........................................................................................................................ 3 Executive Summary:....................................................................................................................... 4 1.0 Background........................................................................................................................ 6 1.1 Objectives of the Review................................................................................................ 6 1.2 Review Process ............................................................................................................... 6 2.0 National Context ................................................................................................................. 8 2.1 Development Context ..................................................................................................... 8 2.2 Government of Trinidad and Tobago Vision 2020 and UNDAF ................................... 8 2.3 Results Based Management ............................................................................................ 9 3.0 Assessment of UNDAF..................................................................................................... 12 3.1 Assessment of the Trinidad and Tobago UNDAF Framework Document................... 12 3.1.1 General.................................................................................................................. 12 3.1.2 Section 2 – UNDAF Results................................................................................. 12 3.1.3 Section 3 - UN Initiatives outside the UNDAF Results Matrix............................ 13 3.1.4 Section 4 - Resource Requirements ...................................................................... 13 3.1.5 Section 5 – Implementation of the UNDAF ......................................................... 13 3.1.6 Section 6 – Monitoring and Evaluation (M&E) ................................................... 14 3.1.7 Annexes................................................................................................................. 15 3.2 Assessment of the Trinidad and Tobago UNDAF 2008............................................... 15 3.2 Criteria for UNDAF Assessment.................................................................................. 17 3.3 Assessment of Results................................................................................................... 17 3.3.1 Role and Relevance............................................................................................... 17 3.3.2 Design and Focus.................................................................................................. 18 3.3.3 Comparative Advantage........................................................................................ 19 3.3.4 Effectiveness in achieving outcomes.................................................................... 19 3.3.5 Effectiveness as a partnership and coordination framework ................................ 20 3.3.6 Impact of UNDAF on the poor ............................................................................. 20 3.3.7 Efficiency of UNDAF to reduce transaction costs ............................................... 21 3.3.8 Sustainability......................................................................................................... 21 4.0 Conclusions and Recommendations ................................................................................. 23 4.1 Conclusions................................................................................................................... 23 4.2 Recommendations......................................................................................................... 23 ANNEXES................................................................................................................................... 27 Annex 1 - Persons Met During the Mission.................................................................................. 27 Annex 2 - Key Questions for UN Agencies and Stakeholders ..................................................... 29 Annex 3 - UNITED NATIONS DEVELOPMENT ASSISTANCE FRAMEWORK ................. 30 Annex 4 Indicative M&E Calendar......................................................................................... 54 Annex 5 UNDAF Results Matrix 2008 .................................................................................... 56 Annex 6 Technical Report Outcomes...................................................................................... 57 Annex 7 Technical Paper Outputs........................................................................................... 63 2 ABBREVIATIONS CCA - Common Country Assessment CPD - Country Programme Document CPAP - Country Programme Action Plan CPO - Country Programme Outcome CSO - Central Statistical Office ECLAC - Economic Commission for Latin America & the Caribbean EIU - Economic Intelligence Unit FAO - Food and Agriculture Organization GDP - Gross Domestic Product GoRTT - Government of the Republic of Trinidad and Tobago ILO - International Labour Organization MDGs - Millennium Development Goals M&E - Monitoring & Evaluation NACC - National AIDS Coordinating Committee NCC - Net Contributing Country NGO - Non-Government Organization PAHO - Pan American Health Organization RHA - Regional Health Authority TCPR - Triennial Comprehensive Policy Review THA - Tobago House of Assembly UNAIDS - United Nations Joint Programme on HIV & AIDS UNCT - United Nations Country Team UNDAF - United Nations Development Assistance Framework UNDP - United Nations Development Programme UNESCO - United Nations Education, Scientific and Cultural Organization UNFPA - United Nations Population Fund UNIC - United Nations Information Centre UNICEF - United Nations Children Emergency Fund UNIFEM - United Nations Development Fund for Women UWI - University of the West Indies 3 Executive Summary: • This report presents the findings of the first year review of the implementation of the United Nations Development Assistance Framework (UNDAF) in Trinidad and Tobago, 2008 – 2011. The review covers the mission by the consultant to Trinidad and Tobago which took place from 19 January to 6 February 2009. • The UNDAF is guided by these pillars from Vision 2020 and also by the principles of the Millennium Declaration and the mandated work of the UN agencies. Another important key document underpinning UN work in Trinidad and Tobago is the Common Country Assessment (CCA) which was completed in December 2006. The original UNDAF document was developed over a period from 2006 but was eventually signed by all stakeholders in March 2008 and became operational at that time. • Despite many years of implementation of a Results Based Management approach in Government in Trinidad and Tobago, the culture and practice has been difficult to implement. A recent study (Transformation in Progress, 2007 Report, Vision 2020 Operational Plan 2007 – 2010) found the following: o Monitoring and evaluation across the public service is not effectively coordinated o Performance information or results are not widely used in decision-making or for the management of programmes o There are deficiencies in terms of the availability of reliable, valid and timely economic and social data to track progress towards the achievements of the goals of Vision 2020” • In general, the UNDAF framework document conforms to key principles of UNDAF Guidelines in terms of structure and content. Reports of the process followed also appears to have been participative and the result of a progression of consultations with the Government of Trinidad and Tobago and concerned stakeholders. The document coverage is reflective of the core concepts as laid down in the UNDAF Guidelines. However, the accountability for outcomes and outputs in the Results Matrix are far from clear (e.g. multiple agencies responsible for the same output). Likewise, the tables lack the normally included section on Coordination Mechanisms and Programme Modalities. • The 2008 Results Matrix (it is in fact called an Output Table) for the Trinidad and Tobago UNDAF is the basis for the reporting of progress on UNDAF and is consequently the main means for monitoring for the purposes of this review. The Results Matrix 2008 is presented in a much simpler format than the one included in the UNDAF framework document. Most notably the format is based on “Output” rather than “Outcome”. There is no information included in the matrix on Indicator/Baseline, Means of Verification or Assumptions and Risks as specified in the UNDAF. To reiterate, there is no report on progress on UNDAF Outcomes as specified in the UNDAF Guidelines which would normally be the basis for assessment in a review such as this. 4 • A number of recommendations are provided; the application of some at least could contribute to a more effective UNDAF in Trinidad and Tobago. One of these refers to the availability of expert assistance. • “Implementing an UNDAF involves a complex group of “actors” and the blending of many approaches, concerns and methodologies. Consequently some expert assistance from the UN’s Quality Assurance and Support group could greatly facilitate improving the document and helping the development partners to refine their contributions. Review of the UNDAF Guidelines (recently revised) is essential but these are not always easy to follow. Expert Guidance from the Quality Assurance and Support Group is advised.” 5 1.0 Background 1.1 Objectives of the Review This report presents the findings of the first year review of the implementation of the United Nations Development Assistance Framework (UNDAF) in Trinidad and Tobago, 2008 – 2011. The review covers the mission by the consultant to Trinidad and Tobago which took place from 19 January to 6 February 2009. The Terms of Reference for this assignment called for the following: • Conduct a brief desk review of the 2008-2011 United Nations Development Assistance Framework (UNDAF) for Trinidad and Tobago highlighting challenges faced by UN agencies signatories of the document to deliver on the commitments made in the framework. The exercise will include review of existing documents and interviews with representatives of the partner agencies, government and non government actors • Drawing on the lessons learned from the desk review, complete an existing first draft monitoring and evaluation plan for the 2008-2011 UNDAF with clear annual benchmarks and deliverables to be evaluated at the end of 2009 and in 2011 • Socialize the contents of the UNDAF and the M&E (Monitoring and Evaluation) system with government and non government actors and representatives of other donor organizations ( The review was in no way a review of UN agency operations or progress since it focussed solely on UNDAF as a framework. As such it examined only the design and implementation of UNDAF documents and processes as “tools” to foster development and coordination of effort. Consequently the comments included in this report relate to UNDAF in its entirety and should not be construed to be comment on individual UN agencies or their contributions or interventions. . 1.2 Review Process The national development plan of the Trinidad authorities (Vision 2020) was reviewed in addition to available plans, work programs and strategy and progress documents. Key documents examined also included the UNDAF agreement which was signed by all stakeholders in March 2008 and then became operational. The Results Matrix is the key tool for monitoring and evaluation for UNDAF and the completed matrix for 2008 was reviewed and key points discussed with UN agencies and stakeholders. UNDAF Guidelines provided comprehensive lists of criteria and questions to make an assessment of the UNDAF results matrix. These criteria are included in detail in the Assessment of UNDAF outcomes in Section 3 of this report. Discussions with UN agencies in Trinidad and Tobago (and telephone call to UNIFEM) were conducted during the first week of the mission (List of people met is attached as Annex 1). A meeting to present initial findings to UN agencies was arranged for the end of the second week of the mission. Discussions with national authorities and other stakeholders were facilitated 6 through meetings with government departments and other stakeholders during the second and third weeks. A final presentation to UN agencies and stakeholders took place on the last day of the mission. A list of examples of key questions to Agencies and governments is included as Annex 2. 7 2.0 National Context 2.1 Development Context “Successive Human Development Reports have ranked Trinidad and Tobago high on the index with positive macroeconomic indicators and moderate rates of growth, low inflation, and low budget deficits being dominant features. However like many of its counterparts, Trinidad and Tobago continues to be confronted by a myriad of development challenges, particularly with a focus on ending poverty, improving access to education, healthcare (including securing reproductive rights and health), and ensuring freedom from violence. Additionally, the contemporary phase of globalisation characterised by its negative socio-economic implications has contributed to increasing conflict at the local level, involving ethnic, religious and political tensions – impacting critically on sustainable livelihoods. These complex factors have amplified the need to more effectively ensure the protection of individuals, as such propelling a renewed emphasis on human rights – and human-centred development.” (from The Commonwealth Foundation, Position Paper – Trinidad and Tobago) 2.2 Government of Trinidad and Tobago Vision 2020 and UNDAF The national development plan for Trinidad and Tobago is outlined in a document called Vision 2020. This includes a strategy which recognises the distinct characters of Trinidad, and of Tobago and outlines five pillars for development to the year 2020. These pillars reflect the multisectoral scope of the plan and include: 1. Nurturing a Caring Society 2. Governing Effectively 3. Facilitating Competitive Business 4. Improving Infrastructure and Environment 5. Developing Innovative People The UNDAF is guided by these pillars from Vision 2020 and also by the principles of the Millennium Declaration and the mandated work of the UN agencies. Another important key document underpinning UN work in Trinidad and Tobago is the Common Country Assessment (CCA) which was completed in December 2006. The original UNDAF document was developed during the period 2006 – 2007, and was eventually signed by all stakeholders in March 2008. It also became operational at that time. The UNDAF uses these documents and a participatory process to form a common operational framework for development interventions upon which UN organizations formulate their work programmes. UNDAF is also often called the “business plan” for UN cooperation in a country. The current Trinidad and Tobago UNDAF period is for the period 2008 to 2011. 8 2.3 Results Based Management The Government of Trinidad and Tobago has pursued a policy of implementing Results Based Management (RBM) for several years. The latest Progress Report (Transformation in Progress, 2007 Report, Vision 2020 Operational Plan 2007 – 2010) notes the following: “Where are we in terms of Managing for Development Results? Beginning in 1992, the Government embarked on a comprehensive strategy to build capacity in project cycle management including training in the formulation and utilization of the logical framework as a mechanism to appraise, monitor and evaluate projects under the Public Sector Investment Programme (PSIP). Preparation of a logical framework became a requirement for submission and approval of capital projects. However, some 15 years later, findings from the recently completed Vision 2020 Readiness Assessment suggest that: • Logical frameworks are rarely prepared and in instances where they have been developed, this is due to the requirements of multilateral institutions • Logical frameworks constitute a ‘paper exercise’ rather than a mechanism that facilitates the tracking of a project’s implementation or contribution to identified goals/outcomes • Despite the identification of indicators and sources of data collection in logical frameworks, the actual collection, collation, analysis and utilization of such data are rarely undertaken” The Logical Framework Approach (LFA) has been adopted as a project planning and management tool by most multilateral and bilateral development agencies. It is an analytical process and set of tools used to support planning and management and when used effectively, can provide a basis for evaluation. It is based on the following: IF adequate inputs/resources are provided, THEN activities can be undertaken; IF the activities are undertaken, THEN outputs can be produced; IF outputs are produced, THEN the outcome will be achieved; and IF the outcome is achieved, THEN this should contribute towards the overall higher order objective For ease of reference, some of the terminology used in LFA is noted in the box below. In the text of this report, “activity” is used for activity and “result” is used interchangeably with output. 9 The Government of Trinidad and Tobago and the UN Agencies alike have attempted to move towards RBM. The process is not an easy one as documented in the Transformation in Progress, 2007 Report which noted the following: “The findings of the Vision 2020 Readiness Assessment Survey (2007) point to the existence of several challenges that may hinder implementation of Managing for Development Results (MfDR), including the following: • There is a lack of effectiveness of existing monitoring and evaluation mechanisms within the public sector. Both the Opinion Leaders’ Panel Survey and the Office of the Ombudsman facilitate citizen feedback on a range of service delivery issues and national development priorities. In both cases, Ministries/Agencies have generally not acted on citizens’ feedback/complaints • Some monitoring agencies encounter difficulty in ensuring that their recommendations are implemented. For example, both the Auditor General and the Office of the Ombudsman experience difficulties in obtaining the required cooperation from Accounting Officers within the public service • There is a continued focus on expenditure data to track progress. This finding reflects the very real challenge of changing mindsets and processes from input/activity to output/outcome management • Building evaluation capacity, through training and recruitment efforts, by itself is insufficient for the creation of an evaluation culture • Monitoring and evaluation across the public service is not effectively coordinated • Performance information or results are not widely used in decision-making or for the management of programmes 10 • There are deficiencies in terms of the availability of reliable, valid and timely economic and social data to track progress towards the achievements of the goals of Vision 2020” 11 3.0 Assessment of UNDAF 3.1 Assessment of the Trinidad and Tobago UNDAF Framework Document A copy of the signed UNDAF framework agreement is included for ease of reference as Annex 3. The major guide for assessment of the UNDAF document is the key UN document Common Country Assessment and United Nations Development Assistance Framework, Guidelines for UN Country Teams, February 2009 (in this report this document is referred to as UNDAF Guidelines). The following sections present a review of the UNDAF framework document section by section. 3.1.1 General In general, the document conforms to key principles of UNDAF Guidelines in terms of structure and content. Reports of the process followed also appears to have been participative and the result of a progression of consultations with the Government of Trinidad and Tobago and concerned stakeholders. The document coverage is reflective of the core concepts as laid down in the UNDAF Guidelines, namely: 1. Human rights approach 2. Gender mainstreaming 3. Capacity assessment 4. Natural disaster preparedness. The UNDAF document reflects some of the main objectives of the Vision 2020 document and also the ambitions of the MDGs and reflects the issues identified in the Common Country Assessment (CCA). 3.1.2 Section 2 – UNDAF Results The UNDAF Guidelines notes the need for the following in the text of Section 2 of the UNDAF document: 82. “UNDAF Outcomes narrative describes how each UNDAF outcome will make a contribution to the achievement of one or more selected priorities from the national development framework, related to the MD/MDGs and other internationally agreed treaty obligations and development goals. It provides the rationale for the choices made and describes why certain results where chosen over others, making reference to the country analysis, the national priorities, and the comparative advantages of the UNCT over other development actors, particularly for country capacity development. 83. For each UNDAF outcome, the outcomes of agencies working singly or together and agency outputs are described, providing a summary of the expected results from contributions of all UN agencies, including specialised agencies and non-resident agencies. In particular, this section highlights the anticipated synergies between the agencies for the achievement of UNDAF outcomes, and describes any joint programmes. 12 84. The final sub-section identifies the government and/or other partners that are expected to contribute to the achievement of UNDAF results. It also summarises the coordination mechanisms for working with partners and for promoting greater national ownership and capacity The relevant section in the Trinidad and Tobago UNDAF falls short in at least some of the instructions noted above, or at least it is not as explicit as it might be. Notably, the relevant section of the UNDAF document does not detail outcomes of agencies and expected results of all agencies, nor does it discuss synergies or joint programming. Perhaps most crucially, there is mention of coordination with other partners but no explanation of the practical “mechanism” that will be used in order to do so. 3.1.3 Section 3 - UN Initiatives outside the UNDAF Results Matrix A short paragraph in the document notes that five UN organisations (ECLAC, ILO, PAHO/WHO, UNNESCO and UNIC) have programmes of work which fall outside the UNDAF umbrella. No mention is made of other agencies which have work programmes outside of UNDAF (e.g. UNDP apparently has a considerable component of work outside UNDAF but this is not mentioned). More detail of the UN Initiatives outside the UNDAF is provided in Annex II of the UNDAF document. 3.1.4 Section 4 - Resource Requirements Main financial resource requirements for Agency interventions are outlined in this section and total USD 14,725,656 over the UNDAF period of 2008 – 2011. It is noted that actual commitments are included in more detailed Country programming documents. There is no comment on the level of commitment regarding the funds. In discussion it was clear that many UN agencies included actions in UNDAF that are not fully funded. By including both firm commitments and potential interventions (in some cases at least a “wish list”) in UNDAF, expectations can be raised and not met. There are potential implications related to the credibility of UNDAF as a result. 3.1.5 Section 5 – Implementation of the UNDAF The document notes that the implementation of the UNDAF programmes of work will be coordinated by two “Theme Groups”, one per UNDAF High Level Outcome. Each will “coordinate and manage the implementation of the UNDAF”… and “will report to the UNCT.” Their Terms of Reference include the “review of joint work plans, monitoring and evaluation activities and information sharing.” The possibility of establishing more Theme Groups on subjects such as Disaster Preparedness is noted. No meeting by the Consultant was held with the two UNDAF Outcome Theme Groups and therefore no assessment of their effectiveness as a coordination and management instrument is 13 possible in this review. Discussions with UN Agencies did not raise any comment on the effectiveness of UNDAF Theme Groups. 3.1.6 Section 6 – Monitoring and Evaluation (M&E) The UNDAF document presents an M&E plan and this section of UNDAF also specifies arrangements for an Annual Review, Final Evaluation and also lists Risks and Assumptions. The text makes reference to the responsibilities of the UNDAF Theme Groups in managing the M&E plan, making outcome evaluations and in making necessary amendments to the UNDAF as needed. Other stakeholders are also to be invited to participate in M&E activities as appropriate. These procedures do coincide with UNDAF Guidelines which notes the following: “It is recommended that thematic groups for each UNDAF outcome are then convened to refine the details of the results matrix. These groups should be capable in the application of HRBA, gender mainstreaming, RBM, capacity development and environmental sustainability.” And also “Following the finalization of the UNDAF, these UNDAF outcome groups are responsible for using the results matrix, together with partners, for joint monitoring of progress towards each UNDAF outcome. The outcome group will use this monitoring to report to the individuals leading the UNCT.” The M&E plan (UNDAF Guidelines note that the M&E Plan consists of three sections; 1) narrative component, 2) M&E Framework and 3) M&E Calendar) is largely appropriate. What is less clear is how this has been implemented in the first year of operation. For example, the M&E framework is not reflected in the Results Matrix 2008 and it is not clear that the management arrangements have been followed or indeed adequate. There is no need for a new “plan” as such. The current M&E plan incorporates the suggested components and includes an M&E Framework (even if this has not been followed in presenting the Results Matrix). nnual monitoring and the anticipated mid-term and final evaluations are normally worthwhile and useful for future planning. What is important is that the accountability for UNDAF outcomes be more explicitly placed with those implementing the activities. The UNDAF Guidelines state this very clearly in the following paragraphs: “78. It is recommended that thematic groups for each UNDAF outcome are then convened to refine the details of the results matrix. These groups should be capable in the application of HRBA, gender mainstreaming, RBM, capacity development, South-South cooperation, and environmental sustainability. 79. Following the finalization of the UNDAF, these UNDAF outcome groups are responsible for using the results matrix, together with partners, for joint monitoring of progress towards each UNDAF outcome. The outcome group will use this monitoring to report to the individuals leading the UNCT. These responsibilities are discussed in more detail in Parts 4 and 5” (of the UNDAF Guidelines). 14 3.1.7 Annexes Annex I of the UNDAF framework document presents the Results Matrices as specified in the UNDAF Guidelines. This matrix also includes one column illustrating financing contributions linked to the UNDAF Outcomes. Annex II outlines UN Initiatives outside of UNDAF in tabular form (related to Section 3 of the text). Within the UNDAF document, Annexes IIIa and IIIb present Monitoring and Evaluation Matrices in the standard UNDAF Guidelines format. In general, the Results Matrices and Monitoring and Evaluation Matrices do replicate the core M&E principles as laid down in the UNDAF Guidelines. However, the accountability for outcomes and outputs in these tables are far from clear (e.g. multiple agencies responsible for the same output) and the tables are lacking in other aspects (see below). Likewise, the tables lack the section on Coordination Mechanisms and Programme Modalities. The UNDG Issues Note on Results Based Management in UNDAFs dated October 2007 notes common problems in UNDAFs and these are evident to some degree in the Trinidad and Tobago version: • Outputs tend to be unfocussed and pitched at a very high level making it difficult to hold the UN accountable for their achievement. • Often multiple agencies are responsible for delivering the same output. The results chain does not then clarify the division of labour among agencies. There is a need to “drill down” the results chain until a level is reached where division of labour is evident and accountability of individual agencies is established. • The UNDAF results chain needs to be derived from and linked to, national strategies and show the link in terms of level of results. • UNDAF matrices do not show a convincing chain of results or are ambiguous in nature. . Again, to cite the UNDAF Guidelines, “It is critical that the accountabilities of agencies and partners for outcomes and outputs are identified clearly in the results matrix, and that all results are specific, measurable, achievable, relevant and time-bound (SMART).” Annex IV – Monitoring and Evaluation Programme Cycle Calendar 2008 – 2011 Annex IV presents the Monitoring and Evaluation Programme Cycle Calendar 2008 – 2011 which is in the standard UNDAF Guidelines format. The current plan is rather sparse in content and could be enhanced through the use of other means. Using on-going or sector studies for example could supplement the core UNDAF monitoring exercise which takes place periodically. This is explained in far more detail in UNDAF Guidelines in Section 4.4 which also contains valuable support information. A suggested indicative revision to the Calendar is included as Annex 4 of this report. 3.2 Assessment of the Trinidad and Tobago UNDAF 2008 The 2008 Results Matrix (it is in fact called an Output Table) for the Trinidad and Tobago UNDAF is attached as Annex 5. This matrix should be the basis for the reporting of progress on 15 UNDAF progress and is consequently the main means for monitoring for the purposes of this review. It should be noted that this matrix differs in format from the Results Matrix and also the Monitoring and Evaluation Framework which are both included in the UNDAF framework document. The desk analysis of the Results Matrix was supplemented by discussions with UN agencies and other stakeholders including national government representatives. The Results Matrix 2008 (Output Table) is presented in a much simpler format than the one included in the UNDAF framework document. Most notably the format is based on “Output” rather than “Outcome”. In the matrix being assessed, for each Output, the matrix includes one column on “UN Action and Accomplishment in 2008”. There is no information on Indicator/Baseline, Means of Verification or Assumptions and Risks as specified in the UNDAF Guidelines. In the Results Matrix 2008, there are 19 Outputs included and a total of 76 actions or accomplishments reported. There were no accomplishments reported for four of the Outputs (1.3.3, 2.1.3, 2.3.2, 2.3.4). To reiterate, there is no report on progress on UNDAF Outcomes as specified in the UNDAF Guidelines. Apart from the above, the Results Matrix 2008 for Trinidad and Tobago demonstrates some of the common weaknesses (also see common problems in the previous section of this report) of UNDAF frameworks as noted in various other evaluations: • Ill defined or weak logic • Actions poorly defined • Outputs without indicators • Lack of targets and reporting against these targets • Timelines not defined • Monitoring and Evaluation unrelated to the (original) Results Matrix Bearing in mind the principles behind RBM and the need to concentrate on “SMART” results rather than activities, there is a considerable shortcoming in the Trinidad and Tobago UNDAF “Output Table”. The UNDAF Guidelines notes the following about performance indicators: “A performance indicator is a quantitative or qualitative variable that provides a simple and reliable basis for assessing actual results compared with expected results. Performance indicators are used to answer ‘how’ or ‘whether’ a programme/project is progressing towards its objectives, rather than ‘why’ or ‘why not’ such progress is being made. They are usually expressed in quantifiable terms and should be objective and measurable (e.g. numeric values, percentages, scores and indices).” Reviewing progress of UNDAF as a framework was not possible using quantitative measurement methods or even based on the evaluation of results versus targets (given the lack of performance indicators and format for presentation in the Results Table 2008). 16 The UN Technical Papers regarding Outcomes and Outputs are attached to this report as Annexes 5 and 6 respectively. 3.2 Criteria for UNDAF Assessment The UNDAF Guidelines include eight criteria for UNDAF evaluation. These eight were used during the course of this monitoring review to ensure clarity and to provide an opportunity for continuity during future monitoring exercises. The criteria are: 1. Role and Relevance 2. Design and Focus 3. Comparative Advantage 4. Effectiveness in achieving outcomes 5. Effectiveness as a partnership and coordination mechanism 6. Impact on the poor 7. Efficiency to reduce transaction costs 8. Sustainability 3.3 Assessment of Results 3.3.1 Role and Relevance A Guidelines The UNDAF guidelines include the following questions for assessing Role and Relevance. Does the UNDAF address key development issues? Causes and Challenges? Is the matrix flexible enough to adjust to changing circumstances? Are the outcomes reflective of agreed goals? B Assessment The UNDAF for Trinidad and Tobago followed the finalisation of the CCA for the country by approximately one year. .It was formulated in joint exercises with national authorities and in that respect, it reflects at least the principles of the national priorities as laid down in the National Development Plan (Vision 2020) in addition to incorporating UN objectives. The UNDAF design draws upon the principles of the two documents and focuses effort on two high level outcomes: 1. Effective Public Participation in Government structures at all levels 2. By 2011 Trinidad and Tobago is implementing rights based social and economic policies that effectively empower and protect vulnerable groups The current UNDAF framework has not been amended in any substantive way although there is no reason why this could not be done as needed To date, the only amendments have been related to the Results matrix (for 2008) which simplifies the format and as noted previously documents “UN Agency Actions and Accomplishments.” 17 A logical framework approach that made clear the connections between problems, objectives, activities and results for the UNDAF outcome would improve clarity and transparency and would assist in creating the links with Vision 2020 and MDGs. 3.3.2 Design and Focus A UNDAF Guidelines The M&E Guidelines for UNDAF specify the following criteria as they relate to Design and Focus of UNDAF: 1. UNDAF should be results oriented, coherent and focussed 2. A logic exists between activities within Country Programs and results 3. Outcomes are realistic 4. Risks and Assumptions are addressed 5. Roles and responsibilities of UNDAF partners are well defined and they are facilitated in the achievement of results 6. Country Programs and the UNDAF respond clearly to challenges and promote ownership by national authorities 7. Human rights and principles are reflected in UNDAF 8. Gender equity and equality are reflected in UNDAF B Assessment For ease of reference, the Guideline points noted above are followed below in observations. (1) The UNDAF is coherent and focussed but is clearly not results oriented as documented in the 2008 Output Table. There are no measurable outcomes in this Table. (2) The links between activities and results may be made clear in Country Plans but are not made generally explicit in the UNDAF document and consequently they can appear to be rather random interventions with little connections. In discussion with agencies, the link is often implicit rather than explicitly stated. (3) Outcomes are realistic in theory although often phrased in fairly esoteric language which it is suspected stakeholders do not attach to activities and/or results. It is also not clear whether results are dependent upon adequate financial resources in order to carry out the activities and achieve results (4) Risks and assumptions are addressed and outlined in the original UNDAF M&E table although they are not made explicit in the currently used “Results” matrix. It is clear from discussions with Agencies that one of the most important assumptions inherent in the UNDAF as a whole is that Agency individual programs are fully funded. (5) Discussions with UN Agencies would suggest that there are no clear roles and responsibilities with regard to UNDAF itself. Accountability of UN agencies for outcomes and outputs is not made clear. Some agencies continue to liaise and coordinate according to need but a well defined division of roles and responsibilities for the achievement of all results/outcomes is not apparent. With regard to the national authorities, there is no apparent consciousness that they are partners (let alone driving partners) in the UNDAF. 18 (6) Country Programs and UNDAF do respond to national challenges although the lack of involvement by national authorities can obscure their commitment to or even ownership of, the entire intervention plan. (7) Human rights principles are reflected in the UNDAF and are core to both high level outcomes (8) Similarly, gender equity and equality are well reflected in the UNDAF’s current version. 3.3.3 Comparative Advantage A Guidelines The comparative advantages of the United Nations family are built on trust and a long standing presence at country level and are built upon the following: 1. Promotion of Standards – particularly the Millennium Declaration, MDGs and international human rights instruments 2. Convening power to mobilise and facilitate interaction with a number of partners 3. Impartial support to capacity development 4. Objective monitoring and evaluation of national development framework 5. Impartial policy advice based on international experience, technical expertise and good practices B Assessment The UNDAF’s activities are generally founded on the UN strengths noted above although it is not clear that the national authorities exploit the strength of these resources as much as they could. Bearing in mind the previously mentioned national government lack of capacity in Montoring and Evaluation for Vision 2020, . this could be strengthened through further UN support and incorporated explicitly in UNDAF. 3.3.4 Effectiveness in achieving outcomes A Guidelines This criterion for assessment of UNDAF relates to progress towards agreed UNDAF outcomes. 1. Progress towards UNDAF outcomes as a contribution to achievement of MDGs and in terms of indicators as reflected in the UNDAF M&E Plan. Extent and in what ways was special emphasis placed on strengthening of national capacities, building partnerships, promoting innovations, and the realization of human rights and promoting gender equity and equality. 2. Reasons for success or failure of progress and relationship to the Risks and Assumptions 3. Does UN support through UNDAF promote national execution of programmes and / or the use of national expertise and technologies B Assessment It should be noted that the Results Matrix 2008 reported on outputs rather than Outcomes (results) so no real assessment was possible. 19 Clearly individual agencies and their activities are attempting to build capacity with the overall aim of achieving the higher level outcomes and MDGs. However, the logic of the individual interventions and the foundation of a logical framework approach are not usually that apparent. One part of this may be due to the fact that true joint programming does not appear to take place as the norm. UN agencies have admitted that the interventions they cited in UNDAF were “retrofitted” from their existing programmes. Risks and assumptions have not been cited as reasons for success or failure. On a positive note, the UN’s work on human rights and gender is clearly apparent in the framework and the interventions. 3.3.5 Effectiveness as a partnership and coordination framework A Guidelines One of the principles of UNDAF is that it encourages coordination of UN interventions on the principle that the UN could “deliver as one”. 1. UNDAF’s contribution to the creation of synergies among the programs of UN agencies 2. Enhanced joint programming and complementarity from UNDAF 3. Inputs from different agencies are mutually reinforcing to achieve results 4. Promotion of effective partnerships and strategic alliances around outcomes B Assessment Discussions with agencies have emphasised that the current UNDAF was developed independently from their own work programs and that the UNDAF framework was “superimposed” from above. Consequently it is not something that developed “organically” or from a convergence of priorities / interventions. Most UN agencies noted that nothing would have changed in their current programs if UNDAF did not exist. To be clear, some agencies have related objectives and do work together but it is on a more ad hoc basis than that envisaged in the UNDAF principles. The link between agencies interventions to mutually reinforce efforts and as a contribution to results is not usually explicitly stated. Reports from agencies to date at least indicated that efforts by multiple agencies are not organised around outcomes as presented in UNDAF. 3.3.6 Impact of UNDAF on the poor A Guidelines What is the impact of UNDAF on the lives of the poor, i.e. any major change in UNDAF indicators that can reasonably be attributed to or be associated with UNDAF, notably in the realization of MDGs, National Development Goals and the national implementation of internationally agreed commitments and UN Conventions and Treaties B Assessment The principles of UNDAF are clear in that they address general issues important to the poor and the second higher level outcome refers to empowerment and protection of vulnerable groups. On an operational level however, the connection between the UNDAF outcomes and the progress on tangible “results” that can be felt by the poor is not clear. The forthcoming 20 publishing of the MDG progress report by the GoRTT may at least help to establish a baseline for the future. Measurement and progress towards MDGs might make the connection between UNDAF and the poor more apparent. 3.3.7 Efficiency of UNDAF to reduce transaction costs A Guidelines The principles here reflect the need to reduce costs where possible while maintaining delivery of results. 1. Extent to which UNDAF has contributed to a reduction in transaction cost for the government and for each of the UN agencies 2. Were results achieved at reasonably low or lowest possible cost? B Assessment The Results Matrix for UNDAF 2008 does not include any form of financial reporting. Some UN agencies at least admitted that the budget figures for the interventions in the original UNDAF framework document were very indicative. There is no indication at present (although the forthcoming UN Country Report may provide greater illumination) that UNDAF has contributed to a reduction in transaction costs for government or the UN. Given the previously mentioned fact that joint programming has not been the norm, any savings in costs are not likely to be significant. 3.3.8 Sustainability A Guidelines The guidelines related to sustainability relate to results achieved and the strategies used by the supported Country Programs. Are the results sustainable (i) as a contribution to national development and (ii) in terms of the added value of UNDAF for cooperation among individual UN Agencies? 1. To what extent and in what ways have national capacities been enhanced in government, civil society and NGOs? 2. Have complementarities, collaboration and / or synergies fostered by UNDAF contributed to greater sustainability of results of Country Programmes and projects of individual UN agencies? B Assessment Progress over eight months is difficult to assess particularly based on the Results Matrix 2008 which is largely framed in terms of activities. Certainly some interventions in theory at least could (and probably have done) contribute to national government and civil society capacities. The Matrix does not however illustrate this progress clearly enough. In practice, national capacity improvements are less clear at this early stage of UNDAF implementation. During discussions some interlocutors noted that the applicability of some interventions such as workshops or other training based activities was questionable. In some cases the most 21 appropriate staff did not attend or there was no way of implementing new methods/ideas etc following the UNDAF activity. Although there has been some collaboration amongst UN agencies on selected issues, there is little indication at the moment (nor did this subject come up in discussions during the mission) that synergies have been fostered through the application of UNDAF as a framework. 22 4.0 Conclusions and Recommendations 4.1 Conclusions The UNDAF framework document for 2008 to 2011 represents a good effort to impose a framework on the work of a group of diverse UN Agencies with varying formats for work planning, budgeting, implementation and commitment to Results Based Management. Coverage is reasonable and appropriate to the needs of the Government of Trinidad and Tobago. It attempts to exploit some of the strengths of the UN, reflects the governments’ aims in its Vision 2020 and is not overambitious it its coverage. The weaknesses of the UNDAF framework document are reflected in issues related to accountability and the lack of a clear and coherent logical framework underpinning the planned interventions. This has made the UNDAF framework more of a burden to UN agencies without them being able to benefit from some of the advantages that UNDAF can offer (e.g. joint programming, synergistic inputs, higher visibility outputs, cost savings). In addition, the UNDAF Results Matrix for 2008 largely fails to report on progress by UN Agencies by concentrating on a diverse and sometimes seemingly unconnected set of activities. These are not uncommon comments when compared with experiences with UNDAFs in other countries. This being the first experience with an UNDAF framework in Trinidad and Tobago, there is a lack of experience in making it a workable tool to produce tangible results. The following paragraph from a Mid Term Review of the Jordan UNDAF expresses some of the difficulties UN agencies face in implementing UNDAF. “There are limited and uncertain resources and these are used for programmes and projects which are spread too thin and which create pressures on UN staff and other stakeholders in terms of implementation, and, especially, coordination. Then for the stakeholders there are a number of agencies to deal with, each with separate mandates; governing structures and hierarchies. There is now some harmonization of rules and regulations; programming cycles and budget periods, but not for every agency, there is limited harmonization in processes and procedures and financial and audit requirements. In addition there are diverse work cultures, different speeds of project preparation and approval in different agencies, and disparate transaction times with the Government.” 4.2 Recommendations The recommendations noted below stem from results of the first year review of the UNDAF framework 2008-2011 in Trinidad and Tobago. The review mission consisted of an analysis of the UNDAF framework document as it was approved by UN Agencies and the national authorities, as well as an assessment of progress as laid down in the UNDAF Results Matrix 23 2008. The desk assessment was supplemented with face to face meetings with all UN agencies and with a number of interlocutors in government and other organisations. The recommendations fall within three areas. The first is related to the UNDAF framework itself and the processes that go into making it a workable format. The second reflects on some behavioural changes which might complement tighter documents and processes, and the third relates to information and dissemination. I. UNDAF Documents and Processes: 1. An annual review that includes a broad- based meeting of stakeholders represents a good opportunity to reflect on whether the UNDAF framework document still represents the priority needs of government. The underlying principles of the UNDAF should be validated annually and the opportunity for this is mandated in the UNDAF Guidelines. For example, there are new “realities” resulting from the international financial crisis and this along with the forthcoming finalisation of the first MDG progress report from Trinidad and Tobago may jointly illustrate that priority emphasis and concerns need to be changed. The four year timeframe for UNDAF does not necessarily “sit” easily with varying timeframes and modalities for work programmes, action plans and budgeting. While the Results Matrix should also include as far as possible a time-based set of results - bearing in mind the four year horizon - these should be changed regularly to reflect reality 2. The UNDAF concept has been applied in many countries, with varying levels of success. Implementing an UNDAF involves a complex group of “actors” and the blending of many approaches, concerns and methodologies. Consequently some expert assistance from the UN’s Quality Assurance and Support group could greatly facilitate improving the document and helping the development partners to refine their contributions. Review of the UNDAF Guidelines (recently revised) is essential but these are not always easy to follow. Expert Guidance from the Quality Assurance and Support Group is advised. 3. More opportunities to discuss UNDAF objectives and outcomes will be needed whether or not there is a change in emphasis. The standard Monitoring and Evaluation framework used to report results clearly needs to be revised to reflect UNDAF Guidelines. This implies that there is a more fundamental understanding and adoption of a results based management approach that is based on rigorous stakeholder analysis/problem analysis and should include “SMART”1 results. 4. Any UNDAF program document should include as much as possible from the individual agencies’ work programmes – but also recognising that many UN agencies have normative work as a core part of their own mandates. 5. It is equally important to include in any UNDAF proposed interventions from Agencies where there is confidence in available funding. Including interventions in plans such as UNDAF that have little hope of implementation (the “wish list”) only raises expectations and when not realised, can lead to reduced credibility of the UN. 6. The specific Risks and Assumptions for any logframe approach need to be carefully considered and appropriate actions taken to mitigate negative effects where possible. 1 SMART = Specific, Measurable, Achievable, Relevant, Timebound 24 They also need to be reviewed and revised as appropriate by those responsible for delivering the appropriate results in the Matrix. 7. Many agencies and government departments noted that the baseline data needed for proper assessment of issues is missing and that considerable problems were experienced in obtaining and using reliable data. Data and Statistics is currently a cross cutting issue for UNDAF in Trinidad and Tobago and some reflection on whether it requires even more attention may be useful. In addition, given the difficulties that the Trinidad and Tobago authorities have in implementing a Managing for Development Results Approach allied with the need to better manage monitoring for Vision 2020, greater collaboration on Monitoring and Evaluation for mutual benefit is recommended. Behavioural changes 8. At present there is close liaison between some agencies and departments, but clearly from the conversations with the national authorities one could derive that there is considerably more scope to undertake joint programming (there is a considerable resource on joint programmes and joint programming on www.undg.org).. 9. One of the currently accepted good practice models for UNDAF implementation is to use separate outcome groups (also called focus groups or theme groups) as a forum for planning/implementing and monitoring each of the outcomes. The UNCT will need to decide how to make arrangements for managing outcomes but UNDAF Guidelines state that “UNDAF outcome groups are responsible for using the results matrix, together with partners, for joint monitoring of progress towards each UNDAF outcome.” 10. In connection with the above, “Champions” could be used for each of the seven outcomes. At the moment, no one individual or organisation really has or takes responsibility for success of each UNDAF outcome. The appointment of dual champions from both the UN Agency side and the national authorities could help to focus attention on results and ensure transparent accountability and would provide a potential link with progress to Vision 2020 objectives. 11. Again, from the meetings held, it is clear that agencies do not necessarily meet collectively with the national authorities and instead often act as the lead interlocutor. This approach may be appropriate depending on the field in question (e.g. in the case of some work of the specialised agencies) but there were clear cases during the course of this review where inter-agency approaches might have been beneficial. 12. The UNDAF is a reflection of objectives and targets that are strongly related to those in the MDGs and the national development agenda, Vision 2020. Finding a better means for demonstrating the congruency of the targets for all of the “Frameworks” (in this case by “Frameworks” I mean MDGs, Vision 2020, Ministry priorities and UNDAF) and the consequent results could present a good opportunity to illustrate and promote progress. Information / Dissemination 13. It was evident from a number of meetings with stakeholders and Agencies that information about activities, results, products and services etc is not always well known amongst all stakeholders. Meetings between national authorities and UN agencies too are often bilateral which can hinder a broad sharing of information. Whilst sharing of information at Heads of Agency level does take place regularly, dissemination at lower 25 levels appears to be less effective. Some means of addressing this are manager level meetings or case study meetings where work programs are shared. The use of the focus groups mentioned above in recommendation 9 could also facilitate this. 14. Although lessons learned and examples of good practices are meant to be a core part of the continuous learning process of UNDAF, this is not apparent in the current document. In addition, discussion of lessons learned and replication of good practices could lead to enhanced achievements and present potential opportunities for cost savings. 15. New forms of dissemination could be considered to ensure greater sharing of information. These could include dedicated websites or sharing through web based techniques such as Facebook. 16. UNDAF does not have a high recognition rating at the moment, in part because of its rather nebulous character. If it were based more on hard targets and results, it could be an opportunity to demonstrate progress to the citizens of Trinidad and Tobago and could certainly be used in attaining a higher degree of UN visibility. 26 ANNEXES Annex 1 - Persons Met During the Mission UN Agencies Office of the Resident Coordinator Dr Marcia de Castro Joy Brathwaite Viviana Salsi UNDP Edo Stork Sandra Baptiste-Caruth Beverly Chase Willard Philips UNAIDS Izola Garcia UNIC Angelica Hunt Amanda Laurence ECLAC Neil Pierre Sylvan Roberts Karoline Schmidt Asha Kambon UNFPA Leah-Marie Richards FAO Florita Kentish Lisa Martinez Marion Alleyne PAHO Carol Boyd-Scobie Avril Siung-Chang Marilyn Entwistle Jomo Osborne UNICEF Milen Kidane Marlon Thomson ILO Pierre-Francois Recoing Paula Robinson Sandra Agaratt UNIFEM (by phone) Roberta Clarke Trinidad and Tobago Government and other Stakeholders Ministry of Foreign Affairs Shelley Clarke-Hinds Asia Julta Central Statistical Office Dave Clement Shirley Christian Maharaj Carol Salim Ministry of Health Anton Cumberbatch Andrea Yearwood Violet Duke Oscar Ocho Balkaran Shivnauth National Committee for UNESCO Susan Shurland University of the West Indies Rhoda Reddock Tisha Nickening Disaster Coordination Centre 27 Balkaran Shivnauth National Aids Coordinating Committee Angela Lee Loy Carol-Ann Senah Rosemarie Johnson Andrew Fearon Bureau of Gender Affairs Monica Williams Hermian Smart-Findlay Ministry of Agriculture, Lands and Marine Resources Patrick Cambridge Elizabeth Mohammed Roma Collymore Family Court Donna Boucaud Darlene Joseph Ministry of Planning Vidiah Ramkhelawan Ministry of Labor Shanmattee Singh Omalisa Baldeo Ministry of Social Development Dennis Williams Leslie Donawa Ministry of Local Government Cornelius Price Andre Lashley Inter American Development Bank Iwan Sewbarath-Misser Delegation of the European Commission Stelios Christopolous 28 Annex 2 - Key Questions for UN Agencies and Stakeholders The following is an indicative list of questions used in interviews with UN Agencies and Stakeholders during the Review Mission. • How does the UNDAF fit in your own work programme? • How were you involved in the preparation of the UNDAF? • Does the budget allocation truly reflect the effort needed to achieve suitable results? • How do you view the UNDAF? • Is the UNDAF related to MDGs and Vision pillars? • Why doesn’t the UNDAF just target MDGs and the pillars? • Does the design match the implementation ? • Are there better examples of how UNDAFs work in other countries? • What are the problems in implementing programs with the Government? • What were your main results for 2008? • Which other Agencies do you collaborate with? • Is this the result of joint programming? • Have you ever met with all Agencies together to discuss needs and approaches? • Does the planning progress really reflect a participatory approach? • Which other donors or organisations work in this field? • Is the UNDAF coherent? • How does the Government monitor progress on the Vision 2020 program? • What other areas do you think the UN could help with? • Is the baseline data there? • How do you work with the UN agencies? Which? Why? Others? • Why can’t results be more concrete versus reporting of activities? • What does technical support from the UN mean? • How does Civil Society organise itself in this field? • How do UN Agencies respond to your needs? • How do the activities contribute to the results targeted? • What have been the successes of the recent past? • What should the UN agencies be concentrating on? • What are your priorities? Do you have a workplan? • Do you need to prioritise the priorities? What are your priorities? 29 Annex 3 - UNITED NATIONS DEVELOPMENT ASSISTANCE FRAMEWORK REPUBLIC OF TRINIDAD AND TOBAGO The United Nations Country Team (UNCT) Trinidad and Tobago, June 2007 30 Table of Contents i. Abbreviations ……………………………………… 3 ii. Executive Summary ……………………………………… 4 iii. UNDAF Signature Page ……………………………………… 5 iv. UNDAF at a Glance ……………………………………… 6 ******************** 1. Introduction ……………………………………… 7 2. UNDAF Results ……………………………………… 7 2.1 Effective public participation in governance structures….. 8 2.2 Protection and Empowerment of Vulnerable Groups ……... 9 3. UN Initiatives Outside the UNDAF Results Matrix………………….. 9 4. Resource Requirements, 2008- 2011 ……….……………………. 9 5. Implementation of the UNDAF …….……………………….. 10 6. Monitoring and Evaluation (M&E) ……………………………… 11 ******************* Annexes I. UNDAF Results Matrices: a. Effective public participation in governance structures.…… 12 b. Protection and Empowerment of Vulnerable Groups …….. 15 II. UN Initiatives which fall outside UNDAF Results Matrix ……… 18 I1I. UNDAF Monitoring and Evaluation Framework a. Effective public participation in governance structures……… 20 b. Protection of Vulnerable Groups ………………………… 22 IV. Monitoring & Evaluation Programme Cycle 2008-2011 ……… 24 31 ABBREVIATIONS CAS - Country Assistance Strategy CCA - Common Country Assessment CPD - Country Programme Document CPAP - Country Programme Action Plan CPO - Country Programme Outcome CSO - Central Statistical Office ECLAC - Economic Commission for Latin America & the Caribbean EIU - Economic Intelligence Unit FAO - Food and Agriculture Organization GDP - Gross Domestic Product GoRTT - Government of the Republic of Trinidad and Tobago ILO - International Labour Organization MDGs - Millennium Development Goals M&E - Monitoring & Evaluation NACC - National AIDS Coordinating Committee NALIS - National Library of Trinidad and Tobago NCC - Net Contributing Country NGO - Non-Government Organization PAHO - Pan American Health Organization RHA - Regional Health Authority TCPR - Triennial Comprehensive Policy Review THA - Tobago House of Assembly UNAIDS - United Nations Joint Programme on HIV & AIDS UNCT - United Nations Country Team UNDAF - United Nations Development Assistance Framework UNDP - United Nations Development Programme UNESCO - United Nations Education, Scientific and Cultural Organization UNFPA - United Nations Population Fund UNIC - United Nations Information Centre UNICEF - United Nations Children Emergency Fund UNIFEM - United Nations Development Fund for Women UWI - University of the West Indies 32 EXECUTIVE SUMMARY The United Nations Development Assistance Framework (UNDAF) is the business plan of the UN system in Trinidad and Tobago for the period 2008-2011, providing a roadmap for focused and coordinated development cooperation to respond to national priorities and needs. It is the result of a consultative process among United Nations organizations, the Government of the Republic of Trinidad and Tobago (GoRTT), civil society, private sector and academia. The UNDAF is guided by the principles of the Millennium Declaration, and the draft National Strategic Plan: Vision 2020 of the GoRTT, and is based upon the Common Country Assessment (CCA) completed by the United Nations Country Team (UNCT) in December 2006. The UN Secretary General’s report “In Larger Freedom”2 was also used to provide the analytical framework to discuss social and economic inequity, human security and the protection of human rights, including gender-based analysis, in Trinidad and Tobago. The UNDAF therefore translates these analyses into a common operational framework for development activities upon which UN organizations, individually or collectively will formulate their work programmes for the period 2008-2011, integrating human rights and gender equity into the programming process. Due consideration was also given to the fact that Trinidad and Tobago is ranked in the high human development category with per capita income in excess of U$8,000 and will graduate to Net Contributing Country (NCC) status by 01 January 2008. This framework also facilitates commitments from development partners to support the country’s progress to MDGs. One of the milestones in the consultative process of developing the UNDAF was a workshop, the UNDAF Prioritization Retreat, 3 to determine the priority areas for UN intervention. While many human development challenges for the country were debated, the workshop pointed to two critical areas which were important to national development and which therefore should be a priority for UN System intervention. These emanated from two national priorities to be achieved in the draft National Strategic Plan • Citizens are impacting on the decision-making processes that affect their every day lives; • Trinidad and Tobago is a more caring and nurturing society where development is sustained and pro-poor, and vulnerable groups are effectively protected. These national priorities were therefore used to shape two UNDAF Outcomes -‘Effective public participation in governance structures at all levels’ and ‘Trinidad and Tobago is implementing rights-based social and economic policies that effectively empower and protect vulnerable groups’. To achieve these priorities, the UNDAF Results Matrix describes seven (7) Outcomes expected from the programmes and projects of contributing UN organizations. The strategy will be to maximize the strengths and comparative advantages of each UN organization while working towards greater coherence and harmonization as ‘One UN’, in order to optimize the impact of UN development cooperation. The UNDAF will also be instrumental to identify opportunities for joint programmes and other collaborative mechanisms to reduce transaction costs and improve UN System effectiveness. Progress in achieving the planned UNDAF Outcomes will be measured through the UNDAF Monitoring and Evaluation process, which links Outcomes with relevant indicators and sources of verification. These are summarized in section 6, Monitoring and Evaluation. Throughout the four year cycle, UNDAF activity will be monitored and evaluated at regular meetings of UNCT-led working groups comprising UN organizations, representatives of the GoRTT, civil society and other partners. Major reviews will be undertaken annually and included in the Annual Report of the Resident Coordinator. The final annual report in 2010 will inform planning for the next UNDAF cycle. The UNDAF will remain a living document which may be updated at any time during its four year duration to take into account any changes in the development agenda of Trinidad and Tobago. 2 Annan, Kofi A., “In Larger Freedom”. UN DPI, United Nations, NY 2005 3 Workshop to determine UN interventions or Country Programme Outcomes 33 iii. SIGNATURE PAGE The present UNDAF has been developed through consultation with the UNCT in Trinidad and Tobago, the GoRTT, civil society, private sector and academia with the aim of improving the lives of the people of Trinidad and Tobago, especially the most vulnerable. The UNCT and the GoRTT therefore pledge to foster cooperation, coordination and partnership, in order to implement this United Nations Development Assistance Framework, as a means to support Trinidad and Tobago’s fulfilment of national priorities, the objectives set out in the draft National Strategic Plan: Vision 2020 and the Millennium Development Goals (MDGs). Mrs. Camille Robinson- Regis Dr. Marcia de Castro Minister of Planning and Development United Nations Resident Coordinator Government of the Republic of Trinidad and Tobago for Aruba, Netherlands Antilles, Suriname and Trinidad and Tobago Dr. Carol Boyd-Scobie Dr. Marcia de Castro Representative, Trinidad and Tobago Resident Representative Pan American Health Organization United Nations Development Programme / World Health Organization. for Aruba, Netherlands Antilles, Suriname and Trinidad and Tobago Mr. Harold Robinson Mr. Johannes Wedenig Representative for the English and Dutch Representative, Guyana, Suriname Speaking Caribbean, and Trinidad and Tobago United Nations Population Fund United Nations Children’s Fund Mrs Florita Kentish Dr. Ana-Teresa Romero Representative, Director, Food and Agricultural Organization International Labour Organization Dr. Kwame Boafo Ms. Roberta Clarke Director, Office for the Caribbean, Representative, United Nations Educational Scientific United Nations Development Fund for Women and Cultural Organization Mr. Neil Pierre Ms. Angelica Hunt Director, Director, Economic Commission United Nations Information Centre for Latin America and the Caribbean Dr. Karen Sealey, Director, Joint United Nations Programme on HIV&AIDS 34 iv. UNDAF at a Glance Selected Areas of Cooperation Effective Participatory Governance (Good Governance & Human Rights) Empowerment and Protection of Vulnerable Groups (Poverty & MDGs) National Priority or Goal Citizens are impacting on the decision– making processes that affect their everyday lives. Trinidad and Tobago is a more caring and nurturing society where development is sustained and pro-poor, and vulnerable groups are effectively protected. UNDAF Outcome Effective public participation in governance structures at all levels. By 2011 Trinidad and Tobago is implementing inclusive and rights-based social and economic policies that effectively empower and protect vulnerable groups. Country Programme Outcomes Governance structures and practices are more decentralized and responsive to needs at the local level Legislative and policy frameworks are strengthened to support a rights-based approach to development. Information systems established which provide quality data and support the monitoring of evidence-based public policies, programmes and reporting obligations. HIV response is fully mainstreamed in all sectors. Creation of an enabling environment for sustainable development. The protective environment for children, women and other vulnerable groups, is strengthened. Implementation of Tobago’s development strategy, “Clean, Green, Safe and Serene”. 35 1.0 INTRODUCTION Background and Purpose In order for the UN to articulate a coherent vision and strategy for a unified approach towards common development goals at the country level, the CCA and the UNDAF were adopted as strategic planning tools for the UN system. According to the UN’s Triennial Comprehensive Policy Review (TCPR) of operational activities for development, both of these tools are efforts “to improve support for national development priorities and policies”. The CCA and UNDAF are also designed to guide the preparation of country programmes and projects and ensure that gender as well as human rights principles and standards are integrated into the national programming process. In December 2006, the UNCT finalized the CCA document which laid the foundation for the UNDAF process. The CCA was based largely upon the recently completed (2004) draft National Strategic Plan for Trinidad and Tobago: Vision 2020. The UN Secretary General’s report “In Larger Freedom” was also used to provide the analytical framework to discuss social and economic inequity- Freedom from Want, human security- Freedom from Fear, and the protection of human rights, including gender- based analysis, - Freedom to live in dignity, in Trinidad and Tobago. As a result, the areas identified for UN intervention are in accordance with the five (5) national priority development pillars which have been selected by the GoRTT to guide its journey to achieve developed country status by the year 2020. Important considerations in determining the Country Programme Outcomes were UN resources, the capacity of the UNCT as well as its comparative advantage. However a critical variable was the fact that Trinidad and Tobago would graduate to Net Contributing Country (NCC) status with effect from 01 January 2008 and this would impact on UN resources which could be available to a resource-rich and ‘high development’ country4. 2.0 UNDAF Results 2.1 UNDAF Outcomes The UNDAF addresses the dual pursuit of the MDGs and national compliance obligations under UN instruments. As such it is rooted in the national development priorities as outlined in the Vision 2020 and constitutes a clear strategy for focusing actions on human rights, sustainable human development and poverty reduction. The UNDAF identifies two (2) UNDAF Outcomes which have evolved out of the five national development priorities. These are to be achieved in partnership with the GoRTT, civil society, private sector and other development partners. The two outcomes are: 1. Effective public participation in governance structures at all levels. 2. By 2011 Trinidad and Tobago is implementing inclusive and rights-based social and economic policies that effectively empower and protect vulnerable groups. Country Programme Outcomes & Outputs Country Programme Outcomes have been defined for each of the two UNDAF Outcomes, and in turn, appropriate Country Programme Outputs have also been developed. The UN Country Team has also agreed that at a minimum, all UN organizations will work together on two (2) joint programmes with respect to the Country Programme Outcomes- one for Tobago and one for HIV & AIDS. 4 Trinidad and Tobago is ranked 57, high human development category, according to the UNDP Human Development Report 2006 and per capita income exceeds U$8,000. 36 2.2.1 UNDAF Outcome 1 (Annex 1a) Effective Public Participation in Governance Structures at all levels Governance can be defined as the vehicle through which individuals, institutions, rules and political processes contribute to economic growth, the realization of rights and the alleviation of poverty. Governance challenges in Trinidad and Tobago tend to manifest themselves in a continuing reluctance by citizens to participate in decision-making processes which impact their daily lives, and in the structures and processes of political life. There seems to be generalized disaffection with government and this is reflected in an Opinion poll5 on confidence in fourteen different institutions where political institutions recorded the lowest levels (34%), after Trade Unions (44%), and Parliament (39%). Political institutions in Trinidad and Tobago therefore seem to have been weakened and party representation no longer reflecting the interests of much of society. According to a publication of the Economic Intelligence Unit (EIU), “Democracy Index: the World in 2007”, the republican parliamentary democracy of Trinidad and Tobago has been categorized as a ‘flawed democracy’, ranking 48 out of 167 countries. The EIU explained that in ‘flawed democracies’, levels of political participation are generally very low and democratic cultures are weak. Further, democracies only flourish when citizens are willing to take part in public debate, elect representatives and join political parties. Without this broad sustaining participation, democracy begins to wither and become the preserve of smaller select groups. Thus there is need for initiatives which are designed to identify and address the issues which serve as access barriers, inhibiting more widespread involvement. Through the Country Programme Outcomes identified, the wider population, as “claim holders”, will be encouraged to participate in governance related activities, and programs will be implemented so that government as “duty bearers” will be increasingly willing to listen to their constituents and act responsibly. From the point of project conception, a gender focus will be adopted to ensure that women’s rights are addressed. With governance, areas requiring specific focus include; • Access to information: developing an information society, empowering citizens to become more involved and aware of their individual roles and responsibilities in a modern democracy. • Participation: encouraging greater involvement and ownership of affected stakeholders; • Accountability: working with the relevant authorities to establish systems whereby public officials, elected as well as appointed, are responsible for their actions and responsive to public demands • Fairness: Ensuring that rules apply equally to everyone, (men and women) in society regardless of status; • Transparency: Ensuring that decisions made by public officials are clear and open to scrutiny by citizens or their representatives; • Efficiency: Monitoring that government plans are implemented in an effective manner. As a result, support will be provided to achieve the following Country Programme Outcomes: • Governance structures and practices are more decentralized and responsive to needs at the local level. • Information systems established which provide quality data and support the monitoring of evidence-based public policies, programmes and reporting obligations • Creation of an enabling environment for sustainable development • Implementation of Tobago’s development strategy, “Clean, Green, Safe and Serene”. There will be strong reliance on partnerships with the NGO community and select government Ministries – Local Government, Community Development, Social Development and the Tobago House of Assembly (THA) – in particular, to achieve these Outcomes. 5 Ministry of Public Administration and Information. Opinion Leaders’ News. Issue No. 5 September 2005 37 UNDAF Outcome 2 (Annex 1 b.) By 2011 Trinidad and Tobago is implementing inclusive and rights-based social and economic policies that effectively empower and protect Vulnerable Groups This Outcome focuses on poverty alleviation strategies. Poverty tends to manifest itself as a range of somewhat intractable health, educational and human security issues. In particular high HIV & AIDS prevalence has a wide-ranging impact going beyond the traditional health perspective, and tends to disproportionately impact the more disadvantaged and vulnerable groups. Poverty in Trinidad and Tobago manifests itself in income inequality, health and education challenges and a continuing inability to develop an adequate safety net to protect children, youth, women and vulnerable groups from threats to their personal and physical security, particularly in the context of rapidly changing family relations, and in the structure of communities influenced by urbanization and rapid economic growth. The reality is that in a society which is experiencing over ten (10) years of economic growth and high per capita income, poverty is at 17%6. The CSO has also reported an unemployment rate of 5% or near full employment7. A larger concern therefore is widening social and economic disparities coupled with a seeming powerlessness among the needy to access a range of programmes and services which have been implemented by the GoRTT to alleviate poverty. Challenges include how to provide incentives for the creation and maintenance of sustained and diversified economic growth; how to prioritize social development initiatives to effectively address the needs of the poor, the marginalized and the more vulnerable in the society. The evidence also shows that HIV & AIDS is greater than 3%8 and poses a significant development challenge since it can be considered generalized to the population and will therefore impact negatively on the labour force and productivity levels. In all areas indicated, there is continuing need for improved data collection, management, monitoring and evaluation designed to correctly assess the scope of poverty-related problems and the effectiveness of measures taken to bring about improvements. UN interventions therefore seek to support implementation of a range of human rights-based social and economic policies to effectively protect society’s most marginalized groups, and to reduce the impact of poverty in all its facets. These policies must address efforts designed to advance educational and other opportunities to improve the quality of life of all citizens, which include ensuring the level of protection and security guaranteed by public authorities. HIV & AIDS will be addressed within the context of the “Three Ones” with institutional strengthening and capacity building of the National AIDS Coordinating Committee (NACC) and appropriate advocacy programmes. Work in the area of poverty will necessarily depend on the development of appropriate systems and the availability of adequate data to inform evidence-based socio-political and economic decision-making. The Country Programme Outcomes to address these challenges are: 1. Legislative and policy frameworks are strengthened to support a rights-based approach to development 2. HIV response is fully mainstreamed in all sectors. 3. The protective environment for children, women and other vulnerable groups is strengthened. The UN will partner with several government Ministries and NGOs to achieve these outcomes. They include the Ministries of Education, Health, Social Development, the National AIDS Coordinating Committee (NACC), the Network of NGOs as well as other development partners. 6 Ministry of Social Development. Unpublished report 2006. 7 Central Statistical Office. Survey of Living Conditions 2006. 8 UNGASS HIV&AIDS Report 2006. 38 3.0 UN Initiatives outside the UNDAF Results Matrix (Annex III) Five (5) UN organizations – ECLAC, ILO, PAHO/ WHO, UNESCO and UNIC - will have programmes which fall outside the umbrella of the UNDAF Results Matrix 2008-2011. It is noted that many of these initiatives were begun in 2007 and will continue during the new programming cycle. Resources allocated to these programmes total U$1,088,000. 4.0 RESOURCE REQUIREMENTS An estimate of the financial resources required to achieve the two (2) UNDAF Outcomes are summarized below. Additional details are provided in the UNDAF Results Matrices at Annexes 1a and 1b. The contributions include regular and other resources of all contributing UN Funds, Programmes and Specialized Agencies for the period 2008-2011. The commitments of each agency will be more detailed in the respective Country Pogramme Documents (CPDs) and Country Programme Action Plans (CPAPs) or project documents according to the procedures and approval mechanisms of each agency. Estimated Resource Requirements, 2008-2011 (USD) No. UN Agency UNDAF Outcome 1: UNDAF Outcome 2: Total $ 1 ECLAC 130,000 20,000 150,000 2 FAO 1,100,000 150,000 1,250,000 3 ILO 125,000 145,156 270,126 4 PAHO/ WHO 90,000 180,000 270,000 5 UNAIDS 80,000 131,500 211,500 6 UNDP 10,399,000 20,000 10,419,000 7 UNESCO 210,000 135,000 345,000 8 UNFPA 340,000 250,000 590,000 9 UNIC 30,000 -30,000 10 UNICEF 255,000 835,000 1,090,000 11 UNIFEM 35,000 65,000 100,000 TOTAL 12,794,000 1,931,656 14,725,656 5.0 IMPLEMENTATION of the UNDAF Implementation of the UNDAF will be through a series of programmes and related projects managed by established Theme Groups. The UNCT will establish two CCA/UNDAF Theme Groups, one per UNDAF Outcome, to coordinate and manage the implementation of the UNDAF. The Theme Groups will focus on the relevant national priorities and report regularly to the UNCT. Their Terms of Reference will include the review of joint work plans, monitoring and evaluation activities and information sharing. All UN agencies, resident and non-resident, will be encouraged to participate in meetings of the Theme Groups. The structure and content of the UNDAF Results Matrix facilitates it use as a tool to promote greater harmonization among UN organizations and strengthened or joint programming towards common goals. Additionally, the possibility of using the Country Assistance Strategies (CAS) of International 39 Financial Organizations and multilateral organizations to complement the overall aims of the UNDAF will also be explored. Other Theme Groups or inter-agency working groups on cross cutting issues such as Gender, Human Rights, HIV & AIDS, MDGs, Disaster Preparedness will be established as needed and the interrelationships with the two CCA/ UNDAF Theme Groups will be defined. 6.0 MONITORING AND EVALUATION (M&E) Annex 1V 6.1 UNDAF M&E Plan): The UNDAF M&E Plan provides an overview of the specific indicators that have been selected for measuring progress and impact of the UNDAF and Country Programme Outcomes. Through the established Theme Groups the UNCT will be responsible for monitoring the implementation of the UNDAF. Theme Groups will implement the M&E Plan, by arranging surveys, joint field visits, outcome evaluations and other mechanisms. Thus, in keeping with their Terms of Reference, they will • Implement the proposed schedule of monitoring activities as detailed in the M&E framework of this UNDAF (Annex IV). • Assess and report on new challenges which may require adjustments to the UNDAF • Provide input into the preparation of the Resident Coordinator’s Annual Report and /or to MDG Reports Stakeholders from government, civil society and the international community will be invited to participate in these activities as appropriate. All groups and individuals assigned to perform M&E tasks will report their findings to the UNCT. 6.2 UNDAF Annual Review: The UNCT will ensure that annual reviews of the UNDAF are undertaken each year of the programme cycle to assess achievements and shortcomings and thus ensure that the UNDAF remains relevant to the national planning processes and the MDGs. The annual review will be included in the RC Annual Report. 6.3 Final UNDAF Evaluation: In 2010 (the second to last year of the UNDAF), the UNCT will conduct a joint/ final UNDAF Evaluation. The final evaluation will assess the results of the UNDAF in terms of 1. Impact and sustainability of impact 2. Relevance to GoRTT’s pursuit of the MDGs and other development commitments 3. UN positioning within the development community 4. Effectiveness in contributing to the intended outcomes, and 5. The efficiency and effectiveness of the UNDAF as a coordination framework and the effectiveness of the management arrangements. 6.4 Risks and Assumptions: The UNCT made a number of assumptions in preparing the UNDAF. These assumptions, and the risks related to them, may affect the achievement of Outcomes. The assumptions include the following: • Macroeconomic stability continues • Political stability continues • There will be no increased challenges to human security • Changes in regional and international political environment will not have an adverse impact on the socioeconomic conditions in Trinidad and Tobago • As NCC, the GoRTT will provide increased funding for UN programming in Trinidad and Tobago • UN organizations will access reducing core financial resources to achieve UNDAF outcomes. 40 Annex 1a. UNDAF Results Matrices – Trinidad and Tobago UNDAF Results Matrix 1. National priority or goal: Citizens are impacting on the decision-making processes that affect their every day lives Contribution to MDGs: MDG1. Eradicate extreme poverty and hunger; MDG 3: Promote Gender equality and empower women; MDG 7: Ensure environmental sustainability; MDG 8: Develop a global partnership for development UNDAF Outcome 1: Effective public participation in governance structures at all levels Country Programme Outcomes Country Programme Outputs Partners Resource Mobilization Targets - USD CP Outcome 1.1: Governance structures and practices are more decentralized and responsive to needs at the local level. 1.1.1 Civil Society Organizations have increased capacity and information with respect to civil and political rights and responsibilities, to actively participate in policy formulation, programming and implementation of central and local government development strategies. UNDP ILO UNAIDS FAO UNICEF ECLAC PAHO UNFPA UNESCO -300,000 - 20,000 - 30,000 -150,000 - 15,000 - 30,000 -10,000 -40,000 - 35,000 1.1.2 Decentralization of delivery mechanisms for local government administration and appropriate accountability systems are established. UNDP ECLAC PAHO - 3,600,000 - 20,000 -10,000 Sub-Total: 4,260,000 CP Outcome 1.2: Information systems established which provide quality data and support the monitoring of evidence-based public policies, programmes and reporting obligations. 1.2.1. Strengthened capacity for development of a national information data-base. UNDP ECLAC FAO UNAIDS ILO PAHO UNFPA UNESCO - 500,000 - 15,000 -500,000 -9,000 -20,000 -10,000 -100,000 - 100,0001.2.2. An information management system to facilitate reporting on national development plans UNDP -9,000 and policies (Vision 2020) as well as MDGs, is established and utilized. ILO - 20,000 PAHO - 10,000 UNFPA -10,000 UNICEF -100,000 ECLAC - 10,000 First Year Review of UNDAF Framework - Trinidad and Tobago National priority or goal: Citizens are impacting on the decision-making processes that affect their every day lives Contribution to MDGs: MDG1. Eradicate extreme poverty and hunger; MDG 3: Promote Gender equality and empower women; MDG 7: Ensure environmental sustainability; MDG 8: Develop a global partnership for development UNDAF Outcome 1: Effective public participation in governance structures at all levels Country Programme Outcomes Country Programme Outputs Partners Resource Mobilization Targets - USD 1.2.3 Data collection protocols, inclusive of gender-based violence and child abuse, are developed and implemented. UNDP ECLAC UNAIDS UNICEF PAHO UNIFEM ILO FAO UNFPA -340,000 - 30,000 - 13,000 - 15,000 - 10,000 - 25,000 - 20,000 -150,000 -150,000 Sub-Total: 2,166,000 CP Outcome 1.3: Creation of an enabling environment for sustainable development 1.3.1 National reporting on compliance with international treaties, including human rights instruments, in conformity with international obligations undertaken, and ensuring that national legislation as appropriate, is in place and increasingly observed by State institutions and its agents. UNIC (OHCHR) UNDP UNICEF FAO - 30,000 -600,000 - 25,000 -150,000 1.3.2. Improved disaster preparedness and response systems, including social and protective ECLAC -5,000 services, in place for at risk communities, with particular attention to children, women and other UNDP -150,000 vulnerable groups. UNICEF PAHO UNFPA UNESCO - 50,000 -10,000 -10,000 -50,000 1.3.3. Effective broad-based coalition on corporate social responsibility established for delivery of social services to identified vulnerable groups. ILO UNDP UNICEF - 25,000 -100,000 - 10,000 1.3.4. Strengthened institutional capacity and mechanisms for inter- organizational coordination, accountability and responsive for service delivery in the key pro poor sectors. UNDP ECLAC PAHO -250,000 - 15,000 -10,000 Sub-Total: 1,490,000 February 2009 Page 42 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago National priority or goal: Citizens are impacting on the decision-making processes that affect their every day lives Contribution to MDGs: MDG1. Eradicate extreme poverty and hunger; MDG 3: Promote Gender equality and empower women; MDG 7: Ensure environmental sustainability; MDG 8: Develop a global partnership for development UNDAF Outcome 1: Effective public participation in governance structures at all levels Country Programme Outcomes Country Programme Outputs Partners Resource Mobilization Targets - USD CP Outcome 1.4: Implementation of Tobago’s development strategy, “Clean, Green, Safe and Serene”. 1.4.1 UN technical and advisory support to identified programmes under Tobago’s development strategy. ECLAC FAO PAHO UNAIDS UNDP UNIFEM UNICEF ILO UNFPA UNESCO -5,000 -150,000 -20,000 -28,000 -1,600,000 -10,000 -80,000 -20,000 -30,000 - 25,000 Sub-Total: 1,968,000 UNDAF Outcome 1: Subtotal (Governance & Human Rights) 10,399,000 February 2009 Page 43 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Annex 1 b. UNDAF Results Matrix 2 National priority or goal: Trinidad and Tobago is a more caring and nurturing society where development is sustained and pro-poor, and vulnerable groups are effectively protected. Applicable MDGs: MDG 1: Eradicate extreme poverty and hunger; MDG 2: Achieve universal primary and secondary education; MDG 3: Promote gender equality and empower women; MDG 4: Reduce child mortality; MDG 5: Improve maternal health; MDG 6: Combat HIV and AIDS UNDAF Outcome 2: By 2011, Trinidad and Tobago is implementing rights-based social, labour and economic policies that effectively empower and protect vulnerable groups. Country Programme Outcomes Country Programme Outputs Partners Resource Mobilization Targets CP Outcome 2.1.: Legislative and policy frameworks are strengthened to support a rights-based approach to development. 2.1.1. Policy makers consider the impact of economic policies on income inequality, in particular with respect to the labour market and low income groups, and recommend appropriate programmatic interventions UNIFEM ILO FAO UNICEF ECLAC PAHO UNFPA UNESCO -25,000 -50,000 -150,000 -35,000 -10,000 -10,000 -50,000 -25,000 2.1.2. The rights of children, women and other vulnerable groups are integrated into ILO -15,156 national legislation, policies and protocols in keeping with international standards. UNICEF -15,000 UNAIDS -12,000 PAHO -10,000 UNFPA UNDP -500,000 2.1.3. Budget allocation and expenditure patterns regarding services to children, women and other vulnerable groups are integrated and explicitly monitored. UNICEF ECLAC UNFPA -40,000 -10,000 -10,000 Sub-Total: 917,156 CP Outcome 2.2 HIV response is fully mainstreamed in all sectors. 2.2.1 All elements of the implementation of the ‘Three Ones’ are supported. ILO UNICEF UNAIDS UNIFEM PAHO UNFPA - 33,000 - 45,000 - 40,000 - 25,000 - 50,000 - 20,000 February 2009 Page 44 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago National priority or goal: Trinidad and Tobago is a more caring and nurturing society where development is sustained and pro-poor, and vulnerable groups are effectively protected. Applicable MDGs: MDG 1: Eradicate extreme poverty and hunger; MDG 2: Achieve universal primary and secondary education; MDG 3: Promote gender equality and empower women; MDG 4: Reduce child mortality; MDG 5: Improve maternal health; MDG 6: Combat HIV and AIDS UNDAF Outcome 2: By 2011, Trinidad and Tobago is implementing rights-based social, labour and economic policies that effectively empower and protect vulnerable groups. 2.2.2. The UN’s policy, advice and technical support to the national response to ILO -2,000 achieve multi-sectoral targets provided. PAHO -10,000 UNAIDS -21,000 UNICEF -100,000 UNDP -500,000 UNESCO -30,000 2.2.3. Through HIV awareness and participation in decision-making and programme UNICEF -160,000 development, vulnerable groups are empowered and their behaviour changed. UNAIDS -54,500 PAHO -5,000 ILO - 15,000 UNFPA -100,000 UNESCO - 70,000 Sub-Total: 128,500 CP Outcome 2.3: 2.3.1 An integrated framework to address parenting skills and school readiness and ILO -20,000 The protective prevent threats to early child health and development is defined and implemented. PAHO -75,000 environment for children, UNICEF -160,000women and other UNFPA -50,000 vulnerable groups, is 2.3.2. Girls and boys in conflict with the law are utilizing improved mediation, legal UNICEF -60,000 strengthened aid and reintegration services, including health and education services. PAHO -10,000 2.3.3 Programmes to enhance human security and reduce and respond to violence, PAHO - 10,000 including gender-based violence, at family, institutional and community levels, are UNICEF - 80,000 developed and implemented. UNIFEM - 15,000 ILO - 10,000 UNFPA - 10,000 UNESCO -10,000 UNDP - 350,000 2.3.4. Girls and boys in residential/ institutional care benefit from best care practice UNICEF -140,000 monitoring systems and alternative care arrangements, in accordance with UNAIDS -4,000 international standards. February 2009 Page 45 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago National priority or goal: Trinidad and Tobago is a more caring and nurturing society where development is sustained and pro-poor, and vulnerable groups are effectively protected. Applicable MDGs: MDG 1: Eradicate extreme poverty and hunger; MDG 2: Achieve universal primary and secondary education; MDG 3: Promote gender equality and empower women; MDG 4: Reduce child mortality; MDG 5: Improve maternal health; MDG 6: Combat HIV and AIDS UNDAF Outcome 2: By 2011, Trinidad and Tobago is implementing rights-based social, labour and economic policies that effectively empower and protect vulnerable groups. Sub-Total 1,004,656 Total UNDAF Outcome 2 (Poverty & MDGs): 1,931,656 Overall Total 14,725,656 Notes: 1. ILO’s commitment is for work during the biennium 2008-2009 for which there will be an approved programme and budget. Commitments for the biennium to come (20102011) will be submitted after approval of programme and budget or that period. 2. The conservative estimates of the ILO reflect non-cash contributions – i.e. expert advice and technical services of ILO officials. It does not include the cost of expertise that may be provided by officials from ILO headquarters and other offices upon request, nor the costs of publications, training and promotional material which are demand-driven and therefore difficult to forecast at this time. 3. Additional resources for PAHO and the UN DPI (UNIC) for 2008-2009 are to be added after budget is approved. February 2009 Page 46 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Annex 11: UN Initiatives which fall outside the UNDAF Results Matrix 2008-2011: Trinidad and Tobago UN Organization Programme/s Expected Results Funding US$ Timeline Other partners PAHO/ WHO [Based on Country Strategy 2006-2009. Programme is yet to be developed and budget lines are to be advised] Population Health Improved general health care of the population 75,000 2008-09 Minstry of Health, RHAs, NGOs Health systems performance and research Improved performance of health systems 75,000 2008-09 Ministry of Health RHAs, NGOs Health services quality and integration Improved quality and integration of health service delivery 75,000 2008-09 Ministry of Health, RHAs, NGOs Environmental protection and disaster management 75,000 2008-09 Ministry of Health, Agricultre, Municipalities UNIC Projecting ‘One UN’ based on 2 of the priority themes 2006-2008 - MDGs & Development and Human Rights-, remitted by UNCG Secretariat Improve clear & consistent messages: “delivering as one”; greater cohesion in projecting the strength of the UN in its wide range of knowledge & expertise 49,694 April 07 – Mar 08 Min of AG, HRts Unit Min of Foreign Affairs Regionally - Assoc. of C’bean Media Workers UNDLs; GIS ILO Harmonization of labour legislation (sub-regional) Application of fundamental principles and rights at work nationally, and incorporate regionally. 20,000 2008 Ministries of Labour Regional Trade Unions Technical support – Estimate labour demand in specific areas; reintegration of sugar workers in agric.; Wage Survey Cttee; .H/hold income survey Institutional strengthening 64,000 2008 Ministry of Labour Ministry of Agriculture Labour Unions Advocacy & Outreach - SME’s ; Hazardous occupations for children Awareness raising on specific labour issues. 52,000 2008 Ministry of Soc. Dev. Capacity building-Knowledge transfer and skills improvement 40,000 2008 ECLAC Inter-regional Cooperation on the Improvement of data on the 142,000 Nov 2006Regional Central February 2009 Page 47 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago UN Organization Programme/s Expected Results Funding US$ Timeline Other partners measurement of the Informal Sector and informal employment informal sector and on informal employment for the promotion of evidence-based social policies at the national and inter-regional levels December 2008 Statistical Offices Improving Caribbean Household Surveys Improvement in the comparability of social statistics produced in the Caribbean through household surveys and ensure international standards of comparability; Strengthened capacity of NGOs to produce harmonized household survey data sets for comparable analyses at the regional and international levels and new variables for their micro data sets; and improvement in electronic accessibility of systematized household micro level data sets via the internet. 200,000 May 2007 – December 2008 Regional Central Statistical Offices UNESCO Establishing and strengthening of quality management units of the Ministry of Education Improved quality of the national education systems 100,000 2008 Ministry of Education; National Commission on UNESCO Science and technology for development Increased national capacity for research and development in the field of science and technology 70,000 2008-2011 Ministry of Science & Technology; UWI, St. Augustine Development of community media and digital heritage Increased community access to knowledge and information 50,000 2008-2011 NALIS, Toco Foundation February 2009 Page 48 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Annex 111 a.: UNDAF Monitoring and Evaluation Framework 2008-2011: Trinidad and Tobago National priority or goal: Citizens are impacting on the decision-making processes that affect their every day lives. Outcomes Indicators and Baseline Sources of Verification Risks & Assumptions UNDAF Outcome 1: Effective public participation in governance structures at all levels Baseline: Weak public participation in centralized governance structures Indicators: -Mmunicipal corporations which implement a decentralization policy - Percentage of women represented and participating in government structures - Percentage resource allocation at central / municipal level - Policies and programmes designed and implemented with civil society Reports of: -Selected line Ministries including Ministry of the Attorney General, Local Government and Social Development, Public Utilities and the Environment -Civil Society Organizations Assumption/s: - Governance structures will be decentralized and will encourage public participation Risk/s: Continuous political and institutional support CP Outcome 1.1: Governance structures and practices are more decentralized and responsive to needs at the local level. Baseline: Governance functions and structures are dated and centralized. Indicators: - Revised legislation - Institutional and legislative framework updated - Municipalities which implement planned decentralization policies. - Policy objectives agreed by social partners and in which there is consistent implementation and monitoring - New organizational structures established at municipal level - No of cases in which employers and workers together participate in social and labour policy discussions. Reports of several Ministries: -Local Government, Social Development, Community Development, Attorney General, Labour. - Civil Society organizations Annual implementation reports Requests for technical / advisory support from employers and workers’ organizations Assumption/s: - Government policy is to decentralize and encourage public participation in decision- making. - Data is available. Risk/s: Continuous political and institutional support CP Outcome 1.2.: Information systems established which provide quality data and support the monitoring of evidence-based public policies, programmes and reporting obligations. Baseline: Inadequate capacity and systems to provide quality data for evidence based planning. Indicator/s: - A national list of social and economic indicators is adopted. -DevInfo is operational as a national platform for data management and monitoring. - Government reports - Official statistics of the Central Statistical Office - Labour market information Assumptions: A strengthened data management system will be developed to support long term planning. Risk/s: Resources to produce relevant data/ information consistently February 2009 Page 49 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago National priority or goal: Citizens are impacting on the decision-making processes that affect their every day lives. Outcomes Indicators and Baseline Sources of Verification Risks & Assumptions are made available. CP Outcome 1.3: Creation of an enabling environment for sustainable Development Baseline: Key elements (policy, institutional framework, public participation) for sustainable development, not implemented; Worrying levels of crime and violence and continuing vulnerability to disasters, especially floods. Indicators: - Appropriate policies and legislation - Strategic Implementation Plan/s to achieve outcomes - Regular and substantive reporting on social development, including crimes, violence and disasters - A set of key indicators which address progress to achieve decent work. - Reports of government ministries. - Reports from employers’ and Workers’ organizations - Reports of ILO training programmes - Proposals from government, employers and workers Assumptions: Stakeholders and the UN system have a flexible and appropriate analysis of the major challenges. Risk/s: Inadequate technical and financial resources CP Outcome 1.4: Implementation of Tobago’s development strategy, “Clean, Green, Safe and Serene”. Baseline: An approved development plan for Tobago Indicator/s: - Implementation framework for development projects identified. Appropriate reports of the Tobago House of Assembly Assumptions: UN support to Tobago, independently of Trinidad, will be accepted Risk/s: Inadequate financial and other resources Annex 111 b National priority or goal: Trinidad and Tobago is a more caring and nurturing society where development is sustained and pro-poor, and vulnerable groups are effectively protected. February 2009 Page 50 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Outcomes Indicators and Baseline Sources of Verification Risks & Assumptions UNDAF Outcome 2: By 2011, Trinidad and Tobago is implementing rights-based social and economic policies that effectively empower and protect vulnerable groups. Baseline: Weak structures in place to ensure rights-based development Indicator/s: - Areas identified by the Government as priority areas for human rights based development. -Cases filed for infringement of human rights Reports of government Ministries and Civil society Organizations Assumption/s: Trinidad and Tobago will seek to meet its human rights obligations. Risk/s: Policy change away from a rights- based approach to development CP Outcome 2.1.: Legislative and policy frameworks are strengthened to support a rights-based approach to development. Baseline: Existing legislative framework does not adequately facilitate a rights-based approach to development Indicator/s: - Adoption and implementation of recommendations of international policies, agreements and conventions and application to national laws. -A gender-policy implemented and mainstreamed through government entities - A set of indicators reflecting protection of vulnerable groups. - National policies - Records of parliamentary debates - Media reports - Reports of employers’ and workers’ organizations. Assumptions: Appropriate resources will be allocated Risk/s: Inadequate resources, financial and technical will be allocated. CP Outcome 2.2 HIV response is fully mainstreamed in all sectors. Baseline: HIV is not fully mainstreamed in all sectors. Indicator/s: - A national policy on HIV & AIDS implemented in all sectors consistent with the goal of universal access to HIV&AIDS prevention, treatment and care. - Surveillance, monitoring and financial allocation data for inclusion in the (UN/ WHO/ ILO) annual global reports on control of HIV&AIDS and the achievement of targets made available in a timely manner. - Country has functional national and sub-national management body as well as mechanisms for involving community-based organizations and civil society and the World of Work. - National policy and legislation - Reports of the National AIDS Coordinating Committee - Work place policies and implementation plans Assumptions: There is a national policy to mainstream HIV&AIDS which is accepted by all Stakeholders. Risk/s: Stakeholders cannot agree on an HIV&AIDS policy February 2009 Page 51 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago National priority or goal: Trinidad and Tobago is a more caring and nurturing society where development is sustained and pro-poor, and vulnerable groups are effectively protected. Outcomes Indicators and Baseline Sources of Verification Risks & Assumptions CP Outcome 2.3: The protective environment for children is strengthened Baseline: Inadequate protective environment for children Indicators; -Publicly stated government policies which provide an enhanced protective environment for children. -Adoption of key pieces of legislation -A comprehensive set of indicators is adopted to monitor the enhancement of the protective environment for children. Signed agreements with national bodies National HIV&AIDS policy for the education sector. Ministry of Labour reports Assumption/s: Supportive governance systems will be put in place. Risk/s: Convention/s and other agreements are signed , but inadequate funds are allocated towards activities supporting the policy; Inadequate capacity to drive coordination in several areas simultaneously. Annex 1V: Monitoring and Evaluation Programme Cycle Calendar 2008 – 2011 UNCT M and EActivities 2008 2009 2010 2011 Survey/Studies Monitoring System Socio-economic update every year based on Annual budget presentation February 2009 Page 52 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Evaluations Country Programme Evaluations Reviews Country Programme Annual Review Country Programme Annual Review Country Programme Annual review Planning References UNDAF Evaluation Milestones UNDAF Annual Progress Review UNDAF Annual Progress Review Joint Mid-Term Evaluation UNDAF Annual Progress Review M & E Capacity Building Use of Information Resident Coordinator’s Annual Report Resident Coordinator’s Annual Report Resident Coordinator’s Annual Report Resident Coordinator’s Annual Report Partner Activities Participation in UNDAF Annual Progress Review and Country Programme Annual Review Participation in UNDAF Annual Progress Review and Country Programme Annual Review Participation in UNDAF Joint Mid-Term Evaluation and Country Programme Evaluation Participation in UNDAF Annual Progress Review and Country Programme Annual Review February 2009 Page 53 of 73 Annex 4 Indicative M&E Calendar Survey/Studies National Reports on Treaties Ratified Sector Studies Impact Surveys Poverty reviews Monitoring System Socio-economic update each year based on Annual budget presentation Anything related to RBM implementation? Evaluations Agency Studies Sector evaluations Gender assessments Disaster preparedness evaluations Agency Studies Sector evaluations Gender assessments Disaster preparedness evaluations Country Programme Evaluations Agency Studies Sector evaluations Gender assessments Disaster preparedness evaluations Reviews Country Programme Annual Review Country Programme Annual Review Sector reviews Needs Assessments Country Programme Annual Review Sector reviews Needs Assessments Country Programme Annual review Sector reviews Needs Assessments Planning References UNDAF Evaluation Milestones UNDAF Annual Progress Review UNDAF Annual Progress Review Update Monitoring Framework and Indicators Vision 2020 M&E Reports Joint Mid-Term Evaluation Update Monitoring Framework and Indicators Vision 2020 M&E Reports UNDAF Annual Progress Review Update Monitoring Framework and Indicators Vision 2020 M&E Reports M & E Capacity Building Interventions by Agency M&E professionals Agency and programme M&E exercises Joint Monitoring with Vision 2020 team Interventions by Agency M&E professionals Agency and programme M&E exercises Joint Monitoring with Vision 2020 team Interventions by Agency M&E professionals Agency and programme M&E exercises Joint Monitoring with Vision 2020 team Use of Information Resident Coordinator’s Annual Report Resident Coordinator’s Annual Report MDG Report Resident Coordinator’s Annual Report MDG Report Resident Coordinator’s Annual Report MDG Report First Year Review of UNDAF Framework - Trinidad and Tobago Partner Activities Participation in UNDAF Annual Progress Review and Country Programme Annual Review MDG Progress Reports Vision 2020 M&E Reports Participation in UNDAF Annual Progress Review and Country Programme Annual Review MDG Progress Reports Vision 2020 M&E Reports Participation in UNDAF Joint Mid-Term Evaluation and Country Programme Evaluation MDG Progress Reports Vision 2020 M&E Reports Participation in UNDAF Annual Progress Review and Country Programme Annual Review . February 2009 Page 55 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Annex 5 – UNDAF Results Matrix 2008 February 2009 Page 56 of 73 Annex 6 Technical Report Outcomes Key features Outcomes describe the intended changes in development conditions resulting from UN supported programmes and projects. These normally relate to changes in institutional performance, or behavioural changes among individuals or groups. Achieving outcomes often requires the collective efforts of several UN agencies and their Definition: Outcome development partners. The intended or achieved short-term and medium-term effects of an intervention’s outputs, The UN is using two separate, but usually requiring the collective effort of partners. linked, outcome level results: Outcomes represent changes in development UNDAF outcomes and agency conditions, which occur between the completion outcomes9 . of outputs and the achievement of impact. UNDAF outcomes are the strategic, high level results expected from UN system cooperation with government and civil society. A strategic UNDAF outcome is one which: 1. Makes a substantive contribution to the achievement of selected priorities of the national development framework; and 2. Demonstrates the comparative advantages of the UN at country level. UNDAF outcomes are produced by the combined effects of the lower level agency outcomes. But these institutional and behavioural changes depend critically on the commitment and actions of stakeholders and beneficiaries, as well as on results to be achieved by government and partners outside the UNDAF. We need to make assumptions about these commitments and actions. Please refer to the guidance note on assumptions & risks for additional detail. Both UNDAF and agency outcomes must be achievable and measurable. Having agency outcomes enables agencies to aim for high level change from their development interventions. And because agency Outcomes are necessarily means for achieving the collective UNDAF Outcomes, the UN system in any country stays focused on a few strategic priorities. Using a human rights based approach, outcomes should show changes in the performance of rights-holders to exercise and claim their rights, and of duty-bearers to respect, protect and fulfill these rights. The performance of these roles depends on the legal, institutional and policy environment, as well as on the actual capacities of rights holders and duty-bearers. For example: • The UNDAF outcome could reflect the behavioral change expected of rights holders and duty bearers to perform their respective roles. • The agency outcome could show the closing of the legal, institutional and policy gaps that prevent rights-holders and duty-bearers from performing their roles. Real life provides many examples whereby institutional or capacity developments do not translate automatically into behavioral or performance changes. For example, a National 9 Agency outcomes include the outcomes from specialized agency programmes and projects. First Year Review of UNDAF Framework - Trinidad and Tobago Human Rights Commission is created, but it does not get the minimum budget required to fulfill its mandate. To the extent possible, the most disadvantaged or vulnerable rights-holders should be reflected in the UNDAF and agency outcomes. This will also help to mainstream gender and other types of considerations related to the principle of equality and non discrimination. For example, enforcement of a policy to prevent human trafficking, that focuses on indigenous girls from poor, rural areas. Ideally, the UN system in any country will have from 3 to 5 UNDAF outcomes. More than that, and the UN risks trying to do too much with limited resources. Each UNDAF outcome will then have a limited number of contributing agency outcomes. In practice, most countries are moving towards a situation where agency outcomes are shared between two or more agencies. There must be sufficient agency outcomes to make a significant contribution to the achievement of the UNDAF outcome, but too many agency outcomes may fragment resources or duplicate efforts. Outcomes often reflect a choice about strategy or policy. These choices are made in collaboration with government and civil society partners. Because they represent choices, outcomes are often debatable or even controversial, especially if they are based on human rights considerations. After all, while stakeholders may be ready to agree on what needs to change (impacts), they may have quite different ideas on how to carry it out (outcomes). In other words, an outcome represents a statement to the effect that, if we want to achieve the impact, then we need to choose this or that policy or strategy proposed at the outcome level. By implication, there are other policies or strategies that are not chosen. Measuring Outcomes Indicators are needed to help describe how the intended results will be measured. They force clarification of what is meant by the outcome, and can be used for monitoring, evaluating, and reporting on achievement. Before reading the examples below, please read the guidance note on indicators. UNDAF Outcomes are high level results and have a high level of ambition. They are the collective priorities of the UN system at country level, and they usually require the contributions of two or more agencies working together with their government and civil society partners. Agency Outcomes: Two or more agency outcomes contribute to the achievement of an UNDAF outcome. Agency Outcomes are usually the results of the programmes of cooperation or larger projects of individual agencies. They may be driven by agency mandate and comparative advantages. The achievement of agency outcomes depends critically on the commitment and action of partners. February 2009 Page 58 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Checklist CHECKLIST FOR VALIDATING UNDAF OUTCOMES YES NO • The UNDAF outcome conveys high level institutional and/or behavioural changes (The performance of rights-holders to exercise and claim their rights, and of duty-bearers to respect, protect and fulfill these rights) • It conveys change rather than on-going services (eg. support provided to improve) • There is obvious or intuitive causality between the UNDAF outcome and the lower level agency outcomes (If … then) (The closing of the legal, policy and capacity gaps contributes to behavioral change among rights-holders and duty-bearers) • The UNDAF outcome does not repeat the National goal statement/ MDG or contributing agency outcome statements • The UNDAF outcome includes a subject of the intended change (a “who”), and wherever possible these are the most vulnerable or excluded groups • The UNDAF outcome addresses one or more underlying or root causes of problems identified in the CCA (ie. A strategic niche for the UN) • The UNDAF outcome is specific, it does not combine 2 or more different types of results, and is not so general that it could cover just about anything • Each UNDAF Outcome statement is a result that two or more agencies, with their national and local partners, will contribute to achieving • It is realistic - the UN system is likely to achieve it over a five year period CHECKLIST FOR VALIDATING AGENCY OUTCOMES YES NO • The agency outcome conveys institutional and/or behavioural change (The closing of the legal, institutional policy and capacity gaps that prevent rights-holders and duty-bearers from performing their roles) • The agency outcome is NOT a discreet product or service, but a higher level statement of institutional or behavioural change • The agency outcome contributes to one (and only one) UNDAF outcome, and there is clear ‘if-then’ causality • The agecny outcome does not repeat the UNDAF outcome or contributing output statements • The agency outcome includes a subject of the intended change (a “who”). Wherever possible this 'who' is identified as a claim bearer or duty holder and by socio-cultural group and gender as appropriate • The agency outcome addresses one ore more underlying or root causes of problems identified in the CCA • The agency outcome is specific, it does not combine 2 or more different types of results, and is not so general that it could cover just about anything • The agency outcome specifically addresses a gap affecting the most disadvantaged and vulnerable segments of society • The agency outcome derives from the mandate of one or more UN agencies • The agency indicator describes a change which one or more UN agencies is capable of achieving over a five year period, February 2009 Page 59 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Examples of Outcomes and Indicators10 Example 1: Poverty reduction Result Indicator UNDAF outcome: By 2011, there is greater economic growth in targeted poor rural and urban areas - Unemployment rate decreased from x% to Y% in targeted areas - Change (%) in income disparities between poor rural/ urban and rich rural/urban settings Agency outcome: New businesses and jobs are created in targeted, poor rural and urban areas - No and type of new businesses registered - No new jobs created Agency outcome: Local public administrations operate in a more effective and transparent manner - Increase (%) in resources allocated to LPA budgets by central government - No LPAs running deficits - No LPAs with public official plans Agency outcome: Communities and CSOs participate in local development planning, implementation and monitoring - No / quality of public consultations - No CSOs reporting active participation in civic and municipal events Example 2: Good governance Result Indicator UNDAF outcome: Good governance reforms and practices institutionalized at all levels No and type of governance reform laws enacted and policies introduced at National and Ayil level Agency outcome: Governance bodies have greater capacity at central and local levels to carry out governance reforms - Legislative framework and code for local self- governance adopted No recommendations from functional reviews implemented Agency outcome: Institutional capacity of Parliament strengthened to better perform legislative, representational and oversight roles - Procedures and management system adopted - Change in public perception of parliamentary effectiveness 10 Examples have been adapted from CCAs, UNDAFs, CPAPs, and other guidance materials as follows: 1 - Moldova; 2 – Kyrgyzstan; 3 - Afghanistan; 4 – Yemen; 5 – Namibia. February 2009 Page 60 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Example 3: Good governance Result Indicator UNDAF outcome By 2008, Government at all levels and civil society, - Both chambers of National Assembly including communities democratically elected and functioning and individuals, are better enabled to realise improved governance based on the rule of law and - No Provincial and district human rights, with particular emphasis on women councils established as per and marginalized groups Constitution Agency outcome: - % of pending priority laws debated and passed By 2008, transparent, effective and efficient - Basic interim legal framework approved en legislative and policy frameworks and processes are bloc by the new Parliament established and implemented Agency outcome: By 2008, an effective, more accountable and more representative public administration is established at the national and sub-national levels. - Framework for rationalisation of Ministries/ agencies developed and implemented - % of female senior civil servants at Grade 2 and above and more balanced representation of specific groups in the civil service Agency outcome: By 2008, communities and individuals, especially - Voter turnout in parliamentary and district women and marginalized groups, participate elections effectively in the development and political processes - No CSOs registered with MoJ Example 4: Gender Result Indicator UNDAF Outcome: Improved institutional and human capacity to promote gender equity and empower women in social, political, economic and legal spheres. 1. UN Gender Development Index 2. Share of women in elected bodies Agency outcome: Improved institutional framework ensuring that women and girls have the benefit of their equal rights. Female-male ratio in higher education and civil service Agency outcome: Increased reflection of gender concerns in allocation of public financial resources. 1. Ratio of public expenditure on primary and reproductive health care to total public education and health sector expenditure 2. Percentage of female teachers Agency outcome: Improved social perceptions and attitudes towards statuses and roles of women and men. Percentage of population agreeing with the principle of equal rights between women and men February 2009 Page 61 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Example 5: Basic Services Result Indicator UNDAF outcome: By 2010, the capacity of Government and civil society institutions is strengthened to deliver and monitor essential/critical health, education and special protection services - % of the public service meeting required competency level (PEMP) - % of teachers qualified Agency outcome: Institutional and community capacity for effective delivery and uptake of critical services, in health and education maintained and strengthened. - Diptheria Polio Tetanus (DPT 3) immunization coverage sustained at 80% in all districts - Maternal mortality (MDG 5) decreased from 271/100,000 (2000) to 120 in (2010) - Proportion of pregnant women and children under 5 sleeping under treated bednets to reach 60% - National Education Fund accessed by xx% of schools - Proportion of orphans to non-orphans attending school is equal. - % of children in Grade 7 who are promoted to Grade 8 Agency outcome: - National Statistical System & Poverty Monitoring The national statistical system is strengthened Strategy finalised to ensure effective development and application - Implementation of Integrated Household Survey of tools for evidence-based decision-making, Programme planning, implementation, and monitoring and - Operationalisation of DevInfo in NPCS linked to all evaluation line ministries. - % NPCS statistical plan followed (Performance Expenditure Management Programme Indicator ) Agency outcome: Increased awareness and capacity for protecting the rights of children, women and other vulnerable groups. - Reduction of proportion of men agreeing that wife beating is justified for at least selected one reason - # of cases handled by Women and Child Protection Units - % of successful prosecutions of rape and child abuse cases (a Performance Expenditure Management Programme indicator) February 2009 Page 62 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Annex 7 Technical Paper Outputs Key features Outputs are commitments. They are results that a programme or project must achieve with the resources provided and within the time-period specified, usually less than 5 years. This makes outputs very different from outcomes or impacts, which are longer term changes that require the energy and resources of multiple partners, and are based on critical assumptions about the Definition: Output The product or service which results from the completion of activities within a development intervention. development environment. Outputs are deliverables. They normally relate to operational change: changes in skills or abilities, the availability of new products and services. They are the type of results over which managers have a high degree of influence. Failure to deliver outputs is, on the face of it, a failure of the programme or project. Outputs should be: •Tangible •Deliverable, and •Sufficient to achieve the expected Agency outcomes (assuming other outputs to be achieved by the government and donors external to the UNDAF) A key feature of outputs is that they should be tangible. When defining outputs, be cautious about using words like "endorsed" or "empowered". Such words may be more appropriate at the outcome level, because they depend critically on the actions of others, outside the control of a programme or project. The most important feature of outputs is that they represent a commitment to deliver. Outputs are what the project or programme promises to achieve. This means that an output should always be something that is within the capacity of the programme or project to deliver. For example, it is normally not appropriate to specify the enactment of a new law or adoption new policy as an output. A programme or project cannot pass laws, or guarantee the adoption of government policies – this depends actions taken by legislatures or policy makers. However, a reasonable output in this context is the preparation of draft text. This follows from a range of activities, common to UN cooperation, to support quality policy development as well as to prepare the ground for eventual adoptions by stakeholders. These include: data collection, orientation workshops, high-level consultation meetings or other advocacy initiatives with stakeholders. There should be sufficient outputs to achieve each agency outcome, taking into account (or assuming) the results to be achieved by the government and donors external to the UN’s cooperation. A single output will almost never be sufficient to achieve the institutional or of a on A rule of thumb for outputs: In general, if the result is mostly beyond the control or influence of the programme or project, it cannot be an output. February 2009 Page 63 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago behavioural changes implicit at the outcome level. On the other hand, if a programme or project has too many outputs, it can lose focus and be difficult to manage. You may be tempted to list things like workshops and seminars as outputs. After all, they are deliverable and some workshops can be strategic if they gather decision takers in one room to build consensus. But, in most cases, workshops and seminars are activities rather than outputs. And remember that outputs are not completed activities – they are the tangible changes in products and services, new skills or abilities that result from the completion of several activities. Outputs also need to be formulated based on the results of a rights-based analysis. Because outputs are operational, they will describe tangible changes in the capacities of these rights holders and duty-bearers: new skills or abilities, responsibility, motivation and authority or greater access to new products, services, and resources. This should lead to better performance of rights holders to exercise and claim their rights, and of duty-bearers to respect, protect and fulfill these rights at the outcome level. Measuring Outputs Indicators are needed to help describe how the intended outputs will be measured. They force clarification of what is meant by the output, and can be used for monitoring, evaluating, and reporting on achievement. Before reading the examples below, please read the guidance note on indicators. Checklist CHECKLIST FOR VALIDATING OUTPUTS YES NO • The output is a new product or service, new skill or ability that can be developed and/or delivered by one UN agency working with its partners • The most vulnerable and disadvantaged will benefit from the output • The output is linked to one (and only one) agency outcome • Each output is stated using change language, and in the form of a deliverable, that will be completed in under 5 years. • The scale or scope of the output is not, intuitively, beyond the control or influence of the UN agency and implementing partner • There is obvious or intuitive causality between the output and the agency outcome to which it contributes (If …then) • The output does not repeat the outcome statement above it • The output is not a completed activity (eg. Training conducted; Workshop completed; Survey implemented – these are activities) • The sum of the outputs are sufficient to achieve the higher level agency outcome • The output is specific, it does not combine 2 or more different types of results, and is not so general that it could cover just about anything Examples of Outcomes, Outputs and Indicators11 11 Examples have been adapted from CCAs, UNDAFs, CPAPs, and other guidance materials as follows: 1 - Moldova; 2 – Kyrgyzstan; 3 - Afghanistan; 4 – Yemen; 5 – Namibia. February 2009 Page 64 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Example 1: Poverty reduction Result Indicator UNDAF outcome: By 2011, there is greater economic growth in No growth data available targeted poor rural and urban areas Proxy: Unemployment rate decreased from X% to Y% in targeted areas Agency outcome: New businesses and jobs are created in targeted, poor rural and urban areas - No and type of new businesses registered - No new jobs created Outputs Market-based vocational training programmes are developed Disadvantaged groups including youth and PLWHA have access to improved employment services and preferential credits for business development. Local business development funds piloted in selected areas Private public partnerships (PPP)s are created in poor rural and urban areas for infrastructure development and service provision No training programmes developed and offered by Vocational Institutes - Increase in use of employment services by young people/ people with low incomes - Amount of credits offered to young people/ people with low incomes as proportion of total business development credits - Qualitative assessment about service access from CSOs working with PLWHA - No LDFs operational - Increase (%) in LDF capitalization - No PPPs Agency outcome: Local public administrations operate in a more - No LPAs with public official plans effective and transparent manner, and receive larger - Approval rates in citizen report cards fiscal transfers from central government (% increase from baseline) - Increase (%) in resources allocated to LPA budgets by central government Outputs: Legal and regulatory framework is improved with particular emphasis on (1) delegation of authority, (2) decentralization of services, (3) costing of local services and budget needs of LPAs Administrative procedures and systems are simplified and streamlined to provide better services Targeted departments of LPAs plan, implement, and monitor in a participatory manner - Draft reform proposals developed - No procedures and systems re-designed - No public consultations conducted by LPAs - No local development plans - Plans incorporate needs assessments and budgets lines related to children, youth, women, and PLWHA (qualitative) Agency outcome: Communities and CSOs participate in local - No / quality of public consultations development planning, implementation and - No CSOs reporting active participation in civic and monitoring municipal events February 2009 Page 65 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Result Indicator Outputs: Network of CSOs are better able to: -monitor social service quality, particularly for children, youth, women, PLWHA -influence policy-making Mechanisms and fora, such as youth councils, are developed at local level to better engage children and young people in policy development - No CSOs that report improved capacities in monitoring and advocacy - Quality and reach of CSO reports (qual.) - No/ type of mechanisms developed - No local councils involving children and young people in planning and decision-making February 2009 Page 66 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Example 2: Good governance Result Indicator UNDAF outcome: Good governance reforms and practices institutionalized at all levels No and type of governance reform laws enacted and policies introduced at National and Ayil level Agency outcome: Governance bodies have greater capacity at central - Legislative framework and code for local self- and local levels to carry out governance reforms governance adopted No recommendations from functional reviews implemented Outputs: A legislative framework and code for local self - Draft framework document and code governance is drafted Transparent decision making processes for select - Draft guideline for Ministerial decision making state bodies are developed with public consultation - Draft guideline/ mechanism for public consultation processes Municipal Civil Servants, and “Ayil” Councilors ,from targeted areas, are able to - No and quality of draft local official plans formulate and implement dev plans that are gender sensitive and use human rights principles Agency outcome: Institutional capacity of Parliament strengthened to - Procedures and management system adopted better perform legislative, representational and - Change in public perception of parliamentary oversight roles effectiveness Outputs: Legislators and parliamentary staff have improved - No of private members bills drafted skills to draft and propose legislation - Constituency relations strategy and action Plan A strategy and action plan developed to improve drafted Parliamentary relations with constituencies, Local - Parliament Web Portal activated Kenesh, and the media - No of constituency newsletters developed - Draft guideline for Parliamentary oversight Improved Parliamentary oversight mechanisms are drafted February 2009 Page 67 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Example 3: Good governance Result Indicator UNDAF outcome By 2008, Government at all levels and civil society, - Both chambers of National Assembly including communities democratically elected and functioning and individuals, are better enabled to realise - No Provincial and district improved governance based on the rule of law councils established as per and human rights, with particular emphasis on Constitution women and marginalized groups Agency outcome: By 2008, transparent, effective and efficient - % of pending priority laws debated and passed legislative and policy frameworks and processes are established and - Basic interim legal framework approved en bloc implemented by the new Parliament Outputs Rules, responsibilities and division of labour for the No indicators listed in Afghanistan UNDAF at main legislative bodies are clarified and their output level. capacities strengthened within the framework Procedures and mechanisms for effective functioning of the National Assembly are developed Procedures and mechanisms for establishment of Provincial, district, village and municipal councils developed National budget process more effectively incorporates inputs from local governance structures Agency outcome: By 2008, an effective, more accountable and more representative public administration is established at the national and sub-national levels, - Framework for rationalisation of Ministries/ agencies developed and implemented - % of female senior civil servants at Grade 2 and above and more balanced representation of specific groups in the civil service Outputs: Framework for a restructured, small and more No indicators listed in Afghanistan UNDAF at coherent Government administration is in place output level. Capacities of civil servants at all levels are strengthened to function within these parameters, including awareness of their obligations under international conventions and their role in meeting them A structure for the National anti-corruption system developed There is increased public awareness about government efforts to fight corruption February 2009 Page 68 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Result Indicator Agency outcome: By 2008, communities and individuals, especially - Voter turnout in parliamentary and district women and marginalized groups, participate elections effectively in the development and political processes - No CSOs registered with MoJ Outputs Roles and responsibilities of mechanisms for direct No indicators listed in Afghanistan UNDAF at participation in governance, including CDCs, are output level. clarified and their operations made effective Development of policy, procedures and capacity for delivery of social services through planning and participation of communities There is improved awareness about the rights of individuals to participate in the political processes and planning for local services February 2009 Page 69 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Example 4: Gender Result Indicator UNDAF Outcome: 3. UN Gender Development Index Improved institutional and human capacity to promote gender equity and empower women in social, political, economic and legal spheres. 4. Share of women in elected bodies Agency outcome: Improved institutional framework ensuring that women and girls have the benefit of their equal rights. Female-male ratio in higher education and civil service Outputs: National laws modified in line with CEDAW provisions Improved access of women to both formal and traditional justice systems Increased active representation and participation of women in decision making political and social sectors - Number of articles violating CEDAW provisions - Number of female judges - Number of courts with help desks for women Increased national and community level action to eliminate violence against women - Number of women voters - Number of women running for office - Number of women in Parliament, local councils and the Shura council - Number of perpetrators brought to trial and held accountable Agency outcome: 3. Ratio of public expenditure on primary and Increased reflection of gender concerns in reproductive health care to total public education allocation of public financial resources. and health sector expenditure 4. Percentage of female teachers Outputs: Development of line ministries’ capacity to apply, assess, and monitor gender-differentiated budgets Increased capacity among women’s organisations to monitor and follow up gender budgeting in development activities - Number of ministries using gender-differentiated budgeting - Number of CSOs/ women’s organizations able to monitor gender budgeting Agency outcome: Improved social perceptions and attitudes towards statuses and roles of women and men. Percentage of population agreeing with the principle of equal rights between women and men February 2009 Page 70 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Result Indicator Outputs: Media, young people and CSO networks mobilised to change perception of gender roles Religious, political and traditional leaders and advocates engaged in promoting an improved status of women - Number of radio/TV programs dedicated to gender issues - Percentage of women between the ages of 15-19 who marry February 2009 Page 71 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Example 5: Basic Services Result Indicator UNDAF outcome: - % of the public service meeting required competency By 2010, the capacity of Government and civil level (PEMP) society institutions is strengthened to deliver Baseline: None and monitor essential/critical health, education - % of teachers qualified and special protection services Baseline: >60% Agency outcome: Institutional and community capacity for effective delivery and uptake of critical services, in health and education maintained and strengthened. - Diptheria Polio Tetanus (DPT 3) immunization coverage sustained at 80% in all districts - Maternal mortality (MDG 5) decreased from 271/100,000 (2000) to 120 in (2010) - Proportion of pregnant women and children under 5 sleeping under treated bednets to reach 60% Baseline (2000): 7% (children only) Target: 60% - National Education Fund accessed by xx% of schools Baseline: no fund - Proportion of orphans to non-orphans attending school is equal. Baseline: none - % of children in Grade 7 who are promoted to Grade 8 Baseline (2002): 76.8% Outputs: Strengthened PHC with focus on children and mothers. Improved access to and retention in quality basic education, especially for vulnerable children No indicators listed in Namibia UNDAF at output level. Agency outcome: The national statistical system is strengthened to ensure effective development and application of tools for evidence-based decision-making, planning, implementation, and monitoring and evaluation - National Statistical System & Poverty Monitoring Strategy finalised - Implementation of Integrated Household Survey Programme Baseline: subject specific - Operationalisation of DevInfo in NPCS linked to all line ministries. Baseline – not yet in place - % NPCS statistical plan followed (Performance Expenditure Management Programme Indicator ) Outputs: National capacities for implementation of National Statistical Plan III and the Poverty Monitoring Strategy strengthened. No indicators listed in Namibia UNDAF at output level. Agency outcome: Increased awareness and capacity for protecting the rights of children, women and other vulnerable groups. - Reduction of proportion of men agreeing that wife beating is justified for at least selected one reason Baseline – 44% - # of cases handled by Women and Child Protection Units Baseline (2003) Reported child abuse cases: 894 - % of successful prosecutions of rape and child abuse cases (a Performance Expenditure Management Programme indicator) Baseline- (to be determined first year of programme) February 2009 Page 72 of 73 First Year Review of UNDAF Framework - Trinidad and Tobago Result Indicator Outputs: The rights of women and children and other vulnerable groups are protected through enactment and application of required and existing legislation. Women, children and those in other vulnerable groups are aware of their rights and how to access the services available. Improved capacity of service providers to offer protection from violence and abuse and care to women, children and vulnerable groups. No indicators listed in Namibia UNDAF at output level. February 2009 Page 73 of 73