Outcome Evaluation: Inclusive Governance & Public Institutions UNDP-Liberia

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Evaluation Plan:
2013-2019, Liberia
Evaluation Type:
Outcome
Planned End Date:
11/2016
Completion Date:
07/2017
Status:
Completed
Management Response:
Yes
Evaluation Budget(US $):
95,000

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Title Outcome Evaluation: Inclusive Governance & Public Institutions UNDP-Liberia
Atlas Project Number: 00074662,00074387,00074759
Evaluation Plan: 2013-2019, Liberia
Evaluation Type: Outcome
Status: Completed
Completion Date: 07/2017
Planned End Date: 11/2016
Management Response: Yes
Focus Area:
  • 1. Democratic Governance
  • 2. Others
Corporate Outcome and Output (UNDP Strategic Plan 2014-2017)
  • 1. Output 3.1. Core functions of government enabled (in post conflict situations) to ensure national ownership of recovery and development processes
  • 2. Output 3.3. National institutions, systems, laws and policies strengthened for equitable, accountable and effective delivery of HIV and related services
  • 3. Output 3.5 Communities empowered and security sector institutions enabled for increased citizen safety and reduced levels of armed violence
  • 4. Output 3.6. Governance institutional, and other critical bottlenecks addressed to support achievement of the MDGs and other internationally agreed development goals
SDG Goal
  • Goal 16. Promote peaceful and inclusive societies for sustainable development, provide access to justice for all and build effective, accountable and inclusive institutions at all levels
  • Goal 17. Strengthen the means of implementation and revitalize the Global Partnership for Sustainable Development
  • Goal 5. Achieve gender equality and empower all women and girls
SDG Target
  • 16.5 Substantially reduce corruption and bribery in all their forms
  • 16.6 Develop effective, accountable and transparent institutions at all levels
  • 16.7 Ensure responsive, inclusive, participatory and representative decision-making at all levels
  • 17.18 By 2020, enhance capacity-building support to developing countries, including for least developed countries and small island developing States, to increase significantly the availability of high-quality, timely and reliable data disaggregated by income, gender, age, race, ethnicity, migratory status, disability, geographic location and other characteristics relevant in national contexts
  • 5.5 Ensure women’s full and effective participation and equal opportunities for leadership at all levels of decision-making in political, economic and public life
Evaluation Budget(US $): 95,000
Source of Funding: Various
Evaluation Expenditure(US $): 34,272
Joint Programme: No
Joint Evaluation: No
Evaluation Team members:
Name Title Email Nationality
Hindowa Momoh International Consultant hindowam@yahoo.com
Angelance Browne Nationall Consultant angelance_browne@yahoo.com
GEF Evaluation: No
Key Stakeholders: GOL, UNDP, CSOs
Countries: LIBERIA
Lessons
Findings
Recommendations
1

UNDP’s next CPD and the UNDAF should be aligned to the revised Agenda for Transformation, one that clearly responds to the evolving development architecture. There is need to strengthen and deepen joint programming and resource mobilization for governance initiatives in the face of resource scarcity and funding challenges facing the global community. Joint programming can also widen and deepen UNDP’s influence and reach in the governance sector. They serve as platforms for knowledge exchange and can decrease duplicative activities.

2

UNDP should continue to work with the Governance Commission as its foremost counterpart and partner and the President’s Office to introduce overall structural governance reforms. This is critical to deepening UNDP’s good governance initiatives and bringing about fundamentals changes/reforms in the institutional framework of the state.

3

The initiative and ownership for coordination among development partners and ensuring national partners’ involvement in joint planning and programming should be UNDP focus going forward. There is need for more joined up approach in planning and programming and focusing on building and institutionalizing systems and processes rather than ad hoc approaches.

4

It is critical for UNDP to develop a strategy in collaboration with the Governance Commission for negotiating the decentralization bill and its passing through the House and Senate by breaking it into components. Subject to legal opinion, it is possible that the Executive branch, without the Legislature’s endorsement, can already implement elements of the decentralization policy. The agency should develop a negotiation strategy and engage the International Monetary Fund, The World Bank and the Ministry of Finance into the process in order to ensure that fiscal decentralization is an integral part of the reforms. Such a process will require the President’s office or similar supra-ministerial institution to lead the process, staffed by the Governance Commission to ensure cross-ministerial and cross-governmental participation.

5

There is need for continued technical and financial support the Liberian National Legislature to strengthen its instruments for national political debates, public participation, hearings, feedback and comments. UNDP should also support a mapping exercise for the rule-making and adjudication functions of agencies in order to identify how legislation is implemented and further elaborated upon by the state administration.

6

CSOs are quintessential in deepening governance initiatives in fragile states largely because of their presence in most parts of the country. In this regard, UNDP should develop a more robust programme of support in order to strengthen civil society and their counterparts, the community based organizations present in the rural areas. This is likely to prove a significant challenge, given the current relationship between civil societies in the urban areas and CBOs. Such assistance could be implemented under the overall guidance of the Governance Commission, but should involve umbrella organizations from civil society and encompass advocacy and watchdog organizations, professional associations, labour unions and, to the extent appropriate, community-based organizations and business owners. Such a programme could be implemented as a joint programme between UNDP and the International Labour Organization, which has a special mandate in this area resulting from its own tripartite governance structure.

7

While the consultants are cognizant of the intrinsic risks of addressing human rights issues in fragile political environments, UNDP should proactively support the National Human Rights Commission, follow-up on the Truth and Reconciliation Commission recommendations that touch upon socioeconomic, cultural and political rights by organizing conferences, creating knowledge products and empowering local civil society to address these issues with the government. UNDP should continue to support the National Human Rights Commission to fulfill its mandate—particularly strengthening its Complaints, Investigation and Monitoring Department. This is particularly important in  light of reports by the Secretary-General, Office of the High Commissioner for Human Rights, Amnesty International and Human Rights Watch of continuing human rights violations in Liberia.

8

UNDP should, together with CSOs, the media and development partners, launch a major advocacy campaign to achieve specific top priority changes in justice, human rights and security. This campaign should be strategically sequenced to focus on one or two key messages at a time so as not to dilute focus and for all to speak in powerful unison whenever the opportunity arises.

9

In collaboration with CSOs, the media and development partners, UNDP should launch a major advocacy campaign to achieve specific top priority changes in justice, human rights and security sectors. This campaign should be strategically sequenced to focus on one or two key messages at a time so as not to dilute focus and for all to speak in powerful unison whenever the opportunity arises.

10

It is an under-statement to suggest that in the absence of strong investigative and prosecutorial powers, the LACC will remain largely enfeebled. There is need to capacitate the LACC by recruiting additional investigators and strengthen the Commission’s legal and prosecution units.

11

Additionally, though the Commission’s plan of action includes conducting a citizens’ survey to document perceptions of corruption, it lacks the funds to implement the survey. UNDP should further integrate its support to anticorruption efforts with the National Anti-corruption Strategy. As indicated by the 2006 National Anti-corruption Strategy, anti-corruption measures must target a broad spectrum of actors and take a multi-pronged approach. Whether the Liberian Anti-corruption Commission can carry out its full mandate will depend on political will and government decisions regarding its funding. UNDP should continue to support the Commission to advocate for the implementation of a Civil Service Code of Conduct and an Assets Declaration Regime for Liberian civil servants.

12

Money is the sinew of peace and sustainable development and in the context of forecasted decrease in financial resources at the global level, adequate resource mobilization and use is critical. Funds should be allocated appropriately for beneficiaries and investment must target more women for their untapped potential to contribute to national development.

1. Recommendation:

UNDP’s next CPD and the UNDAF should be aligned to the revised Agenda for Transformation, one that clearly responds to the evolving development architecture. There is need to strengthen and deepen joint programming and resource mobilization for governance initiatives in the face of resource scarcity and funding challenges facing the global community. Joint programming can also widen and deepen UNDP’s influence and reach in the governance sector. They serve as platforms for knowledge exchange and can decrease duplicative activities.

Management Response: [Added: 2017/10/13]

The Country Office (CO) is commencing the drafting of a  new CPD beginning October 2017 which will run parallel to the development of the UNDAF and CCAs. The 2018-2023 CPD will be aligned to the revised AFT so as to account for emerging issues and developmental priorities at the national level. The CO will make the CPD development all inclusive where governmental and non-governmental partners will be consulted to help foster the strategic direction of the CO.

UNDP’s positioning in the wake of the transitions will be articulatyed, making a case for doing things differently in order to effectively prepare for the transitions, including calling to attention to what UNDP’s value proposition would be, and how this would translate into tangible, theory of change-informed programme interventions.   UNDP will seek to respond to the various facets of the development challenges facing Liberia, namely:  economic recovery challenges, transitions including UNMIL withdrawal, UN Capacity Mapping imperatives and the Peace building plan. It is driven by the realization that UNDP cannot stand aloof in the midst of these transitions, and instead must prepare to re-launch itself as a thought leader, capacity and resilience builder and change agent. A just concluded CO review to identify options for a strategic repositioning and programme recalibration heralds the start of this thought trajectory. 

The GPI Pillar is moving towards the consolidation of key programme into joint programme. UNDP is currently implementing a joint programme with UNMIL and the Government on the Rule of Law which has a funding of approximate 16.8 million USD. There is further working being done to strengthen UNDP’s ability to mobilise resources through joint programming. In conjunction with UN Women, a  2Million  Joint Programme on Women Peace and Security is currently being formulated.  

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Planning has already begun for the development of UNDP CO’s new CPD. The main process, however will begin in October and run through 2018.
[Added: 2017/10/17] [Last Updated: 2019/03/18]
UNDP CO 2018/12 Completed The current CPD and UNDAF being developed are aligned to the government's new national development agenda (Pro-poor agenda for Prosperity and Development). Given that job creation, youth and the economy are the bedrock of the new national plan; and given that UN supports the government's plan, the UNDAF and CPD being developed have outlined clear strategies for supporting the government's effort. History
The development of the JP on Women , Peace and Security is ongoing.
[Added: 2017/10/17] [Last Updated: 2019/03/18]
UNDP CO 2018/12 Completed "Inclusive Security: Nothing for Us without Us", a WPS programme is underway. History
2. Recommendation:

UNDP should continue to work with the Governance Commission as its foremost counterpart and partner and the President’s Office to introduce overall structural governance reforms. This is critical to deepening UNDP’s good governance initiatives and bringing about fundamentals changes/reforms in the institutional framework of the state.

Management Response: [Added: 2017/10/17]

UNDP considers the Governance Commission as one of the foremost strategic partners which has identified itself as the leading Governance think tank that has made significant progress in the restructuring of the public sector through its wide variety of policy and programmes especially covering a review of the Mandates and Functions of Ministries, Agencies and Commissions (MACS) of government, decentralization, land reform, civil society capacity building, etc.  This engagement is set to be enhanced and consolidated into the next country programme.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
UNDP is supporting the Governance Commission in advancing decentralization and land reform.
[Added: 2017/10/17] [Last Updated: 2021/03/02]
Country Office and the Governance & Public Institutions Pillar 2020/12 Completed This work is ongoing through the Sustaining Peace and Decentralization Support Projects. History
UNDP is supporting the GC in its efforts to broker the passage of critical pieces of legislation which will further strengthen the goverenace reform agenda in Liberia, including the Local Government Act, land Rights Act, etc.
[Added: 2017/10/17] [Last Updated: 2021/03/02]
Country Office and the Governance & Public Institutions Pillar 2020/12 Completed This work is ongoing through the Sustaining Peace Project. History
3. Recommendation:

The initiative and ownership for coordination among development partners and ensuring national partners’ involvement in joint planning and programming should be UNDP focus going forward. There is need for more joined up approach in planning and programming and focusing on building and institutionalizing systems and processes rather than ad hoc approaches.

Management Response: [Added: 2017/10/17]

UNDP  has and will continue to engage national partners in the development and design  of all its programmes keeping keys partners  involved in the designed, development and appraisal of programmes/projects. This is done through the approval of projects through the Local Project Approval Committee (LPAC) and the quarterly holding of project board meetings where board members have the opportunity to provide inputs/guidance in the running of the programmes/projects. UNDP participates in both donor coordination, being a member of the Co-operating Partners Group (CPG) and a co-convenor up to June 2017, and also participates in the UNDAF which has as its core business, to foster joint activities including design and implementation of joint programmes.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Planning and holding of Local Project Appraisal Committees (LPAC) with partners participation.
[Added: 2017/10/17] [Last Updated: 2021/03/02]
All programme and Project Managers as well as PSU 2020/12 Completed The new Governance Portfolio has been designed and approved by the board. History
Holding of regular board meetings and project closure meeting.
[Added: 2017/10/17] [Last Updated: 2019/05/20]
All programme and Project Managers as well as PSU 2018/12 Completed Board meetings for the pillar were held regularly. History
Participate in the CPG meetings.
[Added: 2017/10/17] [Last Updated: 2019/05/20]
Management 2018/12 Completed UNDP participated in CPG meetings. History
Participate in the UNDAF and take lead of 2 outcome working groups.
[Added: 2017/10/17] [Last Updated: 2019/03/18]
UNDAF Outcome Working Group focal points including Team Leaders 2018/12 Completed UNDP has actively participated in the development of the next UNDAF. UNDP leads 2 (Sustaining Peace and Governance & transparency) of the 4 pillars. History
4. Recommendation:

It is critical for UNDP to develop a strategy in collaboration with the Governance Commission for negotiating the decentralization bill and its passing through the House and Senate by breaking it into components. Subject to legal opinion, it is possible that the Executive branch, without the Legislature’s endorsement, can already implement elements of the decentralization policy. The agency should develop a negotiation strategy and engage the International Monetary Fund, The World Bank and the Ministry of Finance into the process in order to ensure that fiscal decentralization is an integral part of the reforms. Such a process will require the President’s office or similar supra-ministerial institution to lead the process, staffed by the Governance Commission to ensure cross-ministerial and cross-governmental participation.

Management Response: [Added: 2017/10/17]

There is already a Local Government Bill (LGB) which articulates what the government wants. UNDP is collaborating with the GC & the Ministry of Interanal Affairs to deconcentrate services through the service centers in the absence of the passage of the LGA.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Work with the Governance Commission to lobby for the enactment of the Local Government Act.
[Added: 2017/10/17] [Last Updated: 2018/09/28]
Governance Programme Unit and DCD/P 2018/08 Completed The Local Government Act as been passed into law. History
Implement the Local Government Bill when becomes a law.
[Added: 2017/10/17] [Last Updated: 2019/11/04]
Governance Programme Unit and DCD/P 2019/12 Completed The Ministry of Internal Affairs is currently developing a 10-year strategy to implement the Local Governance Act. At the same time, awareness is being raised for the population to understand what the new law is and how beneficial it is to them. History
5. Recommendation:

There is need for continued technical and financial support the Liberian National Legislature to strengthen its instruments for national political debates, public participation, hearings, feedback and comments. UNDP should also support a mapping exercise for the rule-making and adjudication functions of agencies in order to identify how legislation is implemented and further elaborated upon by the state administration.

Management Response: [Added: 2017/10/17]

UNDP will continue to invest in a legislative strengthening programme especially in its ongoing support to the Women Legislative Cacus.  This is especially important  because it helps strengthen its legislative oversight role through  key committees as well as the passage of key legislations, as a result of working through the Governance Commission and other institutions.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Ensure the legislative strengthening programme is sustained and maintained throughout the new Country Programme Document.
[Added: 2017/10/17]
Governance Unit 2023/12 Initiated
Continue to invest in enhancing the technical skills of the staff.
[Added: 2017/10/17]
Governance Unit. 2023/12 Initiated
6. Recommendation:

CSOs are quintessential in deepening governance initiatives in fragile states largely because of their presence in most parts of the country. In this regard, UNDP should develop a more robust programme of support in order to strengthen civil society and their counterparts, the community based organizations present in the rural areas. This is likely to prove a significant challenge, given the current relationship between civil societies in the urban areas and CBOs. Such assistance could be implemented under the overall guidance of the Governance Commission, but should involve umbrella organizations from civil society and encompass advocacy and watchdog organizations, professional associations, labour unions and, to the extent appropriate, community-based organizations and business owners. Such a programme could be implemented as a joint programme between UNDP and the International Labour Organization, which has a special mandate in this area resulting from its own tripartite governance structure.

Management Response: [Added: 2017/10/17]

UNDP has worked with the Civil Society Council of Liberia in strengthening its capacity with the aim of having a viable civil society sector. It has also worked with the GC in developing CSOs database. Going forward, UNDP will continue to work with the GC with the aim of building CSOs’ capacities and participations.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
The Rule of programme has commenced vetting of Civil Society Organizations which will work with Community-based Organizations in the implementation of its programme.
[Added: 2017/10/17] [Last Updated: 2019/11/04]
Governance Unit. Rule of Law Adviser 2019/12 Completed The RoL programme has been successfully working with CSOs since a comprehensive CSO mapping was completed. History
7. Recommendation:

While the consultants are cognizant of the intrinsic risks of addressing human rights issues in fragile political environments, UNDP should proactively support the National Human Rights Commission, follow-up on the Truth and Reconciliation Commission recommendations that touch upon socioeconomic, cultural and political rights by organizing conferences, creating knowledge products and empowering local civil society to address these issues with the government. UNDP should continue to support the National Human Rights Commission to fulfill its mandate—particularly strengthening its Complaints, Investigation and Monitoring Department. This is particularly important in  light of reports by the Secretary-General, Office of the High Commissioner for Human Rights, Amnesty International and Human Rights Watch of continuing human rights violations in Liberia.

Management Response: [Added: 2017/10/17]

UNDP will continue to support the INCHR in addressing past and current human rights issues through the deployment of human rights officers, organizing palava hut heearings, outreach/awareness  and strengthening its reporting capacity. It will collaborate with the Office of High Commission forHuman Rights (OHCHR) to ensure that the presence of the Commission  felt across the country.  We are currently supporting the deployment of human rights officers and strengthening the INCHR reporting capacity.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Increase resource mobilization to support the commission through the ongoing rule of law programme.
[Added: 2017/10/17]
Governance Unit Rule of Law Programme Adviser 2023/12 Initiated
Expand ongoing support to Civil Society Organizations in the areas of human rights and anti-corruption.
[Added: 2017/10/17]
Governance Unit Rule of Law Programme Adviser 2023/12 Initiated
8. Recommendation:

UNDP should, together with CSOs, the media and development partners, launch a major advocacy campaign to achieve specific top priority changes in justice, human rights and security. This campaign should be strategically sequenced to focus on one or two key messages at a time so as not to dilute focus and for all to speak in powerful unison whenever the opportunity arises.

Management Response: [Added: 2017/10/17]

In continuation of enhancing access to justice and  participation of citizens, UNDP continues to provide support through its justice and rule of porttifolio. It current has in place a new  rule of law programme that runs from 2017-2019 . One of the ocutomes focuses on enhancing the capacity of CSOs to raise awareness on rule of law and human rights issues.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
New rule of law and justice developed for 3 years
[Added: 2017/10/17] [Last Updated: 2021/03/02]
Governance Unit Rule of law programme 2020/12 Completed The Rule of Law Phase II programme is up and running. History
Strengthen the capacity of Civil Society Organizations in its ongoing rule of law programme to raise awareness on human rights and rule of law issues.
[Added: 2017/10/17] [Last Updated: 2020/02/25]
Governance Unit Rule of Law Programme 2019/12 Completed Many CSOs have an their capacities strengthen to raise awareness on human rights and RoL issues. Some have even sign Low-value Grant Agreements with UNDP in order to conduct such awareness. History
9. Recommendation:

In collaboration with CSOs, the media and development partners, UNDP should launch a major advocacy campaign to achieve specific top priority changes in justice, human rights and security sectors. This campaign should be strategically sequenced to focus on one or two key messages at a time so as not to dilute focus and for all to speak in powerful unison whenever the opportunity arises.

Management Response: [Added: 2017/10/17]

UNDP has worked with over 5 major CSOs in the last programme. Meanwhile, the programme is currently soliciting CSOs to raise awareness/advocacy on access to justice  and the rights of women.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Current Rule of Law and Justice Programme has a specific output that focuses on strengthening and enhancing Civil Society Organizations to participate raise awareness/advocate on rule of law and human rights.
[Added: 2017/10/17] [Last Updated: 2019/05/20]
Governance Unit 2018/12 Completed The programme has worked towards strengthening CSOs by engaging them through grant agreements and other support. History
10. Recommendation:

It is an under-statement to suggest that in the absence of strong investigative and prosecutorial powers, the LACC will remain largely enfeebled. There is need to capacitate the LACC by recruiting additional investigators and strengthen the Commission’s legal and prosecution units.

Management Response: [Added: 2017/10/17]

UNDP remains a key partner to the LACC since its inception through the Strengthenining Transparency, Aaccountability, Oversight and Transparency  Programme. It continues to invest in the investigative and prosecutorial capacity of the organization.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Ongoing support to LACC.
[Added: 2017/10/17] [Last Updated: 2019/03/18]
Governance Unit 2018/12 Completed LACC is being supported up to the end of the current CPD. There is also plans to continuously work with them in the next CPD era. History
Short and long term investment is ongoing to enhance the capacity of the LACC.
[Added: 2017/10/17] [Last Updated: 2019/03/18]
Governance Unit 2018/12 Completed LACC is being supported up to the end of the current CPD. There is also plans to continuously work with them in the next CPD era. History
11. Recommendation:

Additionally, though the Commission’s plan of action includes conducting a citizens’ survey to document perceptions of corruption, it lacks the funds to implement the survey. UNDP should further integrate its support to anticorruption efforts with the National Anti-corruption Strategy. As indicated by the 2006 National Anti-corruption Strategy, anti-corruption measures must target a broad spectrum of actors and take a multi-pronged approach. Whether the Liberian Anti-corruption Commission can carry out its full mandate will depend on political will and government decisions regarding its funding. UNDP should continue to support the Commission to advocate for the implementation of a Civil Service Code of Conduct and an Assets Declaration Regime for Liberian civil servants.

Management Response: [Added: 2017/10/17]

UNDP has worked and will continue to work wth the LACC in strengthening its capacity to investigate corruption cases as well as its asset declaration regime. We will intensify resource mobilization.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Consolidate ongoing support to the LACC in strengthening its capacity.
[Added: 2017/10/17]
Governance Unit 2023/12 Initiated
Increase resource mobilization.
[Added: 2017/10/17]
Governance Unit 2023/12 Initiated Resource envelope has been limited in this sector. UNDP will work with relevant partners to raise resources.
12. Recommendation:

Money is the sinew of peace and sustainable development and in the context of forecasted decrease in financial resources at the global level, adequate resource mobilization and use is critical. Funds should be allocated appropriately for beneficiaries and investment must target more women for their untapped potential to contribute to national development.

Management Response: [Added: 2017/10/17]

There is no stand alone women economic empowerment project at the moment. There are sister agencies like UN Women who are involved directly with such initiatives.  UNDP will continue to engage traditional and nontraditional donors with the aim of mobilizing resources. The CO will invest in resource mobilization capacities to boost its resource mobilization.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Invest in domestic resource mobilization with in-country donors and infuse this across programmes.
[Added: 2017/10/17] [Last Updated: 2021/03/02]
Country Office DCD/P Programme & Project Managers 2021/12 Initiated History
Support the government in exploring financing options for Achieving SDGs/Agenda 2063 in line with the Addis Ababa Action Agenda on financing for development.
[Added: 2017/10/17] [Last Updated: 2021/03/02]
Strategy and Policy Unit 2020/12 Completed Support to the government on achieving the SDG Agenda is cross-cutting through the CPD. Notwithstanding, SPU Project is working with key institutions in this regard. History

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