Independent Country Programme Evaluation: Panama

Report Cover Image
Evaluation Plan:
2018-2021, Independent Evaluation Office
Evaluation Type:
ICPE/ADR
Planned End Date:
12/2019
Completion Date:
12/2019
Status:
Completed
Management Response:
Yes
Evaluation Budget(US $):
50,000

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Title Independent Country Programme Evaluation: Panama
Atlas Project Number:
Evaluation Plan: 2018-2021, Independent Evaluation Office
Evaluation Type: ICPE/ADR
Status: Completed
Completion Date: 12/2019
Planned End Date: 12/2019
Management Response: Yes
UNDP Signature Solution:
  • 1. Poverty
  • 2. Governance
  • 3. Sustainable
  • 4. Gender
Corporate Outcome and Output (UNDP Strategic Plan 2018-2021)
  • 1. Output 1.1.1 Capacities developed across the whole of government to integrate the 2030 Agenda, the Paris Agreement and other international agreements in development plans and budgets, and to analyse progress towards the SDGs, using innovative and data-driven solutions
  • 2. Output 1.2.1 Capacities at national and sub-national levels strengthened to promote inclusive local economic development and deliver basic services including HIV and related services
  • 3. Output 1.2.2 Enabling environment strengthened to expand public and private financing for the achievement of the SDGs
  • 4. Output 1.4.1 Solutions scaled up for sustainable management of natural resources, including sustainable commodities and green and inclusive value chains
  • 5. Output 1.6.1 Country-led measures accelerated to advance gender equality and women’s empowerment
  • 6. Output 2.1.1 Low emission and climate resilient objectives addressed in national, sub-national and sectoral development plans and policies to promote economic diversification and green growth
  • 7. Output 2.2.1 Use of digital technologies and big data enabled for improved public services and other government functions
  • 8. Output 2.2.2 Constitution-making, electoral and parliamentary processes and institutions strengthened to promote inclusion, transparency and accountability
  • 9. Output 2.2.3 Capacities, functions and financing of rule of law and national human rights institutions and systems strengthened to expand access to justice and combat discrimination, with a focus on women and other marginalised groups
  • 10. Output 3.2.2 National and local systems enabled and communities empowered to ensure the restoration of justice institutions, redress mechanisms and community security
Evaluation Budget(US $): 50,000
Source of Funding:
Evaluation Expenditure(US $): 50,000
Joint Programme: No
Joint Evaluation: No
Evaluation Team members:
Name Title Email Nationality
Ana Rosa Soares Lead Evaluator BRAZIL
Nana Gibradze Evaluation Consultant ngibradze@gmail.com
Carlos Alviar Evaluation Consultant calviar@gmail.com
GEF Evaluation: No
Key Stakeholders:
Countries: PANAMA
Lessons
Findings
1.

Finding 1. UNDP has approached inequality and inclusion in Panama through multiple fronts in alignment with its multidimensional and human development approach. In this process, it has helped to strengthen key social sector institutions and promoted the participatory development of social policies and strategic planning documents that mainstreamed the SDGs. Although integration of multidimensional solutions has been a challenge and there has been limited progress in effectively reducing inequality and improving inclusion, UNDP’s work has helped to change the way social institutions in Panama engage in participatory policy discussions involving multiple sectors. The country now has better knowledge and understanding of poverty and development through the multidimensional lens.


Tag: Effectiveness Inclusive economic growth Inequalities Poverty Reduction Policy Advisory

2.

Finding 2. UNDP is contributing to improving the promotion and delivery of quality HIV and TB health services in Panama. However, national capacities and allocated resources are still insufficient to ensure a timely, successful transition out of the Global Fund in 2021. A transition plan has been developed, but delays were experienced in its implementation.


Tag: HIV / AIDS Global Fund Effectiveness Technical Support

3.

Finding 3. UNDP’s work on improving social services and inclusion has broad outputs and multiple projects, some with limited scope and scale. This makes them susceptible to being executed in silos, with limited integration with other areas, and thus at risk of not strategically addressing social equity and inclusion to ensure significant sustainable results.


Tag: Inclusive economic growth Inequalities Effectiveness Efficiency Technical Support

4.

Finding 4. UNDP has been key in supporting and facilitating participatory dialogue processes that made important contributions to the establishment of consensus and agreements, institutional structures, public policies and development plans. Tangible results contributing to the outcome-level changes have been achieved in some State modernization and institutional reforms; however, these are less uniform and have varied degrees of effectiveness and sustainability.


Tag: Civic Engagement Public administration reform Sustainability Promotion of dialogue Effectiveness Efficiency Technical Support

5.

Finding 5. UNDP has significantly contributed to institutional strengthening and improved accountability, transparency and results-based management of select government institutions in Panama. It has done so by providing useful and tested planning tools, especially through the SIGOB mechanism.


Tag: Operational Efficiency Results-Based Management Effectiveness Technical Support

6.

Finding 6. UNDP has helped to enhance women’s capacities for political participation through training of female candidates and by strengthening institutional frameworks through the creation of the Advisory Committee of Indigenous Women within the National Council for Indigenous Peoples. The effectiveness of these interventions, however, continues to be hampered by structural and cultural barriers that haven’t yet been addressed due to insufficient human and financial resources.


Tag: Indigenous people Women's Empowerment Effectiveness Policy Advisory

7.

Finding 7. While the majority of the planned results have been achieved as per established indicators and targets, the outcome was overly ambitious, and many of the assumptions that underpinned the theory of change did not hold. UNDP did not sufficiently factor in all the risks associated with the deficiencies of the Panamanian public management system and its political and governance context. Nor did UNDP effectively apply adaptive management, considering the magnitude, diversity and complexity of the portfolio, thus reducing its effectiveness and diluting focus.


Tag: Operational Efficiency Theory of Change Effectiveness Technical Support

8.

Finding 8. UNDP effectively contributed to improving commitments to compliance with international environmental agreements. UNDP has also provided the Government with technical advice and supported the participatory development of environmental and energy strategies, plans and policies. This contributed to the institutional strengthening of the Ministry of Environment and helped to prevent and mediate social conflicts related to the use of natural resources.


Tag: Environment Policy Environmental impact assessment Natural Resouce management Effectiveness Policy Advisory

9.

Finding 9. UNDP’s partnership with the Panama Canal Authority has generated innovative approaches for the comprehensive management of the Panama Canal Water Basin. This has improved the capacities of priority rural units by diversifying economic activities and generating sustainable livelihood options that have been incorporated into local economic development.


Tag: Innovation Project and Programme management Effectiveness Technical Support

10.

Finding 10. UNDP’s work to integrate resilience, DRM and climate change adaptation in municipal management plans and budgets has been moderately successful but limited in scope. Although the target of work with 10 municipalities is on track to be achieved by 2020, this is a small percentage of the country’s municipalities. UNDP’s work on mangrove conservation has also been too limited in scope to significantly contribute to the CPD outcome. The rest of the programme, in general, lacked proper mainstreaming of resilience strategies as initially intended in the CPD.


Tag: Capacity Building Climate Change Adaptation Resilience building Operational Efficiency Effectiveness Technical Support

11.

Finding 11. UNDP has helped to strengthen the structure of Panama’s Science and Technology Institute, facilitating a participatory process to develop the National Strategic Plan on Science and Technology and establish its planning, monitoring and evaluation unit. This helped to strategically position science and technology in the political agenda and increase the number of practising doctoral-level scientists in the country. Nevertheless, UNDP’s work with science and technology does not yet have a holistic strategy integrated with the rest of the programme.


Tag: Capacity Building Education Effectiveness Technical Support

12.

Finding 12. UNDP has made relevant contributions to the development of more effective systems to prevent and address different types of violence in Panama. The programme has been successful in strengthening national capacities for citizen security by providing support for the participatory development and implementation of the National Security Strategy and its articulation at the local level. It has also acted as a link between the national and local levels, to promote the national security, justice and decentralization agendas with local authorities.

 


Tag: Capacity Building Justice system Security Effectiveness Technical Support

13.

Finding 13. UNDP has successfully integrated gender into the National Security Strategy and made advances towards gender mainstreaming in citizen security knowledge, information and monitoring systems, programmes, policies and institutional capacities to prevent and address gender-based violence, at both central and local levels.

 


Tag: Gender Equality Gender Mainstreaming Gender-Based Violence Effectiveness Technical Support

14.

Finding 14. Implementation of institutional and judiciary reforms and the decentralization process did not progress as expected. The country office did not adequately factor in the risks associated with the inherent deficiencies of the Panamanian public management system. In addition, UNDP’s contribution to more significant local-level implementation of the security, justice and decentralization agendas has been challenged by its insufficient outreach at the local level.


Tag: Justice system Rule of law Implementation Modality Challenges Technical Support

15.

Finding 15. Without significant UNDP core resources, it has been challenging for the organization to work within a programme approach based on clear theories of change with coherent strategies and solutions to development issues without significant UNDP core resources. The programme is aligned with government priorities, but at times it is overly driven by the government’s funding dispersal demands and is distracted by funding opportunities that may not always be in alignment with the systems thinking approach required by theories of change to effectively and sustainably address development issues. This has led to overly ambitious objectives and broad outputs to allow multiple but narrow projects to be fit under outcomes. They do not always effectively contribute to integrated, sustainable solutions to the development issues that need to be addressed.


Tag: Theory of Change Resource mobilization Efficiency Technical Support

16.

Finding 16. The country office has made substantive progress in mainstreaming gender in its programme and within the office business environment, as reflected in the office being awarded the UNDP silver Gender Equality Seal. Gender mainstreaming, however, has been mostly focused on gender-targeted and gender-responsive approaches and not enough on transformative matters that address key structural barriers and root causes of inequality. UNDP’s effectiveness in promoting gender equality is constrained by limited human resources and the institutional capacities of responsible institutions.

 


Tag: Gender Mainstreaming Programme/Project Design Coherence Relevance Technical Support

17.

Finding 17. South-South cooperation and knowledge management have been underutilized by the programme. There have been ad-hoc initiatives in the framework of some projects, but they have not been systematic. Exchange of experiences has not been properly systematized or documented, and evaluations and lessons learned have been insufficiently used for learning, improving results, replication and scaling up initiatives in Panama and other countries.


Tag: Knowledge management Efficiency South-South Cooperation

Recommendations
1

Advance on SDGs with focus on inequality/leave no one behind – UNDP should help Panama close the inequality gap by better focusing its projects, initiatives and investments on innovations to accelerate achievement of the SDGs with renewed focus on leaving no one behind.

Taking advantage of its local and corporate experience with the government transition (empalme) UNDP can use its strategic position to support the incoming Government with innovations that can help the country tackle the underlying and structural causes of institutional inefficiency and inequalities. These include the lack of a functioning permanent public civil service; ineffective mechanisms to prevent corruption; limited care for children and elderly people, impeding gender equality and women’s empowerment; and limited economic opportunities for indigenous communities. It will be important to strategically clarify UNDP’s integrator role and highlight its corporate comparative advantages and the added value of the human development and multidimensional poverty reduction approaches in addressing inequalities, with a strategic focus on leaving no one behind.

2

Balance administrative, substantive and innovative support – UNDP should incrementally move away from its predominant role as funds/project administrator and make clear to partners its interest in contributing as a strategic and substantive technical development partner. It should underscore its ability to support national partners not only with technical advice but also with innovative solutions to solve the structural causes of inefficiency and dependence on UNDP’s operational and administrative support.

 For that, UNDP will have to commit to being more programme- and results-oriented, as opposed to being driven by demand, process, activities and opportunities. This will require UNDP to impress upon its government partners that it has the requisite skills and experience to provide such strategic advice and to convince them to pay for such services. It will be important to construct theories of change to address development issues and not align outputs to outcomes; work in an integrated fashion, with a proper analysis of the context and barriers to change that would offer an updated view of underlying causes of problems; and clear analysis of stakeholders’ capacities and means to contribute to innovative systems and solutions. Such an approach will require a frank mapping of assumptions, and alignment of inputs and synergic partnerships and resources to build realistic, integrated solution pathways with mitigation strategies for associated risks. This should allow construction of a vision of change based on a more coherent analysis of causes that identifies the links and gaps within and between institutions. It will indicate the minimum and ideal conditions to justify investment and different forms, scale and times of engagement. Equally important is to pursue adaptive management, continuously monitoring to adapt as circumstances change, and to be agile.

3

Focus on structural causes of institutional inefficiencies – UNDP should take the opportunity of the launch of the National Human Development Report, which addresses the renewal of institutions, to introduce a series of dialogues about institutional reforms. The aim would be to address structural causes of institutional inefficiencies — a serious impediment to the sustainability of development results.

Leveraging its role as enabler of participatory consultation processes, UNDP can frame the structural causes and barriers to effectively and sustainably addressing institutional inefficiencies as a proposal for a new dialogue series for public sector reform. This will allow UNDP to strategically position itself with the incoming Government by facilitating national stakeholder consultations. These will provide for ample citizen engagement, following the experience of the previous dialogue processes. In addressing barriers, it will be important to look for opportunities to develop an enabling environment and tackle the underlying causes and negative factors that affect poor governance. UNDP can further help with the State’s limited capacity and discretion to implement the agreements and commitments in the absence of effective regulations and norms to enforce transparent implementation and prevent corruption. Other opportunities for UNDP to assist lie in addressing the gaps related to representation and weaknesses of civil society to generate the demand and transparently be informed on the implementation of agreements and commitments achieved.

4

Redirect gender mainstreaming to focus on addressing structural barriers and the root causes of inequality – UNDP should adjust its theory of change to even more strategically mainstream gender in the programme. In particular it should focus efforts in most if not all initiatives to address structural barriers and the root causes of gender inequality.

 UNDP can go beyond targeting to include men and women in initiatives. It can consider the different barriers faced by men and women in fulfilling their needs and achieving equitable distribution of benefits, resources, status and rights. It can aim to address the root cause of inequalities and discrimination, contributing more to changes in norms, cultural values and power structures. This includes targeting key issues in behaviour change and an enabling environment, such as developing structures to provide care for children and elderly people, as providing such care is a key impediment to women’s participation in the labour force; and helping women to engage more in politics. For such an approach UNDP should reinforce the gender capacities of the country office staff and partners. It also needs a broadly participatory process to adapt its theory of change specifically for mainstreaming a gender focus in initiatives for behaviour change for transformational results.

5

Ensure the transition from the Global Fund sustains HIV/ AIDS results – UNDP should work with national partners and the Global Fund to revise the transition plan and develop risk mitigation strategies to ensure Panama will be prepared to transition out of the Global Fund on time and to sustain HIV/ AIDS and TB treatment and prevention results.

This should include adequate capacity assessment and a proposal for the timely strengthening of the institutional framework to take over the required responsibilities. It is also necessary to define and agree on the technical and financial requirements to develop the required regulations and procedures related to prevention and treatment supply chains. These will allow national funds to be used under rigorous and transparent processes. The challenges ahead require an integrated approach involving multiple stakeholders, not just the health sector.

1. Recommendation:

Advance on SDGs with focus on inequality/leave no one behind – UNDP should help Panama close the inequality gap by better focusing its projects, initiatives and investments on innovations to accelerate achievement of the SDGs with renewed focus on leaving no one behind.

Taking advantage of its local and corporate experience with the government transition (empalme) UNDP can use its strategic position to support the incoming Government with innovations that can help the country tackle the underlying and structural causes of institutional inefficiency and inequalities. These include the lack of a functioning permanent public civil service; ineffective mechanisms to prevent corruption; limited care for children and elderly people, impeding gender equality and women’s empowerment; and limited economic opportunities for indigenous communities. It will be important to strategically clarify UNDP’s integrator role and highlight its corporate comparative advantages and the added value of the human development and multidimensional poverty reduction approaches in addressing inequalities, with a strategic focus on leaving no one behind.

Management Response: [Added: 2020/01/20] [Last Updated: 2020/05/19]

A central challenge for achieving the SDGs in Panama is to strengthen institutions and to reduce the high level of inequality between population groups and regions. As a key partner in the implementation of the 2030 Agenda, UNDP has focused its efforts on addressing these issues with a sustainable human development perspective. UNDP is providing a platform for integration with all governmental and nongovernmental actors, as well as with the UN system through an SDG Task Force. Working with several ministries (including the Ministry for Social Development [MIDES] which leads the Social Cabinet of the Government), UNDP is providing technical support to facilitate the achievement of the 2030 Agenda, specifically supporting: the adoption of methodologies and tools that reinforce planning, monitoring, and evaluation systems for government management, including the local level; strengthening institutional capacities of the National Information System, including supporting its digital transformation; supporting development initiatives targeted at vulnerable groups (indigenous, afro descendant, women and young people); supporting mitigations and adaptation measures for climate change; and strengthening planning as a key tool for mainstreaming and localizing the SDGs in public policies. Over the next years, UNDP will continue and expand on this work, including through the new UN Cooperation Framework and UNDP country programme design process.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
1.1. Include an LNOB approach into the Common Country Analysis (CCA), the UN Sustainable Development Cooperation Framework and UNDP Country Programme
[Added: 2020/01/23] [Last Updated: 2020/08/14]
CO 2020/08 Completed On August 12, the advanced draft of the CPD 2021-2025 was delivered, which is aligned with the Government Plan, the UNDP Strategic Plan and the United Nations Cooperation Framework in Panama. History
1.2. Provide technical assistance to the government in the design and implementation of its new poverty reduction and targeted social protection program (COLMENA) focusing the most vulnerable groups and territories
[Added: 2020/01/23] [Last Updated: 2020/11/26]
CO 2020/12 Completed La asistencia técnica que ha brindado el PNUD a través del Proyecto para la implementación de COLMENA como estrategia para la reducción de la pobreza de manera focalizada dirigida a los grupos más vulnerables en los territorios desde una perspectiva amplia tiene como producto fundamental el cálculo de la Pobreza Multidimensional a nivel de Corregimiento (IPM-C). Ello permitió la identificación de los 300 corregimientos que se encuentran en las condiciones más graves o de extrema pobreza, lo que direcciona el desarrollo y la debida implementación de un modelo de intervención estrechamente vinculado y ajustado a la realidad particular de/en cada territorio. De hecho PNUD Panamá en respuesta al COVID-19 aportó $200.00 dólares en una Iniciativa público-privada de respuesta rápida a la crisis generada por COVID19 que complementará esfuerzos realizados por el Programa de Panama Solidario del Gobierno de Panamá. La iniciativa se localizó en San Miguelito, que es una de las zonas con mayor pobreza multidimensional en Panamá y también uno de los corregimientos con mayor índice de contagios de la COVID19 de abril a septiembre de 2020. La iniciativa permitió un apoyo a 2,500 familias con entregas múltiples de alimentos, productos de limpieza, y productos para infantes, personas con discapacidad y adultos mayores. Mas de la mitad de los hogares beneficiados fueron hogares con mujeres como jefas de hogar. La iniciativa incluyó una campaña de información para la prevención de la violencia contra la violencia doméstica. La iniciativa uso un esquema de voluntariado de la misma zona para la implementación de la iniciativa donde se le entregaron PPE y otros apoyos financieros y en alimentos a los voluntarios. En términos de alianzas la iniciativa incluyó al Ministerio de Relaciones Exteriores, la Embajada de Canadá, Tetrapak, DHL, y Smart Logistics del sector privado y la Cruz Roja Panameña. History
1.3 Prepare analysis and diagnostics for the key population groups of women, afro-descendants and indigenous peoples that will then be incorporated into policy and programming
[Added: 2020/01/23] [Last Updated: 2020/12/10]
CO 2021/06 Completed El día jueves 10 de diciemnbre de 2020, el Programa de las Naciones Unidas para el Desarrollo (PNUD) y el Instituto Nacional de la Mujer (INAMU) presentó los resultados del estudio “Situación de las Mujeres Afropanameñas”, sustentado en los derechos humanos y los acuerdos mundiales sobre la eliminación del racismo y la discriminación social por género y étnica; también aborda el llamado de la Agenda 2030 sobre los Objetivos de Desarrollo Sostenible, para no dejar a nadie atrás. Se adjunta el enlace del documento: https://www.pa.undp.org/content/panama/es/home/library/poverty/situacion-de-las-mujeres-afropanamenas.html History
2. Recommendation:

Balance administrative, substantive and innovative support – UNDP should incrementally move away from its predominant role as funds/project administrator and make clear to partners its interest in contributing as a strategic and substantive technical development partner. It should underscore its ability to support national partners not only with technical advice but also with innovative solutions to solve the structural causes of inefficiency and dependence on UNDP’s operational and administrative support.

 For that, UNDP will have to commit to being more programme- and results-oriented, as opposed to being driven by demand, process, activities and opportunities. This will require UNDP to impress upon its government partners that it has the requisite skills and experience to provide such strategic advice and to convince them to pay for such services. It will be important to construct theories of change to address development issues and not align outputs to outcomes; work in an integrated fashion, with a proper analysis of the context and barriers to change that would offer an updated view of underlying causes of problems; and clear analysis of stakeholders’ capacities and means to contribute to innovative systems and solutions. Such an approach will require a frank mapping of assumptions, and alignment of inputs and synergic partnerships and resources to build realistic, integrated solution pathways with mitigation strategies for associated risks. This should allow construction of a vision of change based on a more coherent analysis of causes that identifies the links and gaps within and between institutions. It will indicate the minimum and ideal conditions to justify investment and different forms, scale and times of engagement. Equally important is to pursue adaptive management, continuously monitoring to adapt as circumstances change, and to be agile.

Management Response: [Added: 2020/01/20] [Last Updated: 2020/05/19]

UNDP works at the service of Member States and their populations, helping to implement national development priorities consistent within the organization’s areas of expertise and mandate. In this sense, UNDP will continue to take the national development priorities of Panama and Agenda 2030 as its overarching programmatic framework. This will involve providing the appropriate blend of technical and operational expertise in line with the organization’s substantive development and operational services role. UNDP takes note of the recommendation regarding causal analysis and theories of change and will incorporate it into the CCA and UNDCF and CPD design processes, ensuring that assumptions are revisited and adjusted throughout the next programme period.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
2.4. Monitor and update the CCA (with the UNCT), which is now a feature of the new tool, as well as the CPD in terms of the right mix between technical and operational assistance in projects
[Added: 2020/01/23] [Last Updated: 2021/04/20]
CO, UNCT 2024/12 Initiated El 24 de febrero de 2021 se anunció la firma del Marco de Cooperación para el Desarrollo Sostenible en Panamá, en donde se encuentra el CCA revisado. Adjunto el Borrador de UNSDCF y la agenda de la firma del mismo. History
2.1. Provide credible evidence and analysis to the development of the Common Country Analysis (CCA)
[Added: 2020/01/23] [Last Updated: 2020/07/17]
CO 2020/08 Completed Attach file CCA History
2.2. Integrate CCA analysis into the new UN Sustainable Development Cooperation Framework and new CPD’s theories of change and results framework
[Added: 2020/01/23] [Last Updated: 2020/08/14]
CO 2020/08 Completed The theory of change and the draft of the new program 2021-2025 History
2.3. Develop CO approach on local development as a way to mainstream and localize SDG
[Added: 2020/01/23] [Last Updated: 2021/04/07]
CO 2020/12 Completed En el marco del proceso para estipular un nuevo pacto socio económico en Panamá, denominado “Pacto del Bicentenario: cerrando brechas”, el PNUD ha diseñado la metodología para su implementación. El proceso se divide en dos fases: “Panamá propone” y Panamá decide”. Se trata de un proceso totalmente innovador, basado en dos aspectos fundamentales: la total participación de la ciudadanía en la fase de “Panamá propone”, que puede ser como individuos, como organizaciones de la sociedad civil, como academia, como instituciones y como partidos. El segundo aspecto innovador es la fase de “Panamá decide”, en la cual se crean 10 comisiones temáticas (una por cada macro argumento de política pública, incluyendo la reforma constitucional y del Estado) en cada una de las 4 regiones del país, más otras diez a nivel nacional. Las comisiones regionales son integradas por organizaciones de la sociedad civil y política, pero también por representantes de los “cinco Panamá” (ciudadanía no organizada). En esta fase se discuten únicamente las propuestas presentadas durante la primera fase, “Panamá propone” en una lógica bottom up, es decir desde los regionales los acuerdos pasan a las comisiones nacionales, para los acuerdos definitivos. Ver Resultados en la Plataforma AGORA: https://www.agora.gob.pa/ History
3. Recommendation:

Focus on structural causes of institutional inefficiencies – UNDP should take the opportunity of the launch of the National Human Development Report, which addresses the renewal of institutions, to introduce a series of dialogues about institutional reforms. The aim would be to address structural causes of institutional inefficiencies — a serious impediment to the sustainability of development results.

Leveraging its role as enabler of participatory consultation processes, UNDP can frame the structural causes and barriers to effectively and sustainably addressing institutional inefficiencies as a proposal for a new dialogue series for public sector reform. This will allow UNDP to strategically position itself with the incoming Government by facilitating national stakeholder consultations. These will provide for ample citizen engagement, following the experience of the previous dialogue processes. In addressing barriers, it will be important to look for opportunities to develop an enabling environment and tackle the underlying causes and negative factors that affect poor governance. UNDP can further help with the State’s limited capacity and discretion to implement the agreements and commitments in the absence of effective regulations and norms to enforce transparent implementation and prevent corruption. Other opportunities for UNDP to assist lie in addressing the gaps related to representation and weaknesses of civil society to generate the demand and transparently be informed on the implementation of agreements and commitments achieved.

Management Response: [Added: 2020/01/20] [Last Updated: 2020/05/19]

UNDP has been a key partner for Panama, providing expertise in the implementation of projects on governance, environment and sustainable development and inclusion, which have had a real impact on the protection of human rights, capacity building, knowledge sharing, and the promotion of gender equity. The National Human Development Report (NDHR), together with the other knowledge products, have provided important baselines for development policy in the country.  In the new programming cycle, UNDP will continue working to address key development challenges in the country in order to reduce inequalities, promote inclusion, strengthen institutions and promote resilience and sustainability.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
3.3. Develop and implement methodology for results-based budgeting with the Ministry of Economy and Finance
[Added: 2020/01/23] [Last Updated: 2020/05/25]
COO 2022/12 Initiated History
3.4. Review and leverage the SIGOB tools and initiatives using the NHDR lens
[Added: 2020/01/23] [Last Updated: 2021/04/20]
CO, SIGOB Regional Project 2025/12 Initiated Desde el Proyecto Regional PNUD-SIGOB se ha continuado el apoyo al gobierno para lograr instituciones modernas y fortalecidas que brinden servicios públicos eficientes, transparentes y e inclusivos teniendo a las personas en el centro de su gestión mediante la aplicación de procesos innovadores y soluciones tecnológicas. En ese sentido, el módulo de Transparencia Documental (TransDoc-SIGOB) se implementa actualmente en 3 entidades públicas: (1) en el Ministerio de la Presidencia se implementa a través de la digitalización y estandarización de los flujos documentales que facilitan tramites y servicios más eficientes y agiles a la ciudadanía, tomando en cuenta, en estos momentos, los requerimientos de distanciamiento social impuestos por COVID-19 pero manteniendo abiertas las puertas del Ministerio para brindar soluciones digitales. (2) El Ministerio de Economía y Finanzas, implementa TransDoc-SIGOB logrando contar con una metodología de trabajo probada para el resguardo de la memoria institucional documental orientada al sector público, instrumentos rediseñados que dan soporte a una política Papel Cero, atendiendo la emergencia por COVID-19, más de 15 millones de copias que se han evitado imprimir por la existencia del documento en digital, una completa integración con la firma electrónica calificada de Panamá y para el flujo de documentos interinstitucional. (3) el Banco Hipotecario Nacional implementa este módulo logrando contar con una metodología de trabajo probada para el resguardo de la memoria institucional documental orientada al sector público, instrumentos rediseñados que dan soporte a una política Papel Cero, atendiendo la emergencia por COVID-19, posibilidad de interactuar con 6 instituciones del Poder Central, más 27 mil Documentos Internos producidos en el Sistema, más de 7,500 Documentos de origen externo registrados en la Mesa de Entrada de la institución y una completa integración con la firma electrónica calificada de Panamá. Por otro lado, mediante la implementación del módulo Trámites Regulares Estructurados (SIGOB-TRE) (1) el Ministerio de Economía y Finanzas, llevo a cabo la racionalización y digitalización de todos los procesos de compras contemplados en la Ley de Contrataciones Públicas logrando 43 procesos identificados y racionalizados con las metodologías de PNUD-SIGOB y gestionados con total trazabilidad, lo que significó más de 130 millones de dólares gestionados con transparencia y 250 personas organizadas en el trabajo en las redes de gestión digital de TRE, logrando un ahorro de al menos 30% del tiempo de gestión habitual para las compras, con más del 50% de ahorro del tiempo para los procesos de requisición y (2) el Banco Hipotecario Nacional logró la revisión, rediseño y configuración en los instrumentos de Administración de 11 procesos de compras y 45 usuarios del Banco Hipotecario cuentan con las capacidades para el ejecución de estos procesos capacitación. Finalmente, por medio de las metodologías y herramientas PNUD-SIGOB, el Ministerio de Gobierno, implementa el proyecto de automatización del proceso de gestión de la Personería Jurídica de organizaciones de la sociedad civil (organizaciones sin fines de lucro) logrando agilizar, simplificar este proceso, y brindando un servicio público transparente y cumpliendo con las normas con las reglamentaciones internacionales en la lucha contra el lavado de activos y financiamiento del narcotráfico y terrorismo. History
3.1 Incidence strategy of the NHDR 2019 through local presentations and dialogues with different stakeholders
[Added: 2020/01/23] [Last Updated: 2020/05/25]
CO 2020/02 Completed PNUD presenta el Informe Nacional de Desarrollo Humano 2019 de Panamá https://www.pa.undp.org/content/panama/es/home/presscenter/articles/2019/pnud-presenta-el-informe-nacional-de-desarrollo-humano-2019.html History
3.2 Finalize and disseminate biproducts of the NHDR addressing structural and institutional challenges (i.e. in-depth studies on civil service and justice sector reform)
[Added: 2020/01/23] [Last Updated: 2020/04/14]
CO 2020/02 Completed https://www.pa.undp.org/content/panama/es/home/presscenter/articles/2019/pnud-presenta-el-informe-nacional-de-desarrollo-humano-2019.html https://www.pa.undp.org/content/panama/es/home/library/poverty/indh-2019--renovando-las-instituciones-para-el-desarrollo-humano.html https://www.pa.undp.org/content/panama/es/home/presscenter/articles/2019/la-calidad-del-funcionariado-publico-es-clave-para-seguir-mejora.html https://www.pa.undp.org/content/panama/es/home/library/democratic_governance/el-servicio-civil-en-panama--documento-tecnico--indh-2019.html History
4. Recommendation:

Redirect gender mainstreaming to focus on addressing structural barriers and the root causes of inequality – UNDP should adjust its theory of change to even more strategically mainstream gender in the programme. In particular it should focus efforts in most if not all initiatives to address structural barriers and the root causes of gender inequality.

 UNDP can go beyond targeting to include men and women in initiatives. It can consider the different barriers faced by men and women in fulfilling their needs and achieving equitable distribution of benefits, resources, status and rights. It can aim to address the root cause of inequalities and discrimination, contributing more to changes in norms, cultural values and power structures. This includes targeting key issues in behaviour change and an enabling environment, such as developing structures to provide care for children and elderly people, as providing such care is a key impediment to women’s participation in the labour force; and helping women to engage more in politics. For such an approach UNDP should reinforce the gender capacities of the country office staff and partners. It also needs a broadly participatory process to adapt its theory of change specifically for mainstreaming a gender focus in initiatives for behaviour change for transformational results.

Management Response: [Added: 2020/01/20] [Last Updated: 2020/05/19]

UNDP has been working consistently on mainstreaming gender equality and women´s empowerment in the CPD and in all the projects, specifically opening up new niches to address gender inequalities, such as women´s economic empowerment and women´s participation in decision making at different levels. Efforts to mainstream gender in programming has meant a clear improvement on the portfolio´s gender markers. UNDP Panama has also used corporate tools, such as the Gender Seal for the Public and Private sector as an important strategy for addressing barriers to gender equality and women empowerment.  For the next programming cycle, UNDP Panama will build on the progress made during the current CPD and reinforce its efforts on tackling structural barriers and root causes through strategic planning, capacity development and establishing a more gender comprehensive system on monitoring transformational results.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
4.1 Develop an assessment of main gender inequalities in the country to inform the CCA, UNDAF and CPD conducted together with other UN agencies such as UNWOMEN, UNFPA, UNAIDS, and UNICEF
[Added: 2020/01/23] [Last Updated: 2020/07/17]
CO 2020/07 Completed Attach file Assessment of main gender inequalities in Panama-2020 History
4.2 Gender theory of change and indicators elaborated to guarantee the new CPD is tackling the structural barriers and root causes of inequalities
[Added: 2020/01/23] [Last Updated: 2020/08/14]
CO 2020/08 Completed The new CPD includes indicators that tackling the structural barriers and root causes of inequalities History
4.3 Capacity development on gender mainstreaming for CO staff
[Added: 2020/01/23] [Last Updated: 2021/07/06]
CO 2021/07 Completed En el mes de junio de 2021 se aplicó una encuesta a los colaboradores (as) de la Oficina de Panamá para establecer la línea base para la capacitación de género por parte del Centro Regional History
4.4 Knowledge products addressing structural inequality (such as political violence against women and women’s economic empowerment)
[Added: 2020/01/23] [Last Updated: 2020/11/13]
CO 2020/12 Completed Perfil de Género de País History
5. Recommendation:

Ensure the transition from the Global Fund sustains HIV/ AIDS results – UNDP should work with national partners and the Global Fund to revise the transition plan and develop risk mitigation strategies to ensure Panama will be prepared to transition out of the Global Fund on time and to sustain HIV/ AIDS and TB treatment and prevention results.

This should include adequate capacity assessment and a proposal for the timely strengthening of the institutional framework to take over the required responsibilities. It is also necessary to define and agree on the technical and financial requirements to develop the required regulations and procedures related to prevention and treatment supply chains. These will allow national funds to be used under rigorous and transparent processes. The challenges ahead require an integrated approach involving multiple stakeholders, not just the health sector.

Management Response: [Added: 2020/01/20] [Last Updated: 2020/05/19]

UNDP is supporting Panama in the transition process to a sustainable response in HIV and TB prevention. UNDP is working with the Ministry of Health, civil society organizations and representatives of the PEMAR population to strengthen their capabilities and accompany the implementation of national HIV and TB programmes. A capacity development plan and a Social Contracting Strategy have been developed that are expected to enable the country to meet the immediate challenges of the transition and address the needs of health services effectively.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
5.1 Implementation of the Capacity Development Plan for the Ministry of Health and other stakeholders, to articulate the response in an orderly and timely transition processes for health services
[Added: 2020/01/23] [Last Updated: 2021/07/09]
CO 2021/12 Completed El Ministerio de Salud (MINSA), el Mecanismo Coordinador de Panamá (MCdP) y el Programa de las Naciones Unidas para el Desarrollo (PNUD) culminan hoy el Foro de Alto Nivel para la Respuesta al VIH y a la Tuberculosis en Panamá. Durante los últimos años Panamá ha sido beneficiada con recursos financieros por parte del Fondo Mundial de lucha contra el VIH, la Tuberculosis y la Malaria (FM). Este apoyo, no reembolsable, termina en diciembre del 2021. A partir del año 2022, le corresponderá al país asumir íntegramente la respuesta ante ambas enfermedades. En su discurso de apertura del foro, el Ministro de Salud Luis Francisco Sucre señaló: “Con la velocidad a la que se producen los cambios, hemos aumentado nuestra capacidad de responder al VIH en las dimensiones que permiten comprender a cada ser humano en su contexto… esto nos invita a la inclusión como la mejor forma de asegurar la respuesta del sistema de manera ordenada, eficiente y orientada a la preservación de su vida. En 2020, 16 mil personas estaban en tratamiento y la mortalidad era de 10.79%, una importante disminución en comparación con años anteriores. En materia de tuberculosis, Panamá planea ponerle fin a la enfermedad al año 2028. En 2020 la tasa de incidencia fue reducida considerablemente” destacó. El ministro Sucre recalcó el compromiso adquirido por el país en la respuesta a ambas enfermedades. En esta próxima etapa el PNUD transferirá las capacidades desarrolladas al MINSA, para asumir las tareas en la implementación de políticas públicas integrales en materia de prevención del VIH y la tuberculosis, bajo los principios de igualdad de género y cero estigma y discriminación para las personas que viven con VIH y tuberculosis. “Este momento representa un reto para el país en su necesidad de contar con herramientas, diagnósticos y estrategias que permitan identificar las buenas prácticas y continuar con los programas e iniciativas que han sido exitosas hasta hoy” indicó Aleida Ferreyra, Representante Residente a.i. del PNUD en Panamá. “En el PNUD siempre estaremos en disposición de apoyar las iniciativas nacionales que surjan” concluyó. En este sentido, tanto el MINSA, como el MCdP y el PNUD alentaron a las instancias participantes al foro a fortalecer el compromiso político del país con las respuestas sostenibles al VIH y a la tuberculosis, reiterando y visibilizando este compromiso desde actores gubernamentales y tomadores de decisiones, con el acompañamiento de socios estratégicos involucrados en la respuesta nacional. “Con este trabajo de los actores en el entorno nacional, proponemos un nuevo modelo de respuesta integrada contra el VIH y la tuberculosis. Este nuevo modelo está basado en la participación activa de todos los niveles y actores claves de forma coordinada y estratégica que permita disminuir rápidamente los nuevos casos de ambas enfermedades.” Señaló el Dr. Amador Goodridge, Presidente del MCdP y de la Organización Panameña Antituberculosa. Las inversiones realizadas por el proyecto, próximo a terminar en diciembre de este año, se orientaron a la preparación financiera y programática del país para una respuesta sostenible a las dos enfermedades. Específicamente se definieron metas y objetivos en los planes estratégicos nacionales y en la estrategia general del sector de salud. También se trabajó en el fortalecimiento de los sistemas de prestación de servicios para que los establecimientos de salud logren entregar servicios de calidad. Igualmente se han fortalecido los sistemas de datos, lo que contribuye a una mejor toma de decisiones. Ver https://www.pa.undp.org/content/panama/es/home/presscenter/pressreleases/foro-de-alto-nivel-para-la-respuesta-al-vih-y-la-tuberculosis.html https://ensegundos.com.pa/2021/07/07/foro-de-alto-nivel-para-respuestas-al-vih-y-tuberculosis/ https://www.youtube.com/watch?v=pSMzWmiNUH4 History
5.2 Work actively with the Ministry of Health to implement the Social Contracting Strategy for the provision of health services related to HIV and TB and the delivery of prevention packages for populations at higher risk of infection
[Added: 2020/01/23] [Last Updated: 2021/07/09]
CO 2021/12 Completed Desde el proyecto se ha acompañado al Ministerio de Salud en el proceso de advocacy para la asignación de un presupuesto para el desarrollo de la Estrategia de Contratación Social, la priorización estratégica de intervenciones para equilibrar las necesidades inmediatas y la delimitación de recursos con los objetivos a largo plazo. La entrega de paquetes de prevención para poblaciones con mayor riesgo de contagio se desarrolla un principio, en dos momentos de la intervención entre pares con la participación de promotoras y promotores de las tres Organizaciones de Sociedad Civil. El primer encuentro se da cara a cara, con la entrega de información sobre prevención, momento en el que hace entrega de 20 lubricantes y 20 condones y en un segundo encuentro grupal se comparten estrategias de cambio de comportamiento que ayuden a prevenir y controlar enfermedades, a la vez que se entregan 20 lubricantes y 20 condones a cada participante. La estrategia de contratación social se implementó en varias fases, la primera fase orientada a la continuación de los servicios dirigidos por las Organizaciones de Sociedad Civil que inicialmente fueron financiadas por el Fondo Mundial para abordar las barreras sociales y sistémicas que afectan el acceso de las poblaciones clave a la prevención y atención del VIH y la Tuberculosis. La convocatoria de propuestas abarcó intervenciones para 1) contactar e identificar a personas pertenecientes a poblaciones clave; 2) entregar paquetes de prevención para poblaciones con mayor riesgo de contagio; 3) remitir a personas de poblaciones clave a los servicios de salud pertinentes para su diagnóstico y, en su caso, tratamiento; y 4) fomentar la búsqueda de nuevos casos positivos para el sistema de salud. La estrategia, además, priorizó el alcance geográfico, centrándose en 6 de las 16 regiones de salud del país durante los primeros dos años de implementación. Las fases posteriores ampliarán el alcance e integrarán servicios adicionales que se consideren importantes para el cumplimiento de los objetivos nacionales en materia de VIH, tuberculosis y salud más amplios. History

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