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End-of-Project Evaluation – “Peace-Building Fund Programme”
Commissioning Unit: Papua New Guinea
Evaluation Plan: 2018-2022
Evaluation Type: Project
Completion Date: 12/2018
Unit Responsible for providing Management Response: Papua New Guinea
Documents Related to overall Management Response:
 
1. Recommendation:

Relevance

 The next several years will be critical in sustaining peace in Bougainville. As an accepted and valued partner, and in the absence of other accepted neutral organizations that could serve as alternative partners, the United Nations should continue to support the implementation of key processes in the implementation of the BPA in 2018, 2019, and 2020 as critical years for the implementation of the BPA.

Management Response: [Added: 2018/12/17] [Last Updated: 2018/12/17]

Agreed. The success of the PBF 1 in maintaining momentum in progress against the PPP, including strengthening of strategic political partnerships which greatly contributed to agreements in support to implementation of the Bougainville Peace Agreement such as the date of the referendum, has informed the design of PBF 2 project. UNDP, UNFPA and UNWOMEN have developed a project under the PBF (PBF 2) that continues to support the implementation of key processes in the BPA (Autonomy, referendum and weapons disposal) over the duration 2018, 2019, and 2020.

 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Political Dialogue
[Added: 2018/12/17] [Last Updated: 2019/03/04]
UNDP 2020/07 Initiated History
Awareness and Knowledge building on the Bougainville Peace Agreement
[Added: 2018/12/17]
UNFPA & UNWomen 2020/07 Initiated Activity is on track and will run for 2 years til July 2020 History
Weapons Disposal
[Added: 2018/12/17]
UNDP 2020/07 Initiated Activity is just commencing History
2. Recommendation:

Effectiveness

Based on past successes and current needs, the UN should continue to support the implementation of the BPA through targeted assistance to building relationships and trust between the GoPNG and ABG, supporting access to more objective and accurate information and fora for dialogue and debate, and assistance on social cohesion and security in Bougainville.

The PBSO should consider more modest language, objectives, and indicators in developing support for peacebuilding that take into account that the UN is not responsible for key processes and meeting key deadlines in peacebuilding. The PPP and the process of drafting and attaining government approval make it clear that the UN not solely responsible for the PPP– instead the two governments have the lead and the UN through the PPP aims to support their achievement of the goals of the PPP. Writing PPPs in ways that are sensitive to the UN’s roles as neutral facilitators may produce targets that are not only achievable based on what UN organizations can reasonably be expected to achieve themselves in the PPP but also prove more supportive of national ownership and leadership in peacebuilding.

Management Response: [Added: 2018/12/17] [Last Updated: 2018/12/17]

Agreed. The UN in the new PBF project continue to strengthen strategic political partnerships formed in PBF 1 and ensuring regular dialogue with GoPNG and ABG, and the two Parliaments to support the two governments in achieving the PPP. PBF project objectives and intended results are joint Government-UN results and they take into account the lead (and ownership) by the Government and people of PNG. The UN is supporting the implementation of a range of different awareness activities by ABG and its endorsed implementing partners, through different mediums, directed at different actors, where relevant, including high level political dialogue, social and mainstream media, telecommunications, community storytelling and general awareness. The management having foreseen these have made provisions in PBF 2 for Monitoring, Evaluation and Communications to be an integral part of the project. Regular communication with Joint Steering Committee (the oversight body established under the PPP 2015 – 2017) members is a strategy used by the project to keep the two governments informed of the project’s progress, including the tracking and development of risk mitigation strategies, strengthening partnerships and supporting national ownership of the PPP and outcomes supporting the PPP. Given the costs and challenges of conducing formal JSC meetings and as the two governments and the UN have prioritised the implementation of the BPA (autonomy review, Joint Supervisory Body meetings) and the referendum preparations in detriment to formal meetings of the Steering Committee, the PBF is utilizing the UN Liaison Officer’s regular engagement with key stakeholders to disseminate project progress updates and plans. The Project Manager will also utilize opportunities to discuss project progress, key bottlenecks and plans with the relevant stakeholders in Bougainville and the rest of Papua New Guinea.  JSC members will be invited to attend monitoring visits. We will compile a monitoring visits plan as part of the M&E plan.

 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Development of a UN communication’s strategy to guide awareness activities
[Added: 2018/12/17] [Last Updated: 2019/10/05]
PBF 2 2019/12 Initiated Communication plan is drafted and under discussion for finlization History
Recruitment of a full-time Communications personnel to develop a project Communications Strategy and coordinate its implementation
[Added: 2018/12/17] [Last Updated: 2019/04/01]
PBF 2 (Outcome 2) 2019/02 Completed the Communications personnel full time is hired and resuming her function in the project. History
Review of the PBF 2 Results Framework
[Added: 2018/12/17] [Last Updated: 2019/05/19]
PBF 2 (Management and M&E Units) 2019/03 Completed The Peace Building project is supporting the implementation of a range of different awareness activities that are endorsed by ABG, through different mediums, directed at different actors, where relevant, including high level political dialogue, social and mainstream media, telecommunications, community storytelling and general awareness. UNDP has developed its technical capacity to support awareness activities by recruiting a communications officer that has developed a communications strategy to guide interventions. PBF2 has developed comprehensive monitoring and communication plan as well as risk log and its mitigation measures, that is currently going under mid-term review to ensure that the BMT as well as indicators are strengthened to measure the facilitation of successful political dialogue between the two GOPNG and ABG. The revision is in the final stage, the consultative process will take place in last week of May and expected to be endorsed by end of July 2019. The project has a M&E officer that has developed an M&E framework that as part of the review will further develop the linkages with to strengthen our communications and awareness work. History
Recruitment of a full-time Monitoring & Evaluation personnel to set up project M&E system and coordinate its implementation
[Added: 2018/12/17] [Last Updated: 2019/01/10]
PBF 2 2018/12 Completed Completed History
3. Recommendation:

Efficiency of Planning and Implementation

A future PPP team should have a more robust staffing structure, with a full-time program officer for each of the main work streams of the PPP.

PBSO should consider developing ways to accelerate project start up, particularly through staffing support, to help PPP activities get off to a more rapid start. This may be especially critical in contexts where peace agreements have more recently been negotiated and agreed to than in Bougainville. PBSO should consider developing a roster of potential staff through consultancies or working within the UN system to potentially deploy regular UN staff for a brief period, particularly for the design and start-up of programming.

UN project management and procurement in Bougainville should continue to be led by international staff to be able to clearly and visibly demonstrate that they are independent of both governments and avoid perceptions of partiality given the small size of Bougainville and the Melanesian context of PNG.

The UN team should work with the PBSO, partners, and stakeholders to identify additional ways in future programming on awareness to systematically encourage culturally appropriate face-to-face communication and dialogue across the ARoB, as these types of mechanisms are the most used mechanisms and most respected ways to support information dissemination and the discussion of community issues across Bougainville.

The UN system in PNG should consider additional ways to work systematically over a sustained period of time with community-based and ABG institutions working with youth to enable a wider reach to this large, critical population across the ABG.

The PBSO should consider less demanding monitoring and evaluation modalities and reporting on PPP implementation, and work with PPP leaders to develop M&E systems that will be used as part of PPP management as well as for information sharing with PBSO in New York. In theory, M&E is most effective when it is used for management. The content and extent of M&E for a project should thus depend on what the project needs and can utilize for management. The detailed information collected by the PPP may have been too much information for management to use in this case in the ARoB.

The PBSO should consider developing programmes with longer time periods than the three-year term for the PPP. Peacebuilding is a long-term process; years after the signing of the peace agreement in Bougainville, the limited support for peacebuilding in the years after the signing of the BPA in 2001 has made supporting key aspects of peace a long-term proposition. The three-year time period of the PPP was not long enough to have as strong a set of effects as anticipated in the context of continued delays and tensions between the two governments, limited capacity across Bougainville, and a challenging environment for supporting community cohesion. If time periods are not to be lengthened but PGSO expects to have multiple rounds of funding, PBSO should make it clear to partners and stakeholders that multiple rounds of PBF funding are envisioned.

Management Response: [Added: 2018/12/17] [Last Updated: 2018/12/17]

The UN will make every effort to ensure an efficient and optimum staffing structure is on the ground in Bougainville given funding and recruitment challenges. In order to retain staff and avoid start up delays with the PBF2 efforts were made by the UN to retain those with key skills between PBF1 and PBF2, which was successfully achieved. Recognizing the importantly “neutral” and “independent” role of the UN in Bougainville the project document was adapted to ensure the organogram contains an international project manager overseeing the PBF2. In addition, an international liaison officer’s acts as a coordinator for the two PBF projects (Sustaining Peace and GYPI). An international procurement manager will provide support to the project from the Country Office in Port Moresby. A full-time program officer for each of the main work streams of three main outcome areas: Dialogue, communications and weapons disposal has already commenced. A project officer for weapons disposal has commenced and a project officer for awareness will be seconded from the Country office before a longer-term solution will be identified. Gender, youth and inclusive processes are mainstreamed into each of the PBF 2 activities. An M&E officer is in place and will design a M&E strategy to guide M&E interventions that are most effective for management. The strategy will be informed by the needs of the PBF team to monitor progress and impact of the PBF2 on sustaining peace in Bougainville. It will include the key indicators to follow, the instruments for measuring them and the regularity of their collection. This information will be applied to inform project progression.

 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Recruitment of an International Project Manager
[Added: 2018/12/17] [Last Updated: 2019/01/10]
UNDP 2018/12 Completed In final stages of recruitment History
Recruitment of Project officers
[Added: 2018/12/17] [Last Updated: 2019/07/08]
UNDP/UNFPA/UNWomen 2019/06 Completed the project has recruited one project officer, who has started the role, the second project officer role was filled in temporary through reassignment of duties from our national awareness officer in port Moresby who is managing the PBF2 awareness component. History
Development of an M&E Strategy
[Added: 2018/12/17] [Last Updated: 2019/05/16]
UNDP/UNFPA/UNWomen 2019/12 Initiated This M&E Strategy is currently under review. An updated version will be uploaded soon as it has been finalized. History
4. Recommendation:

Potential for Sustainability, Replication and Magnification

PBSO should continue to consider supporting peacebuilding priority plans that may not be able to focus on sustainability, replication, or magnification but that are able to support priority actions to build or sustain peace at critical periods in the peacebuilding processes in countries and regions around the world. The PBSO should consider placing less emphasis on sustainability and change, not necessarily using the language of sustainability, replication, and magnification in PBF programming.

International support for peacebuilding is critical in the short term in the run up to the anticipated target date for the referendum (15 June 2019) and the transition period thereafter. Since peacebuilding in Bougainville is increasingly important in the run up to the planned referendum and there are not alternative neutral providers to facilitate peaceful management of key peacebuilding processes, the UN should continue to support the implementation of key processes in BPA implementation. The experience of developing, implementing, monitoring, reporting on, and evaluating the 2015-2018 PBF-funded project also suggests the continued utility of another PBF-funded programme.

Project design and implementation should focus on key priorities of both governments in helping them prepare for and implement processes around the referendum and its aftermath. Public awareness activities remain critical, as are needs to support them. These activities will be critical even if the timing of the referendum moves to after the 15 June 2019 target date.

While there still are urgent short-term priorities in peacebuilding in Bougainville and PNG, the design of activities in a successor PBF-funded programme on peacebuilding in Bougainville should be done in collaborative ways with RUNOs, GoPNG, ABG, BHOR, and civil society partners to focus more on sustainability and national ownership than was done under the 2015-2018 PPP.

Management Response: [Added: 2018/12/17] [Last Updated: 2018/12/17]

The UN will continue to support the implementation of key processes in BPA implementation. In particular, in the areas of dialogue, awareness and weapons disposal under a second PBF-funded programme. Activities under this second PBF 2 were conducted in a collaborative way across UN, GoPNG, ABG, BHOR and civil society. This resulted in a three UN agency partnership programme and project endorsement from GoPNG and ABG. The project will support key discussions, actions and awareness in the lead up to the referendum, the post referendum transition procedure and weapons disposal.

 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Consultations and stakeholder engagement on new PBF activities
[Added: 2018/12/17]
UN 2018/06 Completed History
New PBF project developed and awarded
[Added: 2018/12/17]
UN 2018/07 Completed

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