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Midterm project evaluation: Support to Security Sector Ref II
Commissioning Unit: Iraq
Evaluation Plan: 2016-2020
Evaluation Type: Project
Completion Date: 03/2019
Unit Responsible for providing Management Response: Iraq
Documents Related to overall Management Response:
 
1. Recommendation:

1. Strategic oversight and maximising impact

1.1 The Programme needs to assess its forward-looking Programme in line with this evaluation.

Management Response: [Added: 2019/04/14] [Last Updated: 2019/04/14]

  The recommendation will be taken into consideration.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
The Programme team and the CO Programme Management Support Unit (PMSU) will review SSR 2019 -2021 multi programme ' Support to Security and Justice Sector Governance in Post ISIL Iraq' and assess should any revisions to the same is required where necessary and attend to the needful.
[Added: 2019/04/14] [Last Updated: 2019/12/25]
RoL/SSR Programme and PMSU 2019/05 Completed In discussed with PMSU it was agreed that it is prudent that the identified revisions to be incorporated into the Atlast system beginning of 2020 following the completion of all relevant 2019 year end reporting exercises. History
2. Recommendation:

Strategic oversight and maximizing impact

1.2 UNDP needs to take a much more decisive and pro-active role in convening and coordinating national and international stakeholders, as this is the Programme’s biggest weakness. UNDP should consider recruiting a dedicated coordination role (that could also be an SSR technical expert) that would span all thematic areas within the SSR Programme, acting as the touchstone and motivator to push forward the SSR agenda. Further, UNDP’s coordinating function needs to be communicated clearly to all stakeholders, preferably in a forum that already exists (e.g. an IP meeting).

Management Response: [Added: 2019/04/14]

The recommendation will be taken into consideration.  It should be noted that while UNDP's role involve coordinating International Partners (IP) engaged in advising and assisting the Government to implement its SSR Programme, coordination of National Partners  (NP) is not the role of UNDP.  The role of NP coordination relevant to each of the identified SSR priority at 'system' and 'institutional' levels is led by an IP engaged in supporting that specific system priority and, corresponding institutions. Therefore, within UNDP's role and remit in IP coordination it will take appropriate action to further encourage those IP leads to improve national partner coordination.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
2.1 Seek donor assistance for an in-kind deployment of an SSR Coordinator to assist UNDP Senior SSR Advisor in IP Partner Coordination including in the development of a 'SSR international partner support Matrix'/ Mapping exercise of IP support and specific activities across SSR 'system' levels that is an identified gap by UNDP SSR team for IP Coordination.
[Added: 2019/11/24] [Last Updated: 2020/01/27]
Rule of law/ SSR Programme 2019/07 Completed Donor assistance together with a corresponding ToR for an in- kind deployment for an SSR Coordinator to assist the UNDP SSR Advisor on the above task was sought from both Denmark and a recent opportunity that CO was presented to submit expression of interest for IUNV. ( At such time when one of the donors finds a suitable candidate in response to the in-kind deployment request they will inform us ) History
2.2 In order to strengthen IP coordination and, also NP coordination at 'system' and 'institutional' levels, submit a proposal to the GoI National SSR Coordinator from ONSA to establish a suitable reporting mechanism for sub- working groups at SSR system level.
[Added: 2019/11/24] [Last Updated: 2019/12/25]
Rule of law / SSR programme 2019/03 Completed Same ToR was recently submitted for an IUNV opportunity that the CO was presented with. History
2.3 Subject to ONSA approval on the above proposal, develop sub working group TOR and finalize the same in consultation with ONSA and relevant IP leads and initiate revise system level sub - working groups.
[Added: 2019/11/24] [Last Updated: 2019/12/25]
Rule of law /SSR Programme 2019/06 Completed All 'systems' now have an assigned IP lead coordinator. History
3. Recommendation:

Strategic oversight and maximizing impact:

1.3 In order to fully realise its convening and coordinating function, UNDP needs to convene regular meetings that are effective, as set out below. It is not suggested that the Programme should create and add more meetings to what is already taking place, but rather to make the meetings that do take place relevant and useful, as most stakeholders stated that they were dissatisfied with what is currently taking place

Management Response: [Added: 2019/11/07]

The recommendation will be taken into consideration and given that this recommendation is a corresponding elaboration to 'Recommendation 2'  above, specific key actions and aligned activities elaborated under recommendation 2 will also apply to key actions and activities under this recommendation. 

Key Actions:

4. Recommendation:

Evaluation Recommendation or Issue 4:

Strategic oversight and maximizing impact:

UNDP currently does not support national coordination, but given the weaknesses of coordination overall, consideration should now be given to supporting such assistance. UNDP needs to consider funding or facilitating the provision of additional one or two staff members at the SSR Secretariat and / or the ONSA, which would ensure that the process remains nationally owned. Ideally the assistance would be Arabic speaking, and would serve a dual purpose as both capacity-building the ONSA staff on coordination issues, as well as facilitating national coordination in a way that would offer a high level of coherence to all stakeholders.

Management Response: [Added: 2019/11/07]

The recommendation that time sensitive and,  also  subject to Government's potential future priorities will be considered  as such time at a future request of Government for UNDP's advice and  assist for National level Coordination related to GoI SSRP implementation. It should be noted that currently, on going UNDP support to the Government’s SSR efforts are based on its request for UNDP advice and assistance, therefore given the implementation of the GoI SSRP is a government owned and led process UNDP will provide advice and assistance to this important endeavor on the request of the Government. Currently SSRP national coordination is not a GoI identified priority task nor an intervention that UNDP is best placed to undertake both in terms of its programmatic priorities and available resources.

Key Actions:

5. Recommendation:

Evaluation Recommendation or Issue 5:

Strategic oversight and maximizing impact:

UNDP should undertake, or commission ANCSS to undertake, a mapping exercise of the overlap and synergies across different areas of work in the SSR context, specifically the Seven Systems. This ‘connecting the dots’ exercise will facilitate de-confliction, and strengthen complementary areas (e.g. ensuring legislation is in place in order for all Systems to function effectively, such as security legislation and legislation empowering the intelligence community). It can act as a vector and platform in focusing stakeholder discussions, including regarding sequencing of activities. Part of this mapping exercise should include specifying (or suggesting for approval) roles and responsibilities / ToRs for all entities in the SSR context, including all stakeholders across the seven Systems, along with actions and deadlines for the various System Leads and functions.

Management Response: [Added: 2019/11/07]

The recommendation will be taken into consideration corresponding to the stated  Recommendation 2 above and, Key Action 2.1 and corresponding Activity 2.1

Key Actions:

Key Action Responsible DueDate Status Comments Documents
N/A
[Added: 2019/11/24] [Last Updated: 2020/01/27]
N /A 2019/12 Completed The action taken to address this recommendation is linked to the action taken to address recommendation-2 and corresponding activity 2.1 which is already marked as "completed" History
6. Recommendation:

Evaluation Recommendation or Issue 6:

Strategic oversight and maximizing impact:

UNDP can enhance its role in supporting the proposed NSS review. This provides an ideal opportunity for UNDP to bolster its coordination efforts in line with the above recommendations and demonstrate to all stakeholders the added value UNDP brings to the SSR process. This includes its access to technical expertise and its existing and long-standing good relationships with national partners. Using its convening power, UNDP can liaise with the NSC, NSA and DNSA to ensure the agreement of the SSR Action Plan process. UNDP could instigate the review by liaising with stakeholders and providing clear options and advice. Within this, it is imperative that long and short-term goals are clearly articulated.

Management Response: [Added: 2019/11/07]

Work related to this recommendation is already on going.  On 9 September 2018, ONSA requested in writing for UNDP strategic advice  to undertake a review of the National Security Strategy (NSS) in view of the changing context in  post -ISIL. As a first step UNDP conducted an initial internal review of the NSS and shared key findings with ONSA and, following the appointment of a GoI special committee to undertake the review the first review meeting is scheduled to take place in April 2019. UNDP will continue to assist in this important endeavor and the expected approximate time schedule from ONSA to complete this task is from April - August 2019.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Provide on going advice and assistance to NSS review Committee to undertake the NSS review. (Note; Time frame i is dedicated by the GoI NSS review Committee therefore this may be subject to change in the coming months)
[Added: 2019/11/24] [Last Updated: 2019/12/29]
RoL/SSR Programme 2020/08 Initiated History
7. Recommendation:

Evaluation Recommendation or Issue 7:

Strategic oversight and maximizing impact:

Emphasis should be given to having an increased UNDP presence across the country as this will not only ensure UNDP can meet its targets, but it also enhances the added value of UNDP to IPs that do not have access to the provinces. The current Area Coordinators’ roles are limited due to the fact that the MoI in Baghdad can link up with police across the regions. However, the role of the Area Coordinators needs to be maintained and broadened given the scale-up of the Programme, and if work with CSOs is going to continue.

 

 

Management Response: [Added: 2019/11/07]

Management Response:  

With regard UNDP overall  on going advice and assistance to ONSA in its efforts to implement GoI SSR Programme is Baghdad centric and managed, facilitated and overseen by the relevant senior government officials and corresponding ministries /agencies from Baghdad. Therefore at this point of time expanding UNDP's presence the across country to assist in this work is neither viable, appropriate, necessary nor required.  As such time if there is a need to provide National level assistance to implement the SSRP on the request of ONSA, UNDP will consider increasing its presence at national level beyond Baghdad.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
N /A
[Added: 2019/11/24]
RoL/SSR Programme 2019/10 Completed
8. Recommendation:

Evaluation Recommendation or Issue 8:

Cross Cutting Issues:

  • The Programme should reformulate the forward-looking Programme Document to include critical cross-cutting issues, and to adapt its activities accordingly. An innovative approach needs to be adopted at activity level, so that human rights training is relevant to context and overcomes beneficiary fatigue.

 

  • The Programme should either procure a consultant, or work with other UN entities, to conduct an assessment(s) on relevant cross-cutting issues and SSR; specifically, human rights, gender, corruption, and youth empowerment. Focus needs to be on how these issues can be strategically incorporated into the Programme and mainstreamed across activities. A review of human rights in the SSR process should be undertaken in order that it is not seen as a circumstantial by-product of SSR engagement. Human rights would ordinarily be the remit of UNAMI, although as already mentioned, there did not appear to be synchronicity between UNAMI and the UNDP SSR Programme. The adoption of the referral pathway model incorporated into the Policing Road Map provides a good entry point and framework for this type of assessment, as well as reflecting existing UNDP work. However, it should be noted that relevant human rights issues are broader than the criminal justice referral pathway, as they cover issues relating to work across the seven Systems. This review could then be shared with stakeholders, acting as a common narrative as well as a platform for convening resources and strategizing interventions.

 

  • Corruption needs to be clearly articulated and given due prominence in the forward-looking Programme Document, as it is a critical challenge that cannot be ignored. The Programme should support a review, conducted either by an independent expert or the ANCSS, of how corruption affects each of the seven Systems. This would act as a touchstone to bring stakeholders together in order that they can better focus on the most appropriate interventions. Similarly, gender issues[1] need to be reinforced going forward, following a thorough gender assessment.

     

 

Management Response: [Added: 2019/11/07]

Note that UNDP has recommended to ONSA the inclusion of 'cross- cutting issues' in the proposed revision of the Security Sector Reform Programme (SSRP) following the planned NSS review; this remains an area of on going dialogue/ work.

Human Rights: trainings are already undertaken by a range of IP stakeholders and it is an already over crowded sector that will add no added value by expanding UNDP limited resources to human rights training. Additionally from the UNCT in Iraq there is dedicated team of Human Rights experts in the Office of Human Rights to persue this important topic and UNDP will continue to collaborate and coordinate with UNCT's OHR where necessary. Further more respect for and protection of human rights forms one of the underlying principles and norms of UNDP's SSR/RoL Programme of work.

 

Corruption: Curbing corruption is a GoI priority and, UNDP CO has a separate on going programme of work that focuses on Anti - Corruption. Within the GoI SSR efforts and UNDP SSR/RoL programme anti -corruption or rather allowing a supporting environment to curb corruption is another key underlying principle and hence the 2019 -2021 multi year programme of work's key focus is Support to Security and Justice Sector Governance in post - ISIL Iraq.

 

Youth empowerment: This is a an overarching focus of UNDP support to GoI SSR efforts and currently through CSO small grants schemes UNDP is continuing to engage more youth in liberated and other areas to engage with security and justice service providers to address local safety and security issues with the local communities.

Gender: Increased participation of both men and women in Iraq's SSR efforts is an on going challenge predominantly resulting from cultural and social norms as well as prevailing notions of masculinity. As 2019 SSR specific policy priorities ONSA has identified this as a current gap and has appointed a committee to present a paper on existing gaps in gender equality in Iraq's security sector and recommendations to address these challenges. Subject to securing additional funding UNDP SSR Programme intends to hire a dedicated 1-2 Gender Advisors to advice and assist the UNDP's key government counter parts in this sphere and also assist the Programme team to integrate a gender sensitive approach to UNDP's on going work within broader SSR as well as specific thematic streams such as policing and criminal justice spheres . Given this is one the key challenges in the SSR programme at present it would have helped if the External Evaluation provided a set of specific and tangible recommendations for UNDP's perusal on this topic.

 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
N /A
[Added: 2019/11/24] [Last Updated: 2020/01/28]
RoL/SSR Programme 2019/12 Canceled
9. Recommendation:

9. Strengthening UNDP capacity and processes

9.1 UNDP’s core SSR team needs to be augmented, in order to ensure continuity and sustainability are maximised

9.2 Monitoring and Evaluation within the Country Office needs to be improved

9.3 It is strongly recommended that a future outcome-based evaluation

9.4 Risks need to be properly scoped and assessed 

 

Management Response: [Added: 2019/11/24] [Last Updated: 2019/11/26]

9.1 

The recommendation will be taken into consideration subject to securing additional funding to hire additional staff.  Subject to securing additional funding UNDP SSR Programme plans to hire two international positions  - Gender Advisor and Programme Analyst and two national positions Project Coordinator and Translator.  Furthermore in order to assist with the programme's new area of engaged on community security integration pilot ( CSIP) for which funding has already been secured recruitment for  two international positions - CSIP Advisor  and CSIP M&E Advisor and two national positions Project Coordinator and Senior Project Assistant/ Translator is in progress.

9.2

A new organogram has been developed to overcome the M&E weak points that resulted from separating the M&E responsibilities between two units (PU & MSU); according to the new organogram, a dedicated M&E specialist will be setting and tracking M&E plans and activities.

9.3

The outcome evaluations will be conducted based on the 2018 evaluation guidance and these will be conducted at least once during the programme cycle of the new CPD which is set to start from 2020. Any additional outcome will be done in light of the new evaluation plan for the new CPD and on the discretion of senior management

9.4

The recommendation will be taken into consideration and work is in progress. Risk log for the SSR multi- year programme of work covering 2019 -2021 is in place and, will be updated on a quarterly basis on Atlas. Last update was in December 2018. Furthermore from 2015 -2018 SRR programme was implemented on time and against corresponding targets of the AWP despite the highly sensitive nature of the programme and, the challenging operational context because risks were assessed regularly and where necessary timely action was taken in consultation with GoI implementing partners to mitigate and address the same.

 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
9.1 Initiate action to hire CSIP Advisor, M&E Advisor, Project Coordinator and Senior Project Assistant/ Translator.
[Added: 2019/12/25]
RoL/SSR Programme and HR Unit 2019/05 Completed Project personnel are in place and fully embedded to the programme
9.4. Risk log in place and reviewed & updated quarterly on Atlas.
[Added: 2019/12/25]
RoL/SSR Programme and PMSU 2019/12 Completed During 2019 the risk log was reviewed and updated on a quarterly basis.
10. Recommendation:

Police engagement:

UNDP should strengthen its work with the MoI and police. This means clarifying means and lines of communication, specifically regarding communication through the MoI International Cooperation and Coordination Committee. It also includes clarifying with stakeholders whether an Action Plan is needed as well as the Implementation Plan for the Road Map. There was a lack of clarity amongst stakeholders as to how practical and operational the Implementation Plan currently is. The absence of a practical Action Plan risks rendering the good achievement of the Road Map merely aspirational and impossible to realise.

Management Response: [Added: 2019/11/24] [Last Updated: 2019/12/25]

The Ministry of Interior (MoI) developed the Local Police Service Road Map with  technical support and, strategic advice from UNDP. The Road Map provides a strategy for Iraqi police transition from a fighting 'force' to a public security 'service' in post liberation- Iraq (i.e.transition from 'Green' to 'Blue' Policing). The MoI Minister endorsed the Road Map on 16 May 2018. Its implementation plan was developed and, approved on 12 August 2018. The official launch of the Road Map took place on 12 November 2018 under the auspices of the MoI's Police Affairs Agency. It was followed by a series of orientation workshops for MoI and, police mid- senior officials from liberated and other areas in Iraq. The overall purpose of these orientation workshops is to introduce the Road Map and, initiate its implementation. The workshops also seek recommendations from provincial police for its implementation that is critical to ensure this important work is context specific and, responsive to the local level needs and challenges. Road Map orientation initiative at provincial level will continue till 30 May 2019 covering all provincial police commands in Iraq. Following this the Central Committee and Provincial Committees will identify Road Map core functions that are priorities based on the specific operational context in the respective provinces for implementation. UNDP will continue to advice and assist the Police Affairs Agency and relevant provincial police commands in its implementation. Furthermore, following the completion of provincial level orientation workshops, UNDP and Central Committee will also develop and finalize a plan to facilitate IP coordination in support of Road Map's implementation.

Key Actions:

11. Recommendation:

Criminal justice: UNDP needs to continue to enhance or scale up its work on the broader justice component of SSR. This can include focusing on detention issues (police cells, military and civilian prisons), or working alongside other entities that have this focus, e.g. UNODC, and border management. If some of this work does not fall into future programmatic plans, UNDP should at the least be convening others that can fulfil this role.

Management Response: [Added: 2019/11/24] [Last Updated: 2019/12/25]

It should be noted that UNDP is already engaged in GoI SSR identified priority under 'Criminal Justice and Law Enforcement' system and, corresponding to the 'suspects journey' to establish a unified approach criminal investigations. This has remained a gap for in the Criminal Justice sector for decades. Within Criminal Justice reform priorities MoI, HJC and MoJ have identified this specific aspect of the ' suspect's journey' to be addressed as the most pressing priority recognizing the overlap of roles and responsibilities related to criminal investigations and, the requirement for a unified approach. The GoI appointed Criminal Justice Working Group -CJWG  (composing senior representatives from MoI, HJC and MoJ) under the 'Criminal Justice and Law Enforcement' system requested UNDP advice and assistance to elaborate a unified Standard Operating Procedure for Criminal Investigations. ( SoP). This work was initiated in 2017 with a dedicated UNDP Senior Criminal Justice Advisor in place. With advice and assistance from UNDP the CJWG has finalized the SoP and, is pending MoI endorsement that is expected by April 2019. It is to be implemented as a MoI Regulation. UNDP will continue to work with the CJWG in the SoP implementation. The SoP is also a priority recommendation under the Local Police Road Map's core function 'security management' and, therefore this work will directly correspond and contribute to UNDP's on going support to implement the Local Police Service Road Map.

In view, it would have been useful if the above recommendation focused on providing some concrete and specific recommendations to improve UNDP's on going work related to SoP for Criminal Investigations specifically looking forward the up coming implementation phase.

Correctional Services including detention remains an identified gap where there is no IP support and where appetite for IP to this area also remains low. This is also not an identified programme priority in UNDP SSR multi -year programme 2019 -2021 which was developed in close consultation with National Partners and, building on from the work UNDP has already undertaken to support Government’s efforts in SSR in post- ISIL Iraq. However, UNDP will continue to advocate and encourage IP to correctional services and has already brought to the attention of UNODC during its scoping missions to Iraq in 2018.

Key Actions:

12. Recommendation:

SDC engagement:

UNDP should prioritise and strengthen its work with the SDC. Investing more in the SDC will demonstrate to other stakeholders that the SDC is not separate to the SSR process, but instead forms an integral part of necessary democratic and accountability processes and oversight.  There needs to be a significant reframing of the messaging of its role, both to counterparts and IPs.  The Working Methods document should be re-visualised, as it has been shared with counterparts and IPs, and places the SDC at the sub-committee level, whereas its role is actually overarching and should be much more prominent. Encouragement can also be given by UNDP to other national agencies to for members of the SDC to attend various high-level meetings.[1] The SDC by-laws represent good progress in strengthening the SDC, but it is only a four-page document that outlines the basic functioning, remit and human resources hierarchy of the SDC. UNDP should capitalise on this previous good work by supporting the SDC to create its own Strategy and Action Plan as well as further policies, as directed by the SDC. A Strategy and Action Plan would assist the SDC to set goals for what entities and issues they would like to investigate or focus upon. Further policies may also be beneficial in setting out, for example, the methodology that will be applied to research that the SDC hopes to undertake. 

 

UNDP should support continued collaboration between the SDC and civil society. This can include joint presence at the proposed CSO sensitisation events mentioned below.

 


[1] The Programme should also ensure from the SDC side that appropriate senior representatives attend any external meetings. It was said that junior representatives had in the past attended external meetings, which might have contributed to the SDC in general not being perceived as being a critical stakeholder.   

Management Response: [Added: 2019/11/24] [Last Updated: 2019/12/25]

The recommendation will be taken into consideration and UNDP will continue to engage with SDC and CSOs during 2019 and beyond within SSR Programme's multi -year programme specifically assisting the newly established SDC under the new government to maximize the SDC by laws to play an active role in oversight aspects of SSR in close collaboration with CSOs.

( Note: At the time of  completing the Management Responses the newly established SDC is pending the appointment of its Chair that is expected in April 2019 and thereby complete the formation of the SDC under the new government following parliamentary elections in May 2019. UNDP will resume its work in this sphere following the appointment of the new SDC Chair as per the standard protocol and practice) 

Key Actions:

13. Recommendation:

Civil society engagement:

 

  • UNDP needs to build more bridges with CSOs and take a more pro-active approach to CSO engagement on SSR issues, moving away from Quick Impact Projects to longer-term activities. The latter have a better chance of being more sustainable, thereby also representing sound financial investment. UNDP should therefore plan and budget for longer-term CSO engagement, by:

 

  • firstly, seeking to build upon what CSOs have already been doing, and continuing to support the most successful activities;

 

  • secondly, by inviting a wide array of CSOs to a forum (or several forums by region, if more appropriate), and sensitising them to SSR. This would include discussing what SSR is, how SSR impacts local communities, how CSOs can work at the local community level (e.g. through community policing models, or advocating for the same), and at the higher national level by advocating for strengthening of accountability processes through the passing of legislation. This would hopefully cultivate interest from organisations that have historically been focused on other issues, but could in future be valuable SSR partners;

 

  • Thirdly, in order to ensure that corruption is a topic that remains in the public eye, there is a need to sensitise NGOs as to why and how they can focus on corruption, and how it undermines effective SSR. This includes awareness-raising on relevant accountability mechanisms, both within parliament and inter-entity. Similarly, SSR and gender, human rights and youth empowerment issues should be focused upon so that NGOs are better informed and able to support work in these areas; and

 

  • Fourthly, increasing presence across the country as areas become more easily accessible.
Management Response: [Added: 2019/11/24] [Last Updated: 2019/12/25]

The recommendation is well noted.  Recognizing that Iraqi CSOs are not experienced in engaging in a senstive issue such as SSR a step by step approach was adopted by the UNDP RoL/SSR Programme to engage with CSOs in this sphere. In view the CSO quick impact projects are viewed as a first step in this endeavor where CSOs are provided with support to  develop collaborative partnerships with local level security and justice service providers to improve local saferty and security. This work has allowed UNDP to engage with and continue to build a network of Iraqi CSOs from both liberated and other areas. Additionally UNDP has also invovled these CSOs in joint trainings on SSR and related issues with SDC since 2015 to-date.

 

In view UNDP will continue to engage with Iraqi CSOs through quick impact projects in the coming years building a strong network of CSOs from liberated and other areas who will be pro active in engaging in SSR related issues particularly where their engagement will add value in the areas of improving local policing, criminal justice and oversight of security and justice service at local level.

Key Actions:

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