Independent Country Programme Evaluation: Guatemala

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

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Title Independent Country Programme Evaluation: Guatemala
Atlas Project Number:
Evaluation Plan: 2018-2021, Independent Evaluation Office
Evaluation Type: ICPE/ADR
Status: Completed
Completion Date: 12/2018
Planned End Date: 12/2018
Management Response: Yes
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 2.1.2 Capacities developed for progressive expansion of inclusive social protection systems
  • 3. 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 $): 49,500
Joint Programme: No
Joint Evaluation: No
Evaluation Team members:
Name Title Email Nationality
Natalia Acosta Lead Evaluator, IEO Evaluation Specialist natalia.acosta@undp.org
David Grajeda Thematic Expert - (inclusive sustainable development)
Mar Guinot Associate Lead Evaluator, IEO Evaluation Analyst natalia.acosta@undp.org
Fernando Jambrina Thematic Expert - (rule of law, peace and equal access to justice)
GEF Evaluation: No
Key Stakeholders:
Countries: GUATEMALA
Lessons
Findings
1.

Finding 1. UNDP interventions in inclusive sustainable development were aligned with national priorities and addressed the needs of the most vulnerable population. The programme design and the theory of change, however, were not fully consistent or comprehensive, limiting effectiveness and sustainability of results.


Tag: Local Governance Vulnerable Gender Equality Gender Mainstreaming Women's Empowerment HIV / AIDS SDG Integration Programme/Project Design Theory of Change Government Cost-sharing Effectiveness Sustainability UN Agencies

2.

Finding 2. UNDP contributed to enhancing sectoral and municipal capacities to better integrate and apply public policy instruments in the framework of the land use planning and management approach. Good sectoral and intersectoral coordination practices were also facilitated, as part of the urban and rural development councils. Important sustainability challenges persist, mainly due to structural weaknesses in the public sector and limited financial resources.


Tag: Local Governance Effectiveness Efficiency Sustainability Agriculture land resouces Coordination Technical Support

3.

Finding 3. UNDP provided substantive support to the Government of Guatemala in implementing the SDGs. The emphasis has been on integrating them into local development plans through the land use planning approach. There are opportunities to maximize the use of South-South cooperation to increase UNDP’s value addition in support of the SDGs. 


Tag: Local Governance Agenda 2030 SDG Integration Voluntary National Review Monitoring and Evaluation Strategic Positioning Coherence Effectiveness Relevance Agriculture land resouces UN Agencies South-South Cooperation

4.

Finding 4. UNDP interventions have improved national capacities to protect and sustainably use natural resources and biodiversity, through provision of trainings, scientific studies and equipment. Additional support is required to ensure these efforts lead to environmental and social benefits.


Tag: Capacity Building Social Protection Biodiversity Effectiveness Relevance Sustainability Technical Support

5.

Finding 5. Through the development of productive value chains, UNDP has fostered economic opportunities for rural poor families in the eastern region, central highlands and northern highlands. Some of these initiatives, still in their initial phase, remain geographically isolated without a sustainability and scaling up strategy.


Tag: Inclusive economic growth Poverty Reduction Effectiveness Relevance Sustainability Rural development

6.

Finding 6. Despite efforts by UNDP staff to integrate a human rights approach into the interventions, there is still need to better incorporate indigenous people’s culture and knowledge in project design and implementation.


Tag: Indigenous people Human rights Gender Equality Gender Mainstreaming Integration Knowledge management Programme/Project Design Project and Programme management Effectiveness Relevance Forestry Rural development

7.

2.2 Rule of law and peace 

Guatemala continues to face important challenges in its fight against corruption. The 2017 Corruption Perception Index published by Transparency International identified Guatemala as the fourth most corrupt country in Latin America. In recent years, substantive institutional reforms have been promoted in the justice and rule of law sector in Guatemala to fight corruption, with a strong focus on human rights and gender. The establishment of the International Commission against Impunity in Guatemala (CICIG) in 2006 has been a key factor, leading to significant progress in the fight against organized crime and corruption. Following a request from the Government in the framework of the 2015–2019 CPD, UNDP has been providing logistical and administrative support for CICIG’s effective functioning in the implementation of its mandate. In its UNDAF, the UN country team called for contributing to a safe and violence-free society, and UNDP identified three priority areas to achieve the goal of “rule of law and peace”. UNDP’s programme focused on (i) increasing the efficiency and effectiveness of justice institutions (primary outcome), (ii) adopting a preventive approach to human rights and democratic approach by security institutions (secondary outcome) and (iii) establishing transitional justice mechanisms (secondary outcome). UNDP worked closely with three groups of stakeholders: (i) public security institutions such as the Ministry of Interior and the National Civilian Police (PNC), (ii) justice institutions such as the Public Prosecutor’s Office and the Supreme Court of Justice, and (iii) CSOs representing social conflict  victims. The rule of law, peace and access to justice portfolio is the second biggest, with 21 projects and $59 million in expenditures between 2015 and mid-2018. Overall resources planned for this outcome were $63.2 million, and the execution rate was 93.2 percent. Of the total expenditure, $42 million corresponded to the CICIG project. The rest of the projects were mainly financed by the Peacebuilding Fund (PBF), a fund managed by the UN to support peacebuilding initiatives in countries emerging from conflicts. Of the 21 projects, 12 had gender equality as a significant objective (GEN2, 12 interventions), 5 were expected to contribute to gender equality ina limited way (GEN1), and 3 had gender equality as
the main objective (GEN3). Only the CICIG projectwas not expected to contribute to gender equality (GEN0). 

 

Finding 7. UNDP interventions under the rule of law and peace outcome had a strong focus on reducing violence, insecurity and impunity. A broader approach integrating social dialogue efforts promoted by other outcome interventions could have enriched UNDP contributions for reconciliation and peace. 


Tag: Justice system Rule of law Security Social cohesion Coherence Effectiveness Relevance

8.

Finding 8. UNDP support to public security institutions led to strengthened internal capacities on data collection and validation of criminal evidence. The analysis of such information and coordination between local authorities and civil society has been insufficient to develop inclusive citizen security policies to reduce violence.


Tag: Technology Civic Engagement e-Governance Local Governance Rule of law Gender-Based Violence Effectiveness Impact

9.

Finding 9. UNDP contributions were key in enhancing the normative framework of the Public Prosecutor’s Office and its criminal investigation work. More capacity development support is needed to strengthen the efficiency of the justice system.  


Tag: Indigenous people Public administration reform Rule of law Gender Equality Gender-Based Violence Effectiveness Efficiency UN Agencies

10.

Finding 10. UNDP contributions helped strengthen the capacities of justice institutions, mainly the Public Prosecutor’s Office, to assist the victims of sexual abuse and violence (particularly women) and to administer justice. However, this has not led to a reduction in impunity levels, due to persistent weaknesses in the justice system. 


Tag: Justice system Rule of law Gender-Based Violence Effectiveness Impact Sustainability Donor UN Agencies

11.

Finding 11. Progress on transitional justice varied, with more salient results in the pillars of access to justice and truth. Sustainability of the transitional justice work remains limited in financial, institutional and social terms.


Tag: Justice system Effectiveness Sustainability Civil Societies and NGOs

12.

2.3 Active and inclusive citizenship

This outcome represents the smallest area in the programme, with initial planned resources of $5.8 million and expenditures of $5.2 million between 2015 and mid-2018, for an 89.7 percent execution rate. Of the nine interventions, eight were implemented through the direct implementation modality, while one used the national implementation modality (the LGBTI community project). The Maya Programme disbursed the greatest proportion of resources (51 percent), while 25 percent were linked to the Human Development Report. All interventions were expected to contribute to gender equality in a limited way (GEN1), except for the two Maya Programme phases, which had gender equality as a significant objective (GEN2), and the intervention on strengthening the legislative body, which was not expected to contribute to gender equality at all (GEN0).  

Finding 12. UNDP’s work with some members of the Indigenous People and Cultural Diversity Cabinet has contributed to an enhanced institutional framework for the engagement of indigenous peoples. This, however, has not increased their participation in development processes. 


Tag: Indigenous people Local Governance Coherence Effectiveness Relevance

13.

Finding 13. Through its political training programme, UNDP increased the knowledge of the targeted indigenous communities and leaders on their rights and the country’s political laws. However, no follow-up actions were undertaken after the trainings to ensure the communities’ effective empowerment and active participation in social and political decision-making processes. 


Tag: Capacity Building Indigenous people Knowledge management Effectiveness Relevance Sustainability

14.

Finding 14. UNDP support for institutional strengthening of the Supreme Electoral Tribunal, while relevant, achieved modest results, with no tangible impact in increasing citizen participation or engagement.


Tag: Civic Engagement Election Parliament Public administration reform Gender Equality Gender Mainstreaming Gender Parity Women's Empowerment Effectiveness Impact Relevance

15.

Finding 15. UNDP support for promotion of social dialogue for conflict resolution focused on strengthening the national policy framework and inter-institutional coordination. Considering the increasing number of conflicts and erosion of dialogue mechanisms in the country, a more sustained and concerted approach would have been required for long-term results. 


Tag: Gender Equality Gender-Based Violence Women's Empowerment Partnership Conflict resolution Social cohesion Effectiveness Relevance Sustainability Rural development UN Agencies

16.

Finding 16. UNDP supported the inclusion of LGBTI issues in the work of the Human Rights Office. Additional advocacy and institutional efforts are needed to raise awareness and operationalize the work with the LGBTI community, with the aim of reducing stigma and discrimination. 


Tag: Human rights Monitoring and Evaluation Resource mobilization Effectiveness Relevance South-South Cooperation

17.

Finding 17. The country office has increased its analytical capacity through the establishment of a strategic political analysis team. The integration of this unit’s work with UNDP’s programme remains limited, as does that of the Human Development Report team. The potential of both units is not fully exploited.


Tag: Relevance Bilateral partners

18.

2.4.1 Gender equality and women’s empowerment 

Finding 18. UNDP has improved the integration of gender equality into its programme, achieving some gender-targeted and gender-responsive results. Stronger engagement with women’s associations, initiatives targeting their economic and political empowerment, and the inclusion of women in peacebuilding processes are required to further improve gender outcomes.


Tag: Inclusive economic growth Civic Engagement Human rights Rule of law Gender Equality Gender Mainstreaming Women's Empowerment Peace Building Effectiveness Relevance

19.

2.4.2 Results-based management, oversight and monitoring and evaluation

Finding 19. The country office was proactive in capitalizing on lessons and knowledge for improved programme design and implementation. Challenges remain in institutionalizing knowledge management and setting up an adequate corporate monitoring system to regularly measure UNDP’s specific contributions.  


Tag: Knowledge management Monitoring and Evaluation Programme/Project Design Project and Programme management Effectiveness Relevance Sustainability

20.

2.4.3 Partnerships and coordination

Finding 20. UNDP works with a wide array of State entities at central and local levels, sustaining its position as a trusted and valuable impartial partner. Collaboration has increased with civil society organizations, particularly human rights defenders and grassroots indigenous organizations. There has been moderate success in forming alliances with academic and research institutes and the private sector. 


Tag: Indigenous people Human rights Strategic Positioning Coherence Effectiveness Civil Societies and NGOs Private Sector

21.

Finding 21. Coordination with other UN agencies and international cooperation partners has improved in recent years, with notable efforts to reduce ‘silos’ and integrate work. Weaknesses are still present in terms of integrated planning and implementation, limiting the effectiveness of UNDP’s support.


Tag: Gender Equality Women's Empowerment Integration Programme Synergy Programme/Project Design Project and Programme management Global Environment Facility fund Coherence Effectiveness Bilateral partners UN Agencies Coordination

Recommendations
1

In coordination with other development partners, UNDP should work towards a more comprehensive strengthening of the justice sector. The substantive work with the Public Prosecutor’s Office, and to a lesser extent with the Ministry of Interior, while relevant, has led to an increased workload in the judicial system. Work with the National Civilian Police and the judicial branch should be strengthened to enhance their effectiveness.

2

UNDP should play a more active role in promoting solutions that support the Government’s efforts to advance structural changes with a view to achieving its national development priorities and accelerating implementation of the Sustainable Development Goals (SDGs) in the country. In close coordination with relevant actors, UNDP should explore partnerships and strategies for the approval of the Civil Service Law and the professionalization of the civil service career; and with the National Human Development Report, foster dialogue at all levels on the existing and alternative economic models for more inclusive development.

3

UNDP should increase its programmatic work on social dialogue and peace, transforming small, pilot, ad hoc initiatives into more strategic interventions. The current focus on reducing crime and preventing violence should be better integrated, with a more strategic and inclusive approach for the construction of social peace and reconciliation.

4

UNDP should strengthen its programmatic focus on indigenous peoples’ rights, gender equality and the empowerment of women and youth, with the aim of achieving greater social inclusion and more transformative results. Specific measures should be adopted by the programme to ensure interventions are culturally relevant and adequate and achieve more transformative results.

5

To enhance the sustainability of results, UNDP should adopt measures to improve programmatic synergies, knowledge management and monitoring for results, and should implement communication strategies for greater social engagement. Programmatic synergies between the different outcomes should be pursued in terms of approach, geographical location and beneficiaries.

6

UNDP should reinforce its partnerships at all levels to enhance synergies and catalyse investments for greater contributions to development results.

1. Recommendation:

In coordination with other development partners, UNDP should work towards a more comprehensive strengthening of the justice sector. The substantive work with the Public Prosecutor’s Office, and to a lesser extent with the Ministry of Interior, while relevant, has led to an increased workload in the judicial system. Work with the National Civilian Police and the judicial branch should be strengthened to enhance their effectiveness.

Management Response: [Added: 2019/06/18] [Last Updated: 2020/06/07]

Aceptada.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
En el marco de la elaboración del Programa de País 2020 – 2024, y sujeto a la priorización del UNDAF, los acuerdos con Gobierno y las consultas con los actores de desarrollo, se desarrollará un portafolio programático sobre Estado de Derecho, en línea con la prioridad nacional sobre Fortalecimiento Institucional, Seguridad y Justicia con fuerte vínculo al ODS 16.
[Added: 2019/12/11]
Representación Unidad de Programa Monitoreo y Evaluación. 2020/05 Overdue-Initiated Se está realizando la elaboración del Marco de Cooperación y del Programa de País.
Fortalecimiento de la gobernanza eficaz, inclusiva y transparente por medio del desarrollo de herramientas institucionales que promuevan la modernización, gestión del conocimiento, rendición de cuentas y el acceso a la información pública.
[Added: 2019/12/11]
Unidad de Programa 2020/05 Overdue-Initiated Se está elaborando el Marco de Cooperación y el diseño del Programa de País
Fortalecimiento de capacidades para la toma de decisiones y/o formulación de políticas públicas en seguridad ciudadana basadas en evidencia.
[Added: 2019/12/11]
Unidad de Programa 2020/05 Overdue-Initiated Se está elaborando el Marco de Cooperación y el diseño del Programa de País.
Fortalecimiento del sistema de justicia e instituciones relevantes especializadas en violencia contra las mujeres/niñas y femicidio, a través del desarrollo de programas basados en evidencias.
[Added: 2019/12/11]
Unidad de Programa 2020/05 Overdue-Initiated Actualmente está en implementación el proceso de diseño del Marco de Cooperación y del Programa de País.
Manejo de datos para informar políticas y programas enfocados en violencia contra las mujeres y las niñas y femicidio.
[Added: 2019/12/11]
Unidad de Programa 2020/05 Overdue-Initiated Actualmente está en implementación el proceso de diseño del Marco de Cooperación y del Programa de País.
Fortalecimiento de los procesos estadísticos del Sistema Nacional de Violencia contra la Mujer (SNVCM) - por medio de: uso de sistemas de automatización y la difusión de información a los tomadores de decisión; automatización de procesos de gestión; fortalecimiento de capacidades para sistemas interinstitucionales de gestión de análisis de información de los territorios priorizados.
[Added: 2019/12/11]
Unidad de Programa 2020/05 Overdue-Initiated Actualmente está en implementación el proceso de diseño del Marco de Cooperación y del Programa de País.
2. Recommendation:

UNDP should play a more active role in promoting solutions that support the Government’s efforts to advance structural changes with a view to achieving its national development priorities and accelerating implementation of the Sustainable Development Goals (SDGs) in the country. In close coordination with relevant actors, UNDP should explore partnerships and strategies for the approval of the Civil Service Law and the professionalization of the civil service career; and with the National Human Development Report, foster dialogue at all levels on the existing and alternative economic models for more inclusive development.

Management Response: [Added: 2019/06/18] [Last Updated: 2020/06/07]

Aceptada.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
El PNUD a través del proceso de elaboración del Informe Nacional de Desarrollo Humano, apoyará al desarrollo del país con análisis, discusión y generación de conocimientos e información que promueva diferentes espacios de diálogo, el debate y la generación de propuestas para los cambios necesarios que aborden el mejoramiento de la calidad de vida y el desarrollo humano, en especial la pobreza y pobreza extrema, la reducción de las desigualdades y el logro de las 10 Prioridades Nacionales y 16 Metas Estratégicas de Desarrollo, en conjunto con una diversidad de actores tanto públicos como privados.
[Added: 2019/12/11]
Unidad de Programa 2020/06 Overdue-Initiated El proceso de diseño del Informe Nacional de Desarrollo Humana está en implementación
Acompañar el proceso nacional de implementación de los ODS, haciendo énfasis en la vinculación y contribución a las 10 Prioridades Nacionales y 16 Metas Estratégicas de Desarrollo.
[Added: 2019/12/11]
Unidad de Programa 2019/12 Completed Se apoyó al Gobierno en la vinculación de las 10 prioridades nacionales y 16 metas estratégicas de Desarrollo y el diseño del Marco de Cooperación y el Programa de País.
Se potenciarán alianzas estratégicas alrededor de las 10 Prioridades Nacionales y las 16 Metas Estratégicas de Desarrollo.
[Added: 2019/12/11]
Unidad de Programa 2019/12 Completed
3. Recommendation:

UNDP should increase its programmatic work on social dialogue and peace, transforming small, pilot, ad hoc initiatives into more strategic interventions. The current focus on reducing crime and preventing violence should be better integrated, with a more strategic and inclusive approach for the construction of social peace and reconciliation.

Management Response: [Added: 2019/06/18] [Last Updated: 2020/06/07]

Aceptada.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Se continuará con el fortalecimiento institucional de los mecanismos institucionales para el diálogo social, con una fuerte vinculación a la prioridad nacional sobre Transparencia y Fortalecimiento Institucional, incluyendo a los gobiernos locales, enfocada en crear instituciones eficaces, sólidas y justas.
[Added: 2019/12/11]
Unidad de Programa 2019/12 Completed Se ha apoyado a la institucionalidad sobre Diálogo Social.
Escalar y replicar procesos de diálogo estratégico a nivel local (ej. Panzós) y nacional (ej. Áreas Protegidas), orientados a la construcción de consensos sobre iniciativas y reformas que aborden problemas complejos y estructurarles del desarrollo.
[Added: 2019/12/11]
Unidad de Programa 2019/12 Completed Se replicó la experiencia en el municipio de San Juan Sacatepéquez.
Promover y desarrollar plataformas de apoyo país, incorporando enfoques dialógicos, holísticos e innovadores basados en evidencia, posicionando el rol integrador del PNUD (ej. San Juan Sacatepéquez, Ayutla)
[Added: 2019/12/11]
Unidad de Programa 2019/12 Completed Se implementó una plataforma en San Juan Sacatepéquez.
4. Recommendation:

UNDP should strengthen its programmatic focus on indigenous peoples’ rights, gender equality and the empowerment of women and youth, with the aim of achieving greater social inclusion and more transformative results. Specific measures should be adopted by the programme to ensure interventions are culturally relevant and adequate and achieve more transformative results.

Management Response: [Added: 2019/06/18] [Last Updated: 2020/06/07]

Aceptada.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
La oficina asignará recursos técnicos para el diseño del nuevo Programa de País y asegurar la inclusión de género en los portafolios programáticos, asegurando la inclusión de derechos individuales y colectivos de los Pueblos Indígenas. Se vinculará con las Metas Estratégicas de Desarrollo Nacional de potenciación y promoción de la inclusión social, económica y política.
[Added: 2019/12/11]
Representación Unidad de Programa Monitoreo y Evaluación. 2020/05 Overdue-Initiated History
El nuevo ciclo programático del INDH, ha previsto una estrategia de trabajo especialmente con población en condiciones de vulnerabilidad, tales como pueblos indígenas, mujeres y jóvenes, en municipios rurales a través de una metodología participativa enfocada a contrastar y buscar sinergias entre distintas perspectivas, en especial de los grupos más vulnerables. El proceso y los resultados de dicho Informe brindarán insumos valiosos para el abordaje programático del PNUD y el fortalecimiento de nuestro trabajo.
[Added: 2019/12/11]
Unidad de Programa 2020/06 Overdue-Initiated
5. Recommendation:

To enhance the sustainability of results, UNDP should adopt measures to improve programmatic synergies, knowledge management and monitoring for results, and should implement communication strategies for greater social engagement. Programmatic synergies between the different outcomes should be pursued in terms of approach, geographical location and beneficiaries.

Management Response: [Added: 2019/06/18] [Last Updated: 2020/06/07]

Aceptada.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
En línea con los Planes estratégicos corporativos de Onumujeres, Unfpa, Unicef y PNUD, el diseño del nuevo Programa de País se buscará incluir un capítulo común, definido en conjunto, en donde se acuerden los compromisos en función de temas comunes.
[Added: 2019/12/11]
Representación Unidad de Programa Monitoreo y Evaluación 2020/05 Overdue-Initiated Actualmente está en implementación el proceso de diseño del Marco de Cooperación y del Programa de País.
Con un enfoque de portafolio, a nivel de cada proyecto se mejorará el enfoque de las Juntas de Proyecto orientadas al fortalecimiento de las sinergias y alianzas estratégicas enfocadas a resultados.
[Added: 2019/12/11]
Representación Unidad de Programa Monitoreo y Evaluación. 2020/05 Overdue-Initiated
En el nuevo ciclo programático se incluirá el diseño y la implementación de una Estrategia de Comunicación orientada al Cambio Social.
[Added: 2019/12/11]
Monitoreo y Evaluación Unidad de Comunicación 2020/05 Overdue-Initiated En el proceso de elaboración del Programa de País, se ha incluido la elaboración de la Estrategia de Comunicación y Alianzas.
En el marco de un proceso participativo se realizará la revisión y planificación anual del Programa de País con todos los sectores que participan en la implementación del Programa, realizando un seguimiento más sistemático.
[Added: 2019/12/11]
Representación Unidad de Programa Monitoreo y Evaluación. Unidad de Comunicación 2020/01 Overdue-Not Initiated
6. Recommendation:

UNDP should reinforce its partnerships at all levels to enhance synergies and catalyse investments for greater contributions to development results.

Management Response: [Added: 2019/06/18] [Last Updated: 2020/06/07]

Aceptada

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Se continuará facilitando procesos de articulación del trabajo intersectorial e interinstitucional para una mejor sinergia y optimización de recursos, así como el logro de resultados, haciendo énfasis en resultados de desarrollo.
[Added: 2019/12/11]
Representación Unidad de Programa Monitoreo y Evaluación 2019/12 Completed Se ha asegurado el proceso de articulación.
Se continuará fomentando la coordinación interinstitucional, potencializando el mandato de cada institución participantes en la coordinación.
[Added: 2019/12/11]
Representación Unidad de Programa Monitoreo y Evaluación 2019/12 Completed
Construcción y seguimiento de alianzas estratégicas alrededor de las 10 Prioridades Nacionales y las 16 Metas Estratégicas de Desarrollo.
[Added: 2019/12/11]
Representación Unidad de Programa Monitoreo y Evaluación 2019/12 Completed

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