Evaluation Series No. 109
Evaluation of the Commonwealth Secretariat’s Support to Grenada 2013/14 – 2016/17
Final Report EVALUATION SERIES No. 109 Evaluation of the Commonwealth Secretariat’s Support to Grenada
2013/14–2016/17 Evaluator: Evelyn Acio Pedersen Head of Evaluation and Learning Commonwealth Secretariat Internal evaluation conducted by Strategy, Portfolio and Partnership Division Commonwealth Secretariat
© Commonwealth Secretariat 2019 All rights reserved. This publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic or mechanical, including photocopying, recording or otherwise provided it is used only for educational purposes and is not for resale, and provided full acknowledgement is given to the Commonwealth Secretariat as the original publisher. Views and opinions expressed in this publication are the responsibility of the author and should in no way be attributed to the institutions to which they are affiliated or to the Commonwealth Secretariat. Wherever possible, the Commonwealth Secretariat uses paper sourced from responsible forests or from sources that minimise a destructive impact on the environment. Published by the Commonwealth Secretariat. Acknowledgements \ iii
Acknowledgements
The Strategy, Portfolio and Partnerships Division of the Commonwealth Secretariat would like to acknowledge the extensive support, direction and engagement of the High Commission of Grenada in London throughout this evaluation. Sincere appreciation goes to the Ministry of Foreign Affairs, the primary contact point, for the co-ordination of meetings in-country and for ensuring the mission was a success. We also extend special thanks to all the respondents in Grenada who provided unreserved and constructive critical assessment of the Commonwealth programme. Within the Commonwealth Secretariat, we would like to thank all staff who engaged with interest in the review process and provided feedback at all stages. Special thanks goes to Ms Purvi Kanzaria, Evaluation Officer, who managed, facilitated and co-ordinated all meetings and feedback across all internal and external stakeholders.
Contents \ v
Contents
Acknowledgements iii Abbreviations and Acronyms vii Executive Summary ix
1. Introduction and Context 1
1.1 Introduction 1
1.2 Country context 2
1.3 Commonwealth Secretariat Strategic Plan 6
1.4 Programme context 7
1.5 Commonwealth Secretariat’s context 8
2. Findings 11
2.1 Democracy 12
2.2 Public Institutions 20
2.3 Social Development: Health 38
2.4 Youth: Empowerment of Young People 42
2.5 Economic Development 47
2.6 Small States: Resilience Profiling 55
3. Synthesis 59
3.1 Relevance 59
3.2 Efficiency and value for money 59
3.3 Effectiveness 61
3.4 Impact 64
3.5 Sustainability 65
3.6 Lessons learnt 66
4. Recommendations 67
4.1 Programme challenges and recommendations 67
4.2 Institutional challenges and recommendations 67 vi \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Annex 1: Terms of Reference 69 Annex 2: Evaluation Framework 73 Annex 3: Grenada’s Participation in Ministerial Meetings, Conferences and Training Workshops 74 Annex 4: Internal Stakeholders List 76 Annex 5: List of Institutions Consulted 77 Abbreviations and Acronyms \ vii
Abbreviations and Acronyms
AIDS Acquired Immune Deficiency Syndrome CARICOM Caribbean Community CCAICACB Commonwealth Caribbean Association of Integrity Commissions and Anti-Corruption Bodies CCJ Caribbean Court of Justice CEN Commonwealth Election Network CFTC Commonwealth Fund for Technical Cooperation CHOGM Commonwealth Heads of Government Meeting CMAG Commonwealth Ministerial Action Group COG Commonwealth Observer Group COMNYO Commonwealth New York Office COMSEC Commonwealth Secretariat Assessed Contribution Fund CRAC Constitutional Reform Advisory Committee CS-DRMS Commonwealth Secretariat Debt Recording and Management System CYP Commonwealth Youth Programme CVQ Caribbean Vocational Qualification DAC Development Assistance Committee EC$ Eastern Caribbean Dollars ECCB Eastern Caribbean Central Bank EU European Union FAO UN Food and Agricultural Organisation FY Financial Year GDP Gross Domestic Product HIV Human Immunodeficiency Virus infection HRU Human Rights Unit IMF International Monetary Fund JEP Junior Elections Professional MoU Memorandum of Understanding viii \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
NCD Non-Communicable Diseases NES National Export Strategy NHRI National Human Rights Institution OECD Organisation for Economic Co-operation and Development OECS Organisation of Eastern Caribbean States QC Queen’s Counsel RBM Results-Based Management SAP Structural Adjustment Programme SDG Sustainable Development Goal SRO Statutory Rules and Orders SRF Strategic Results Framework TOC Theory of Change UK United Kingdom UN United Nations UPR Universal Periodic Review US United States USA United States of America UWI University of the West Indies WHO World Health Organisation YDI Youth Development Index Executive Summary \ ix
Executive Summary
Overview There was no direct expenditure on social This report presents the findings of an development. Expenditure incurred on health evaluation conducted in 2018 to assess the is also reflected at the regional level, as support Commonwealth Secretariat’s (hereafter referred was regional as opposed to national. The second to as ‘the Secretariat’) support to Grenada. The largest expenditure (£114, 268, 14 per cent) is in evaluation focuses on the Strategic Plan period Economic Development. Of this total, £98,597 of 2013/14–2016/17 but for context the report relates to development of the National Export also incorporates historical data on engagement Strategy (NES). between Grenada and the Secretariat prior to 2013. Overall, there was high concentration of CFTC This is the sixth in a series of country evaluations experts in comparison with other country conducted by the Secretariat and the third evaluations so far conducted. This relates to undertaken in the 2017/18–2021/22 Strategic Plan Grenada’s awareness of technical assistance period.1 It is the first formal evaluation conducted by support and the proactive nature of Grenada in the Secretariat in Grenada. requesting it. The evaluation has two overarching objectives. First, it aims to act as an accountability mechanism Programme relevance and effectiveness to the Board of Governors, the Government of The Secretariat’s support to Grenada is in direct Grenada and the broader Commonwealth on response to requests received as well as to the performance of the Secretariat’s support to Grenada’s agreement to participate in its initiatives. member countries. Second, it seeks to derive In this regard, the evaluation assumes that all lessons that can be used to improve programming programmes delivered were relevant. Grenada and that can be applied to engaging with other was very proactive in identifying its national needs member countries. and engaging with the Secretariat in meeting The evaluation was primarily qualitative and those needs. adopted a case study approach to documenting There were clear linkages to national priorities. findings in accordance with the Secretariat’s results Technical assistance provided by the Secretariat on framework and the ‘Impact Pathway’. legislative drafting and national planning was directly Programme delivery linked to a whole of government priority on the ‘Home-growth’ structural adjustment programme As a member of the Commonwealth, the (SAP). The Secretariat’s input was timely and Government of Grenada makes a contribution Grenada was resourceful in using the technical to the three Commonwealth Funds: the assistance provided, including reviewing the terms Commonwealth Secretariat Assessed Contribution of reference for the experts to address the most Fund (COMSEC), the Commonwealth Fund for urgent national priorities. This is also reflected Technical Cooperation (CFTC) and the fund for the in the development of the NES, a key priority for Commonwealth Youth Programme (CYP), as well the economy. as to the Small States Office in New York. Over the Unlike in some of the similar evaluations, there was four years of the Strategic Plan, Grenada’s total depth in the Secretariat’s engagement in Grenada. contribution amounted to £240,012. This relates to the longer-term commitment On the total expenditure, 82 per cent (£650,165) on specific areas with the support of technical was incurred in Public Institutions. Of this total, experts. Notable areas include debt management £508,459 is CFTC expert costs. The cost for (existence and support to the system); legislative regionally based CFTC experts who made drafting; anti-corruption (consistent meetings contributions to Grenada is not represented and structured capacity-building, with a regional at the national level, therefore not included. capacity-building hub being established in Grenada); and export promotion (development of two sets 1 Previous evaluations are of Sri Lanka (2013), Belize (2013), of export strategies and now clear commitment in Kenya (2013), Solomon Islands (2014) and Namibia (2018). strategy implementation). x \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Of the ten sets of outputs assessed, only one was The evaluation highlighted the significant not delivered. Progress directly attributable to the contributions that technical assistance Secretariat is most notable in oceans governance under the CFTC programme makes to the (Economic Development). Other areas with steady development of a member country. In 2014, progress include elections and trade (Democracy the Government of Grenada embarked on its and Economic Development). Public Institutions Home-grown Programme of Fiscal Adjustments and Social Development see good progress but and Reforms. The Secretariat’s CFTC technical the Secretariat’s contribution is limited. There is no assistance was instrumental in the delivery of the progress in Youth and Small States. key reforms.
CFTC long-term experts • Macro-Economic Planner/Adviser, Prime Minister’s Office (November 2014–November 2015) • Senior Commercial Counsel, Attorney General’s Office (2014–2016) • Policy Adviser, Prime Minister’s Office (2014–2016) • Legislative Drafter, Attorney General’s Office (2015–2016) • Regional Advisers (Legislative Drafter) based in Caribbean Community (CARICOM) (2010–2014)
Highlights of outcomes/impact to lead the process. The Policy Adviser supported the successful development and review of three Grenada’s National Sustainable Development -year Corporate Plans in all government ministries Plan 2030: As part of the Fiscal Adjustment and and departments. The evaluation confirmed and Reforms Programme, Grenada, led by the Ministry verified with the various ministries and department of Finance and supported by the Macro-Economic visited that Corporate Plans were effectively being Planner/Adviser in the Office of the Prime Minister, implemented and guiding programme delivery. embarked on the development of the NSDP 2030, As most of the Plans were due to expire, plans anchored on the Sustainable Development Goals. were already in place for development of the next The proposal for the NSDP process was launched in three-year Plans using the same approach and May 2015. The Steering Committee and Technical template – a sign of sustainability. However, the next Working Group were established. The expert led Corporate Plans are to be linked to the NSDP 2030 the Technical Working Group in development of the under development. The delay in the completion NSDP. Unfortunately, the expert’s support was not of the NSDP will have an effect on the timeline for satisfactory and the services were terminated with delivery of the Corporate Plans. some lessons to be learnt in relation to recruitment. At the time of evaluation, progress on NSDP Legislative drafting: The Secretariat was development was continuing, led by the National commended for establishing the Legislative Planning Commission in the Ministry of Finance. Drafting Unit in Grenada through technical Public consultations, started in July 2017, were assistance support. Systems and processes underway and one sectoral consultation (Ministry of established were still in operation and sustained Agriculture) had been completed. Technical support to date. Extensive demands were placed on the to finalise the Plan is still required. government as part of the Home-grown SAP to review and develop new pieces of legislation. Corporate Plan development and implementation: In total, 66 pieces of legislation needed to be As part of the Home-grown SAP, all ministries and developed, amended or reviewed. The Secretariat departments were required to develop Corporate placed legislative drafters in Grenada on both Plans. The Policy Adviser in the Office of the a short- and a long-term basis. Grenada also Prime Minister, primarily responsible for strategic benefited from legislative drafters placed by the planning, monitoring and evaluation, was requested Secretariat in CARICOM. The evaluation assessed Executive Summary \ xi
progress on a number of pieces of legislation, Expert-led Secretariat initiatives tend to most of which had been passed and were lose momentum when the expert leaves under implementation. the organisation and there is no handover or organisational direction to complete the work Implementation of Grenada’s Public Procurement started. The governance resilience framework lost Act 2014: The Senior Commercial Counsel the lead expert within the Secretariat and came to in the Attorney General’s Office supported a halt. All initiatives, both innovative and on-going the drafting of the Public Procurement Act, programmes, need to be grounded and owned by as part of the Fiscal Adjustment and Reforms the Secretariat but not dependent on the technical Programme, and was also instrumental in the expert delivering them. development of a new procurement framework, including capacity-building. The Act was passed Inter-Divisional coordination opportunities in August 2014 and the supporting regulations were missed during the development and in September 2015. Implementation of the implementation of the resilience governability Act started in 2016. Major institutions were framework in the small states. The Governance established as part of implementing the Act: Team was not consulted on a governance project Public Procurement Board appointed and that was being delivered by another technical functional; Review Commission established and Division. Ownership of initiatives seems to override functional; Procurement Secretariat established the benefit of working together in a concerted and already staffed, supporting the operations of manner to achieve sustainable results. In the the Board; Procurement Units to be established case in point, the experts in the team engaged in all ministries. At the end of the evaluation, in the delivery were experts not in governance four ministries had made good progress in the but in resilience and therefore their interface on establishment of procurement units in line with the governance issues as a whole was challenged. Act (Finance, Works, Health and Education). A key lesson is that expertise from across the different Directorates and Divisions needs to be National Youth Policy: The CYP Regional Centre drawn together to deliver on programmes for was praised for its extensive advocacy for the the Secretariat. development of national youth policies. In 2004, the CYP Regional Centre provided technical The Secretariat profile in programme delivery support in the development of the first National is limited at activity level to press releases on Youth Policy. This was commended for shaping high-visibility engagements such as programme youth development in Grenada and increasing launches and the Secretary-General’s visit to government awareness of the importance of youth the member country as opposed to the holistic development. This is reflected in the increased programming being delivered in the member annual budget allocation to youth development country and the change the Secretariat intends from EC$10,000 in 2002 to the current EC$30 to contribute to. This realisation implies the million. A Youth Strategic Action Plan and Secretariat’s visibility is experienced on a case- Implementation Strategy were developed that have by-case basis and the member country does not clear roles and responsibilities for the different line have the complete picture of its work. Secretariat ministries. There is also an Inter-Ministerial Focal engagement needs to address longer-term change Group for Youth Policy that meets quarterly to in a holistic manner and should be consistently discuss progress on implementation of the Plan. communicated to the member country leadership The Policy was in implementation until 2015 when and development partners. successor policy development was commissioned. Stakeholders consultations on the closure of the Regional Youth Centre should have been more Lessons learnt extensive and a transition programme or national options to keep momentum of progress at the Recruitment of CFTC experts within the region time considered. not only had the benefit of local context knowledge but also made it possible to retain experts in the Recommendations member country or the region to continue providing valuable technical capacity. An example is the Transition in the Strategic Plans: The transition retention of the CFTC Expert as the Permanent from one Strategic Plan to another should entail Secretary in the Office of the Prime Minister. clear consideration of on-going projects and the xii \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
implications of stopping any such projects in a engagements with the member country and update member country. progress on implementation, as well as to draw attention to gaps and successes. Strategic direction in programme delivery: All programmes delivered need to be grounded Technical assistance: The recruitment process within the Secretariat’s strategic vision for the of CFTC experts should be broadened so Commonwealth so as to ensure that all initiatives that member countries hosting a technical started are owned by the Directorate and delivered expert are given the opportunity to engage irrespective of existing staffing capacity. with the candidates under consideration for the assignment, for more informed decision Abuja Guidelines: Country reports need to be on the candidate beyond the profile and produced regularly so that member countries curriculum vitae. appreciate programmes being implemented and the value of the CFTC contribution to the country. International relations versus national This will prove the relevance of the CFTC to the coordination: The Secretariat’s programme development needs of the country and encourage delivery in a member country needs to be timely contributions. coordinated both at the diplomatic level (ministry in-charge of international affairs) and at the Country focus in programme planning and programmatic level (ministry in-charge of national delivery: A country focus needs to be inbuilt in planning and coordination) to ensure its input is programming at the strategic level (such as in the responsive and reflective of national priorities as Delivery Plan) and a national programme delivery well as highlighted in national reports. approach or strategy needs to be established that is linked to the priority needs of the member country. Follow-up, monitoring and evaluation: Country- This should be reflected in the depth of programme level data/information collection as part of monitoring delivery and engagement in the selected areas. In and evaluation needs to be embedded in all field addition, a country-designated focal point needs to missions and information from Back to Office Reports be established within the Secretariat to map out all compiled in a central country database. Introduction and Context \ 1
1. Introduction and Context
1.1 Introduction Using the evaluation criteria of the Development Assistance Committee of the Organisation for This report presents the findings of an evaluation Economic Co-operation and Development (OECD- conducted in 2018 to assess Commonwealth DAC), the country evaluation sought to assess the Secretariat (hereafter referred to as ‘the relevance, effectiveness, impact and sustainability Secretariat’) support to Grenada. The evaluation of the Secretariat’s support to Grenada. The study focuses on the Strategic Plan period of has achieved the following: 2013/14–2016/17 but for context the report • Reviewed the extent to which Secretariat also incorporates historical data on engagement support was relevant to the priorities of between Grenada and the Secretariat prior to 2013. the targeted member country, and was This is the sixth in a series of country evaluations consistent with intermediate outcomes of the conducted by the Secretariat and the third Strategic Plan; undertaken in the 2017/18–2021/22 Strategic Plan • Assessed outcomes and impact achieved period.1 It is the first formal evaluation conducted over the evaluation period and the level of by the Secretariat in Grenada. Country evaluations sustainability of the results; are a core element of the Secretariat’s evaluation programme, responding to member countries’ • Assessed member country contribution to need for more detailed country-based information. Secretariat funds and the benefits realised Selection criteria for country evaluations include over the review period and conducted a resources disbursed, number of projects, diversity contribution-benefit analysis, assessing value of projects and regional representation.2 Learnings for money for the member country; from the country evaluations will provide an • Reviewed the delivery model of programmes in-depth and holistic picture of the Secretariat’s in the member country, including programmes in supporting strategic planning, communication and programme coordination organisational learning and accountability in-country, highlighting lessons and areas to member countries. It will also inform the for improvements; Secretariat’s understanding of how it has engaged with countries across the six pillars in the Strategic • Identified issues, challenges and lessons Plan, including a value for money analysis. learnt and made recommendations on the overall Secretariat programming. 1.1.1 Evaluation objectives 1.1.2 Methodology This evaluation has two overarching objectives. First, it aims to act as an accountability mechanism The evaluation was primarily qualitative and to the Board of Governors, the Government of adopted a case study approach to documenting Grenada and the broader Commonwealth on findings in accordance with the Secretariat’s results the performance of the Secretariat’s support to framework and the ‘Impact Pathway’ (described member countries. Second, it seeks to derive in more detail in the introductory part to Chapter lessons that can be used to improve programming 2: Findings). The evaluation framework (Annex 2) and that can be applied to engaging with other designed for this evaluation addressed the broad member countries. evaluation parameters of relevance, effectiveness, outcomes/impact and sustainability. 1 Previous country evaluations include Sri Lanka (2013), • A desk review of national country Belize (2013), Kenya (2013), Solomon Islands (2014) and documentation, including publically available Namibia (2018). 2 The selection criteria used for the countries to be strategy documents and reports, was evaluated include an adequate geographic balance of conducted to provide context and address nations; no previous country evaluation conducted; the general evaluation questions. Additional size (number and value) of activities supported by the Secretariat; balance between small and larger nations; and reports were requested and received from balance between varying levels of development. interactions with respective ministries, 2 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
offices and agencies in-country, and Project and project design was also at Pan-Commonwealth Design Documents with their monitoring level – thus progress against each indicator could plans and results reports were reviewed. All not be measured in relation to one country. key documentations, including Back to Office As a result, progress against indicators will be Reports, research reports, progress reports consolidated at the regional and strategic level from consultancies, etc., were reviewed. once a significant number of country evaluations have been conducted. This report will detail the • Focus group discussions and interviews progress made in Grenada, which will contribute to were held with project teams within assessing the work of the Secretariat at the Pan- the Secretariat to better understand Commonwealth level. the programme theory, to qualify and contextualise the results documented and 1.1.3 Report structure to seek responses to specific questions that emerged from the literature review. This report is presented in four chapters. The first chapter introduces the study and provides • A field visit was conducted to St Georges, a country as well as the programme context. Grenada, from 12 to 23 February to meet key Chapter two outlines the findings presented in stakeholders, beneficiaries and others who line with the Secretariat’s Strategic Plan. The SRF may have engaged with the interventions. highlights the areas that Grenada benefited from A total of 28 meetings (interviews and and gives an overview of the support provided and discussions) were held (see Annex 5: Field visit an assessment of performance. Chapter three itinerary). These visits allowed the evaluation attempts to synthesise the findings in line with team to triangulate desk findings, verify results the OECD criteria, drawing lessons. Chapter four and generate additional data related to the outlines challenges and provides recommendations evaluation questions. at the programme and strategic level. • Telephone interviews were conducted with respondents who could not be reached during 1.2 Country context the field visit. The Caribbean Island nation of Grenada has a The main limitation in the study related to the broad population of 111,724 (July 2017 estimate) people scope of the evaluation questions. Although the and a territory composed of the main island of primary focus of the study was the last Strategic Grenada as well as six smaller ones, with the larger Plan period (2013/14–2016/17), there had not islands being Carriacou and Petit Martinique, been any formal monitoring or evaluation of the and some 600 small islets, most uninhabited. Secretariat’s earlier support. Not all relevant Approximately one-third of the population is found stakeholders could be reached and, in some cases, in the capital of St George’s, and the majority of the officials directly engaged in implementation were entire population is concentrated along the coastal not available; in other areas, high-level meetings areas of Grenada’s 344 km2 land mass. were conducted that limited the technical input Grenada is also known as the ‘spice island’, owing of operational people. While the evaluation to its production of nutmeg and mace crops. uncovered a large amount of information about The country produces more than 20 per cent the implementation context, not all topics related of the world’s nutmeg; only Indonesia produces to the Secretariat’s involvement could be covered more. The culture of Grenada has had a variety of comprehensively while remaining aligned with the influences, including African, indigenous Caribbean thematic areas in the Strategic Plan. and Indian. The country currently ranks 75 out of As a learning point going forward, the evaluation 188 on the Human Development Index, falling team will develop a matrix to indicate the into the high human development category. information source for the evaluation questions Life expectancy is 73.8 years and gross national that will contribute to capturing the breadth of income per capita is $12,864.3 The median age is data captured. The matrix could be shared with 31.5 years. the in-country point of contact or liaison to ensure the right stakeholders are engaged. 3 Retrieved from http://hdr.undp.org/en/composite/HDI. As the Strategic Results Framework (SRF) was Gross national income per capita is calculated in 2011 developed for the whole Secretariat, programme purchasing power parity $. Introduction and Context \ 3
Despite being on the southern edge of the Institution (NHRI). Grenada has since ratified Grenadines, in the Caribbean hurricane zone, in the the following conventions: the International past 50 years Grenada has experienced damage Convention on the Elimination of All Forms of Racial only from three. Discrimination, May 2013; the Convention on the Rights of Persons with Disabilities, August 2014; The islands of Grenada are all volcanic in origin the Optional Protocol to the Convention on the and vary in elevation from 300 m to over 600 m. Rights of the Child on involvement in armed conflict, The island of Grenada itself is more mountainous 6 February 2012; and the Optional Protocol to the than the others and covered by dense forest. Its Convention on the Rights of the Child on the sale land rises from a narrow, coastal plain into areas of children, child prostitution and child pornography, of dormant volcanic ridges and valleys. Mount St 6 February 2012. Grenada continues to work Catherine is the highest point, rising to 840 m. towards the ratification of conventions with human The island is drained by many small rivers flowing rights implications. to the sea, all cutting deeply into the slopes. A few of the mountains contain crater basins, and one includes a large crater lake named Grand 1.2.3 Anti-corruption Etang. The lake is over 550 m above sea level Grenada acceded to the United Nations Convention and is surrounded with some of the island’s most Against Corruption on 1 April 2015 and is therefore beautiful rainforest. Waterfalls are scattered bound by its provisions and any relevant follow-up across the upper reaches of Grenada, as well as a mechanisms. The Convention covers five main few boiling springs; the River Sallee boiling springs areas: preventive measures, criminalisation and are the most significant. law enforcement, international cooperation, 1.2.1 Politics asset recovery, and technical assistance and information exchange. Full independence from the UK was attained Regionally, Grenada is signatory to the Inter- in 1974, making Grenada one of the smallest American Convention Against Corruption since independent countries in the Western Hemisphere. 15 November 2001. According to Article II of Citizens enjoy a wide range of civil and political the Convention’s text, it has two purposes: to rights guaranteed by the Constitution, which promote and strengthen the development by provides citizens with the right to change their each of the States Parties of the mechanisms government peacefully. Citizens exercise this right needed to prevent, detect, punish and eradicate through periodic, free and fair elections held on the corruption; and to promote, facilitate and basis of universal suffrage. regulate cooperation among the States Parties Grenada has two significant political parties, both to ensure the effectiveness of measures and moderate: the National Democratic Congress actions to prevent, detect, punish and eradicate (liberal) and the New National Party (conservative). corruption in the performance of public functions Minor parties include the left-of-centre Maurice and acts of corruption specifically related to Bishop Patriotic Movement, organised by the pro- such performance. Bishop survivors of the October 1983 anti-Bishop Additionally, Grenada is a member of the coup, and the populist Grenada United Labour Party Organisation of Eastern Caribbean States of former Prime Minister Gairy. (OECS) through the Treaty of Basseterre to 1.2.2 Human rights establish an economic union for nine countries: Anguilla, Antigua and Barbuda, British Virgin Grenada does not have a formal institution Islands, Dominica, Grenada, Montserrat, St that addresses human rights practices at the Kitts and Nevis, Saint Lucia and St Vincent and government level. However, discussions are the Grenadines. It is one of 20 members of on-going regarding the feasibility of expanding the Caribbean Community (CARICOM), which the scope of the Office of the Ombudsman to rests on four main pillars: economic integration, incorporate issues of a human rights nature or foreign policy coordination, human and social the establishment of a National Human Rights development and security. 4 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Figure 1. Map of Grenada
1.2.4 Gender equality in the world, at 33.3% – the highest in the Eastern Caribbean. Grenada has made considerable progress in recent years towards achieving gender equality. In the A new Domestic Violence Act (2010) replaced area of leadership and politics, Grenada has one the Domestic Violence Act 2001 to provide a of the highest rates of women representatives civil remedy that would emphasise safety and Introduction and Context \ 5
Table 1. Key facts The government established the Imani programme in the bid to enhance employability skills for young Region Caribbean people and promote youth development. Young Commonwealth 1974 people are engaged in certified programmes membership and provided with a stipend while serving their communities in apprenticeship roles. The Commonwealth Small state government has committed to upgrading the categorisation programme to a full-fledged Skills Training and Population (2017) 111,724 Apprenticeship Programme, with a primary Political system Parliamentary representative focus on six transformational sectors: tourism democracy and hospitality services; agriculture and agri- National plans Grenada National business; renewable energy development; Sustainable Development education, health and wellness services; sports, Plan 2030 under culture and entertainment; and information and development communication technology. Primary contact Ministry of Finance and 1.2.6 Economy point Planning The economy of Grenada is based on agriculture, notably nutmeg and mace, and tourism. protection as opposed to arrest and punishment Consequently, it has an outward-looking and open of perpetrators. economy, and enjoyed strong growth during the 1.2.5 Youth 1990s, even though the world market for spices was sluggish during most of the decade and Grenada ranks 73rd globally, and 18th in the tourism became increasingly competitive. Grenada Commonwealth rank, on the Commonwealth is nonetheless vulnerable, its economy being so Youth Development Index (YDI).4 Its YDI score of small, and high public expenditure has brought 0.650 is close to the average of Commonwealth fiscal difficulties. developing countries in the Caribbean region An International Monetary Fund (IMF)-backed (0.665) after Jamaica, Bahamas and Antigua and economic adjustment programme was put in Barbuda and is on a par with Tonga. Grenada scores place in the 1990s, with fiscal reform, privatisation low (0.575) on youth political participation and high and staff reductions in the public sector to reduce on education (0.83). the deficit and improve the debt position. The Youth unemployment declined from 53 per cent government has encouraged development of in 2013 to 42 per cent in 2015 but is still much industry to broaden the country’s economic higher than the national average and particularly so base, but Grenada’s small scale and high costs compared with other Caribbean countries.5 Youth hinder progress. employability programmes include the Grenada A small offshore sector was established in the Youth Upliftment Programme and Skills for Inclusive 1990s, including internet gaming companies, but Growth. The Grenada Youth Upliftment Programme it failed to flourish in the 2000s. A US university, was launched in 2009 with the objective of St George’s University, with 800 mainly North promoting youth employment, through skills and American students, also brings in substantial life skills training, second chance education and job foreign exchange.6 search assistance. The programme is targeted to youth broadly defined as persons between the ages After three years of strong economic growth, of 16 and 35. the economy stalled in 2001, reflecting the US economic downturn and fall in tourism, only picking up again in 2003. Since 2001, economic growth 4 Commonwealth Secretariat (2016) Global Youth for Grenada has stagnated. 2004’s Hurricane Development Index and Report: http://cmydiprod.uksouth. cloudapp.azure.com/sites/default/files/2016-10/2016 Global Youth Development Index and Report.pdf 5 Labour Force Survey, Grenada, 2013–2015: https://www. 6 http://thecommonwealth.org/our-member-countries/ gov.gd/egov/docs/reports/Grenada_LFS_2013-2015.pdf grenada/economy 6 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Ivan, 2005’s Hurricane Emily and high public debt The effects of climate change are already evident ratios all contributed to economic growth decline. in many parts of the country, with rising sea levels Hurricane Ivan alone caused economic damage and storm activity continuing to affect exposed equivalent to 200 per cent of the country’s gross coastlines and development. This situation is only domestic product (GDP).7 The need to rectify expected to worsen as Grenada is highly vulnerable this and put the country on a path of sustained to the impacts of global warming and climate economic growth was paramount. Therefore, associated impacts. the government launched itself on the path of a ‘Home-grown’ IMF structural adjustment 1.3 Commonwealth Secretariat programme (SAP) and pursued the Caribbean Financial Action Task Force guidelines. Strategic Plan The Commonwealth Secretariat is the principal In 2017, Grenada experienced its fifth intergovernmental agency of the Commonwealth. consecutive year of growth and the government The Strategic Plan for the period 2013/14–2016/17 successfully marked the completion of its five- was developed after extensive consultation with year SAP, which included, among other things, member country governments and reflects their austerity measures, increased tax revenue and shared priorities. These include three longer-term debt restructuring. Public debt-to-GDP was goals and six strategic outcomes to be pursued reduced from 100 per cent of GDP in 2013 to 71.8 over the Strategic Plan period. per cent in 2017.8 The three longer-term goals were: 1.2.7 Environmental issues 1. Strong democracy, rule of law, promotion Grenada, being on the southern edge of the and protection of human rights and respect hurricane belt, is among the most disaster-prone for diversity; countries in the world, regularly suffering damage 2. Inclusive growth and sustainable related to national events such as hurricanes, development; and landslides, rain and drought. 3. A well-connected and Grenada has suffered three major hurricanes in networked Commonwealth. fifty years. Hurricane Janet passed over on 23 September 1955 with winds of 185 km/h, causing The plan is based on the SRF, which provides severe damage. The most recent storms to hit have immediate outcomes and indicators to support been Hurricane Ivan on 7 September 2004, causing these strategic outcomes: severe damage and 39 deaths, and Hurricane 1. Democracy – greater adherence Emily on 14 July 2005, causing serious damage in to Commonwealth political values Carriacou and in the north of Grenada, which had and principles been relatively lightly affected by Hurricane Ivan.9 The focus of this strategic outcome was to Hazards such as these have caused significant supporting member countries in adhering and recurrent damage to national infrastructure, to the Commonwealth’s fundamental including housing, road networks, schools, hospitals political values in line with the then recently and other facilities, such as phone lines, water agreed Charter of the Commonwealth. The and electricity. The resulting impacts hazards Secretariat provided support to member significantly affect human welfare, national countries in deepening these values. economic activities, property and natural resources. 2. Public Institutions – more effective, efficient and equitable public governance 7 Commonwealth Secretariat (2015) Assessment of Debt Restructuring Operations in Commonwealth Small States: Well-performing public institutions are critical https://www.oecd-ilibrary.org/docserver/9781848599253- en.pdf?expires=1541078422&id=id&accname=id36621&c to establishing and sustaining democracy, hecksum=5BECF12FA935539A7BD8685D5D1DCA36 good governance and development. 8 https://www.cia.gov/library/publications/the-world- The Secretariat has a track record of factbook/geos/gj.html 9 https://www.nationsencyclopedia.com/knowledge/ strengthening the core public institutions Grenada.html of rule of law, human rights and public Introduction and Context \ 7
administration through context-sensitive The Secretariat’s efforts were to be technical support and peer-to-peer support. anchored on strengthening frameworks for In this result area, the Secretariat was to inclusive economic growth and sustainable work with member countries to create and development. The Secretariat has carved out strengthen effective, efficient and equitable a niche of expertise over the past 25 years public institutions. supporting member countries with economic policy development, trade negotiations, debt 3. Social Development – enhance the positive management, natural resource management, impact of social development delimitation of maritime boundaries and Global education and health goals are ocean governance. particularly significant to Commonwealth 6. Small States and Vulnerable States – nations with collectively high burdens strengthened resilience of small states and of poverty-related health diseases and vulnerable states. education challenges, including providing pre-school education, which has been shown The majority of Commonwealth’s to be a key factor in achieving education membership – 32 of 54 – comprises small outcomes. Recognising that health and states, and in the past 35 years the Secretariat education are key sectors with significant has consistently been at the forefront in national and international budgets and major identifying and proposing responses to players, the Secretariat was to focus its efforts the challenges small states face, while at on providing policy advice and technical the same time advocating for their causes. support to strengthen policy and regulatory A dedicated work area on small states frameworks. Expertise was to be provided and vulnerable states was introduced to to member countries in policy analysis and strengthen advocacy for their concerns on strategies for bridging gaps between policy global platforms, as well as to address their formulation and policy implementation in particular development needs. order to effectively realise national health and The findings of this country evaluation are set out education outcomes. as per the six strategic outcomes (pillars) of the 4. Youth – youth more integrated and valued in Strategic Plan. political and development processes With 40 years of experience in youth 1.4 Programme context development, the Secretariat has a unique As a member of the Commonwealth, Grenada advantage in terms of its broad networks, contributes to the three Commonwealth Funds: trusted relationships and convening power. the Commonwealth Secretariat Assessed The Secretariat was to work towards the Contribution Fund (COMSEC), the Commonwealth goal that national and Pan-Commonwealth Fund for Technical Cooperation (CFTC) and the frameworks advance the social, political Commonwealth Youth Programme (CYP), as well as and economic empowerment of young to the Small States Office in New York (COMNYO), people. This was to be achieved by providing as shown in Figure 2. Over the four years of the technical assistance to national and regional Strategic Plan, Grenada’s total contribution youth-relevant policies and enabling amounted to £240,012. environments, if so requested by member countries; advocacy for investing in youth Figure 2 shows the yearly financial contribution ministries and programmes; development across the funds. In 2015/16, Grenada did not and sharing of frameworks, guidelines and make a contribution to the CFTC, which meant tools; and the creation of a YDI that augments some activities were halted owing to a breach in the respective member countries’ national youth Abuja Guidelines. The impact of this was not great development indicators. on the programme as the timeframe for the breach was short. 5. Economic Development – more effective frameworks for inclusive economic growth Grenada’s financial contribution together with and social and sustainable development those of all member countries supported the 8 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Figure 2. Grenada’s financial contribution to the Commonwealth Secretariat
£40,000
£35,000
£30,000
£25,000
£20,000
£15,000
£10,000
£5,000
£- FY 2013/14 FY 2014/15 FY 2015/16 FY 2016/17 CFTC £17,803£18,198£- £36,396 COMNYO £4,771 £- £- £- COMSEC £32,622£33,412 £33,412 £32,079 CYP £8,292 £8,499 £8,499 £6,030
CFTC COMNYO COMSEC CYP
implementation of the Secretariat’s Strategic Secretariat’s contribution was not effectively Plan 2013/14–2016/17. Programme pillars reflected in national budgets and reports as is the were Democracy, Public Institutions, Social case for all other development partners, because Development, Youth, Economic Development the Secretariat’s support is not coordinated and Small States. Grenada benefited from country, through the national planning and coordination regional and Pan-Commonwealth projects mechanism. The support provided by the delivered by the Secretariat in line with its National Secretariat is therefore outside the national budget Development Plan. Country programmes evaluated and the true cost of programme delivery cannot be are outlined in Table 2 below. effectively reflected by the government. The Ministry of Finance and Planning in Grenada is the primary point of contact for 1.5 Commonwealth Secretariat’s the Secretariat’s programming. The Ministry is responsible for national planning and development context partner coordination. There is also a direct During the evaluation period, the Secretariat went link with the Ministry of Foreign Affairs for through a transition process that brought along political engagements. review and reform of the organisation, which affected programme delivery and the realisation The Ministry of Finance has commended the of outcomes. Secretariat’s contributions, particularly its technical assistance. The positioning of the technical • Transition into the new Strategic Plan: The assistance has been strategic within government: Commonwealth Secretariat Strategic Plan the Office of the Prime Minister in collaboration with 2013/14–2016/17 was the first to focus on the Ministry of Finance and the Ministry of Legal results-based management (RBM), and it Affairs raises the profile of the outputs delivered. took longer to get approved and therefore The long-term and consistent nature of technical implementation was delayed. Some of the assistance programming with the backing of the on-going activities from the previous Strategic lead ministries has contributed to some significant Plan and programmes were discontinued government reforms overall. affecting the realisation of outcomes. Despite the considerable contribution made by • Monitoring and evaluation: The RBM system the Secretariat in development planning and introduced in the previous Strategic Plan National Export Strategy (NES) and legislation period matured in this evaluation period. drafting, among others, it was noted that the A new system for measuring progress was Introduction and Context \ 9 Resilience Resilience Profiling: Resilience governability assessment report produced. £2,116 (0.3%) Small States £114,268 (14.3%) Economic Development Economic Trade: conducted; NES of previous Review development export for options strategic in the support provided technical produced; 2017–2021. NES of Grenada’s development Management: Debt drafted; Act Management Debt Public Debt on (i) Domestic e-learning courses Management Debt (ii) External Management, Secretariat and (iii) Commonwealth Concept System and Management Recording Debt debt manage external to (CS-DRMS) training regional two and delivered; developed management on public debt workshops v2 delivered; and CS-DRMS concepts v2 installed. CS-DRMS and Maritime Governance Oceans Boundaries: Areas and Submarine of Marine Delimitation advice technical Agreement); (Delimitation Agreement Framework on Draft provided and Tobago of Trinidad Government between of Grenada. and Government Management: Resource Natural Blue on Grenada’s engagements Technical Plan. Master Economy £5,263 (0.7%) Youth Youth: Regional Caribbean Youth on Workshop conducted. Policies Meeting Technical Youth Enhancing on Development in Statistics the Caribbean. Ministerial Regional Meetings facilitated. £0 (0%) Social Development Social Health: meeting Regional Non- on National Communicable (NCD) Diseases held Commissions with participation Grenada; from the for framework of establishment and strengthening NCD of National Commissions National established; NCD Commissions portal web established. . £650,165 (81.6%) Public Institutions Human Rights: (UPR) Review Periodic Universal Reporting Body and Treaty support provided supported; of NHRI; the establishment for a conducting for support provided Referendum. National Rule of Law: to in response drafted Legislation legislative needs; national national legislative developed; capacity and delivered. manuals developed Administration: Public of National Development Plan Development Sustainable of development 2030 supported; supported Plans Corporate between Cooperation anti-corruption Caribbean regional agencies facilitated; Centre Anti-Corruption of the capacity established; of Grenada Commission Integrity Anti-Corruption Strengthened; by hosted Conference Regional Grenada. Commonwealth Secretariat’s direct engagement with and support to Grenada engagement with and support to direct Secretariat’s Commonwealth
£24,931 (3.1%) Democracy Good Offices: Secretary- The The General, Rt Hon. Patricia QC, Scotland in Grenada visited 2017. November Election Management: Pre-election mission conducted on 12–19 2013. February Commonwealth Group Observer conducted (COG) election observation mission on 19 2013 February during general election. Table 2. Table 10 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
instituted and supported by the Programme to longer-term engagement in member Management Information System. All plans countries. Despite the funding challenge for monitoring and evaluation were designed, noted throughout this report, though, there but there was no budget allocated for the is evidence of meaningful contribution by implementation of these. There is now a the Secretariat. dedicated budget approved to support the • Organisational reform and restructuring: The implementation of monitoring plans. change in senior leadership during this period • Reduction in CFTC funding: There was provided a new vision and direction for the a significant reduction in CFTC funding organisation. The new Secretary-General during this period, with either put on hold prioritised reform and restructuring, and or cancelled. Recruitment was halted, coordination of programme delivery was a key reducing capacity to deliver. A level of focus. However, delays in the restructuring, stability was attained towards the end of compounded by the reduced CFTC funding, the reporting period but there were direct affected the pace of programme delivery. impacts on delivery of results, as noted Key technical and management staff leading in several sections of this report. Direct strategic direction of programme delivery left areas affected included long-term expert the organisation while several vacancies could placement, which had reduced significantly not be filled in time. The evaluation noted by the end of the reporting period. There was areas where strategic direction was required limited commitment from the Secretariat to advance the momentum of change. Findings \ 11
2. Findings
This section presents the key findings of the findings, issues of relevance, efficiency, evaluation. The strategic outcome pillars of the effectiveness, sustainability and impact are raised Secretariat are used to present the information. as well as challenges and any lessons learnt. The programme pillars are: As the SRF is developed for the whole Secretariat programme and project design was also at Pan- 1. Democracy 2. Public 3. Social Commonwealth level, progress against each Institutions Development indicator cannot be measured in relation to one 4. Youth 5. Economic 6. Small States country, and therefore will be consolidated at the Development regional and strategic level once a significant number of country evaluations have been conducted. In assessing specific progress in the The SRF for each programme area is highlighted member country against the SRF, a programme with relevant areas where there was support or performance measurement framework based on engagement with the member country. This the Secretariat’s Impact Pathway has been provides the backdrop against which progress can established that recreates the theory of change be contextualised and measured. (TOC) in relation to the support provided and The Secretariat’s support delivered in 2013/14– specific to the member country. Progress against 2016/17 against each programme pillar is outlined the TOC is assessed and a rating determined as in a box for ease of reference, and below it the total shown in Table 3. Ratings range from satisfactory to expenditure for the programme. As part of the unsatisfactory as indicated in Table 4.
Table 3. Programme performance
Output Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome Theory of change Progress to date Progress rating Comments
Table 4. Performance rating
Rating Notes Satisfactory Progress is on track in relation to delivery of outputs and realisation of outcomes. Fair Progress is slower than expected. Challenges encountered but there is expecta- tion that these can be addressed. Unsatisfactory Output not delivered. No progress at outcome level in relation to time since the outputs were delivered N/A Progress not expected within the reporting period, not assessed or not enough information to assess progress. 12 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
2.1 Democracy Greater adherence to commonwealth political values and principles
No. Result Indicators Grenada 1.1 Commonwealth Ministerial Action # of member countries engaging with CMAG No Group (CMAG) is well informed and under the enhanced mandate to respond supported to protect and promote positively to and implement CMAG’s recommen- Commonwealth values and principles dations 1.2 Member countries engage with and # of identified member countries engaged in Yes benefit from the strengthened good Good Offices capacity that implement policy offices of the Secretary-General changes that reflect the advice from the Secre- tary-General and his/her Envoys and Advisers 1.3 Member countries conduct fair, # of member countries whose electoral frame- Yes credible and inclusive elections work has been strengthened to meet national, regional and Commonwealth standards, as indicated by: • Legal and constitutional frameworks in place • Institutional capacity and independence • Procedures in place # of member countries where at least 10% of Yes Commonwealth COG recommendations are in the process of being implemented within 12 months of the election taking place # of member countries adopting best practises Yes and principles emerging from the Common- wealth Elections Network (CEN) in enhancing their national electoral processes # of national electoral management bodies that Yes embed best practices and principles emerging from the CENs in enhancing their electoral processes 1.4 Values of ‘respect and understanding’ % of student participants in the Commonwealth No advanced Class Programme who report that their learning about the Commonwealth has improved their understanding of global issues
Context 130 elections in 36 countries since 19802 and was invited to observe the February 2013 Grenadian Enshrined within the 2013 Charter of the election on request from former Prime Minister Commonwealth is recognition of ‘the inalienable right Hon. Tillman Thomas. of individuals to participate in democratic processes, Grenada is one the few countries in the Caribbean in particular through free and fair elections in shaping region that is successfully implementing the the society in which they live’.1 In accordance with electronic system for voter registration for the this, the Secretariat has observed over
1 http://thecommonwealth.org/sites/default/files/page/ 2 http://compass.comsec.int/our-work/programmes/ documents/CharteroftheCommonwealth.pdf observing-elections Findings \ 13
past 18 years. Grenada also conducted its first #35 of 1993 and Act #19 of 2006, which also national referendum in 2016. There were provide for the: significant decisions required that could have • Registration of all eligible voters; had a positive impact on the electoral reforms. • Preparation and issuance of voter Commonwealth Secretariat’s support identification cards; • The Secretary-General, The Rt Hon. Patricia • Preparation of the voter list; Scotland QC, visited in November 2017. • Preparation for general elections within the state • A pre-election mission was conducted from of Grenada; 12 to 19 February 2013. • COG conducted an election observation mission • Conducting of general elections.4 for the 19 February 2013 general election. At the invitation of the Prime Minister to observe the 2013 National Elections, the Secretariat conducted a pre-election mission from 12 to 19 2.1.1 Good Offices of the Secretary- February 2013. The assessment team met with the General Governor General, the Prime Minister, the Leader of The Secretary-General, The Rt Hon. Patricia the Opposition, the Supervisor of Elections, the Scotland QC, visited Grenada in November 2017, Commissioner of Police, political party meeting with the Governor-General, Dame Cecile representatives, the Executive of the Grenada La Grenade, the Prime Minister, The Rt. Hon Keith Chamber of Commerce and Industry, civil society Mitchell, and Minister of Foreign Affairs, Legal groups, the Conference of Churches, youth groups Affairs, Carriacou and Petite Martinique Affairs and and leaders, the Commonwealth diplomatic corps Local Government Hon. Elvin Nimrod, and other international observer groups. among others. The COG participated in the national elections 2.1.2 Election Management conducted on 19 February 2013 and observed polls in 14 constituencies, except the islands of Carriacou Elections and the political system within Grenada and Petite Martinique. Consultations were held with are governed by its legislative framework. The 1973 electoral officials, party candidates and agents, Grenada Constitution Order provides for the members of other international observer groups Parliament of Grenada and its two Chambers, the and voters. The Secretariat was afforded unfettered Senate and the House of Representatives. The access to information, key interlocutors and official provisions for the electoral system are to be found support to independently and objectively observe in Section 35 (1) of the Constitution. This includes the elections. The observer mission concluded that the establishment of the Office of the Supervisor of 1) voter registration was satisfactory; 2) Elections for the general supervision of elections – campaigning was peaceful; and 3) the conduct of their conduct and the registration of voters. Section the poll was well run. 53 (1) of the Constitution stipulates that a general Relevance election of the House of Representatives must occur within three months of any dissolution of The Secretariat was recognised as a ‘key player’ by Parliament. The 1993 Representation of the People the Government of Grenada and thus invited to Act 35 and the 2011 Representation of the People observe the February 2013 general election. Other (Amendment) Act 26 provides for the franchise and key players were the CARICOM Electoral Observer registration of electors, the administration of Mission and the Organisation of American States elections and voting procedures and includes Electoral Observation Mission.5 provision for election offences and petitions.3 The The election observation mission to Grenada role of the Parliamentary Elections Office is (February 2017) aligned well with international governed by the Representation of the People Act
3 The Commonwealth (2013) Report of the Commonwealth 4 Ibid. Election Assessment Team: Grenada General elections: 5 www.caribbeanelections.com/knowledge/observers/ February 2013, p. 10. gd_observers_reports.asp 14 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Figure 3. Democracy Direct Programme Expenditure, 2013/14–2016/17
£25,000
£20,000
£15,000
£10,000
£5,000
£- FY 2013/14 FY 2014/15FY 2015/16FY 2016/17 CFTC £426 £- £- £- COMSEC £- £- £20,847 £3,658
frameworks, national policies and priorities. There is an electronic system used for voter registration that clear alignment with the relevant international allows for continuous registration all week frameworks of the UN system. throughout the 18 constituency offices. The system allows for the real-time update of polling Efficiency information on the website. There was considerable efficiency demonstrated in the preparation of The election observation mission was deemed a elections in Grenada as demonstrated by the calm one-off activity with no follow-up undertaken or and readiness observed just weeks before the 2018 further engagement with Grenada. There is no clear national elections noted by key stakeholders and approach within the Parliamentary Elections Office media reports. It was noted that all preparation on engagement with international election processes were complete, and all the electoral observation reports. The lack of follow-up affected office was waiting for was the day itself. This Grenada’s engagement with the election achievement is attributed by Grenada to ‘effective observation report and the implementation of laws that govern the electoral process; constant recommendations. A change in the leadership of engagement with stakeholders; a level playing field; the Parliamentary Elections Office in 2014 (a year and listening to stakeholders’. after the election), and no handover of the recommendations from the Commonwealth The Parliamentary Elections Office has been election observer by the prior incumbent, meant actively engaged with the CEN and the JEP any impact was less than what could have perhaps Programme in the region and Pan-Commonwealth. been achieved. As one respondent noted, a key lesson learnt by Grenada during the CEN was the ‘importance of The activity was delivered but there was limited having a list of candidates that is flawless’ and presence of the Secretariat. The total budget maintaining up-to-date voter registration. This utilised was low in comparison with other election implied presenting the list of candidates as well as observation missions because the observation voter registration four times a year for verification team comprised two Secretariat staff members. by the public. Website accessibility was another area Expenditure in 2015/16 related to the CEN/Junior of learning from the CEN and the JEP Programme, Elections Professionals (JEPs) and mainly travel for which allows the general public access to the voter’s participants. The total cost was also low because register as well as to provide verified information travel was limited to the Caribbean region, making that can be used to update registration. regional programmes more cost effective than Pan-Commonwealth programmes. Following the 2013 general elections, the Commonwealth Election Assessment Team made a Effectiveness total of 25 recommendations on how elections could The Parliamentary Elections Office is small but be improved, for consideration by the Government of effective in the administration of elections. There is Grenada. Unfortunately, for these recommendations Findings \ 15
Table 5. Grenada Parliamentary Elections Office knowledge exchanges
Country Date Areas of engagement Trinidad and June 2016 CEN Biennial Conference – Shared Practices and Lessons Learned from the Region; Tobago currently using some of the best practices in the Parliamentary Elections Office Guyana 2016 CEN Jamaica 2015 JEP Programme – good practices on voter registration being applied
Table 6. Progress on implementation of election recommendations
Recommendation Action taken by Government of Grenada Constitutional Need for constitutional reform in the Addressed by referendum. Proposed reform – electoral country changes to the current Constitution commission were put to the electorate by referen- dum on 27 October 2016. The elec- torate refused all 7 constitutional amendments. Voter turnout was a low 32%. The seven reform amendment bills voted were: 1. Constitution of Grenada (Caribbean Court of Justice (CCJ) and Other Justice Related Matters) (Amendment) Bill, 2015 2. Constitution of Grenada (Elections and Boundaries Commission) (Amendment) Bill, 2015 3. Constitution of Grenada (Ensuring the Appointment of Leader of the Opposition) (Amendment) Bill, 2015 4. Constitution of Grenada (Fixed Date for Elections) (Amendment) Bill, 2015 5. Constitution of Grenada (Name of State) (Amendment) Bill, 2015 6. Constitution of Grenada (Rights and Freedoms) (Amendment) Bill, 2015 7. Constitution of Grenada (Term of Office of Prime Minister) (Amendment) Bill, 2015 Commonwealth Secretariat should be Addressed by the Commonwealth responsive to any specific requests from Secretariat. Additional programming authorities in Grenada for support in the was seen to take place in the areas of field of good governance and the legislative reform, the establishment of strengthening of democracy. an NHRI and the establishment of an Integrity Commission. (Continued) 16 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Table 6. Progress on implementation of election recommendations (Continued)
Recommendation Action taken by Government of Grenada Government should engage in meaning- Progress not assessed. ful dialogue with opposition voters who find themselves with no elected mem- bers in the House of Representatives. The first-past-the-post system creates Not addressed. The 13 March 2018 a perception of inequality, political election operated within the context of exclusion and inordinate imbalances. the first-past-the-post system. The terms of reference (TOR) of the Addressed by referendum. However, Constitutional Reform Commission the electorate rejected the proposed should include the mode and mechanism constitutional reform to ‘replace the for the appointment of the Supervisor Constituency Boundaries Commission of Elections and the Boundaries and the Supervisor of the Elections with Commission. an Elections and Boundaries Commis- sion’ (Ballot Paper No. 2 – Elections and Boundaries Commission) that would have allowed for this recommendation. Civil society organisations cited concerns that this constitutional reform would not solve the problem of the Commission being ‘politically charged’. It is recommended that the Parliamen- Not addressed. As of March 2018, the tary Elections Office be upgraded to an Office had not been upgraded to a Electoral Commission and the appropri- Commission. ate constitutional and legislative arrangements be enacted ensuring independence in operations and funding. The Parliamentary Elections Office Addressed. In 2017 parliamentary should stipulate in correspondence to approval was given to legislation to add political parties on application for the use symbols: Representation of the People of a symbol that the symbol can appear (Election Symbols) (Amendment) (No. 2) on the ballot paper only after receiving Regulations 2017. parliamentary affirmation. Applications for symbols should be expeditiously processed Secrecy of the Greater care should be exercised in Not addressed. Legislation was deemed ballot ensuring that presiding officers uni- to already address this. formly interpret and apply procedures House of Representatives (Elections) for the casting of the ballot for vision- Ordinance Chapter 160 Revised Laws impaired persons. of Grenada 1958 PART III ‘… friend to accompany the blind elector into the voting compartment and mark the voting paper for him. No person shall at any election be allowed to act as the friend of more than one blind elector.’ (Continued) Findings \ 17
Table 6. Progress on implementation of election recommendations (Continued)
Recommendation Action taken by Government of Grenada Review of electoral It was observed that there is a wide Progress not assessed boundaries variation in the number of electors in respects of some constituencies, which clearly goes against the basic principles of boundary delimitation. A fresh delimitation of the boundaries Progress not assessed. appears necessary and desirable and a newly constituted Boundaries Commis- sion should address this issue. Continuous The register of electors should be more Not addressed. The update is still every updating of the meticulously updated at regular inter- three months. Removal of the voter list vals (currently every three months) and deceased from diaspora countries there should be removal of deceased poses a particular challenge as does persons from the lists and name changes registration of Commonwealth citizens reflected. with regard to applicants accurately providing proof of their entry into Grenada and of their Commonwealth parentage. Registration is voluntary, with over 78,343 people registered. Since 2012, mobile registration has been available for those unable to travel. On-line accessibility allows people to double-check their status and where they should vote. Campaign finance There is broad-based support for and Not addressed. This was considered legislation recognition of the need for campaign not relevant as funding for the financing rules and regulations, includ- Parliamentary elections office comes ing, but not limited to, the disclosure of from the Governor General – who is donations. There appears a preference deemed non-political and independ- for a holistic region-wide approach to the ent. Concerns were tabled by civil topic, which the Commonwealth Secre- society organisations that the anti- tariat would be able to coordinate and corruption body – the Integrity Com- guide by providing the necessary mission – was engaged with political technical support and workshops. parties but they were unsure on which issues. Parliament should engage the public in Progress not assessed. an education drive and debate receiving comments from the public, and espe- cially opposition parties, civil society and other non-state actors, on the proposed introduction of legislation that would govern campaign finance and the disclosure of funding. Legislation should be proposed that Progress not assessed. ensures transparency, accountability and reporting of party incomes and expenses. (Continued) 18 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Table 6. Progress on implementation of election recommendations (Continued)
Recommendation Action taken by Government of Grenada Banning of all foreign (non-Grenadian) Progress not assessed. contributions to political parties for any purpose. Strengthening and continuous operation Progress not assessed. of the Integrity Commission allowing for the strengthening of auditing and report- ing mechanisms surrounding an election. Empower the Integrity Commission to Progress not assessed. oversee campaign financing. Local observers Formalising and strengthening the role Not addressed. This was deemed a groups strength- of civil society and training of local good idea but would require a change ened observer groups should be considered a in the law and this is dependent on priority that the Secretariat is also well Parliament. suited to provide. Media The Media Broadcasting Authority/ Progress not assessed. Commission to look into the possibility of allocating free airtime to political parties. The media may well benefit from the Not addressed. The media has respon- establishment of a code of conduct on sibility on the does and don’ts of political reporting. reporting. There is wide consultation with civil society and the media has more access to on-line information and data/statistics in order that they can accurately report on the elections. Code of political Political parties to familiarise themselves Progress not assessed. conduct with voluntary codes of conduct for political campaigning and consensus to be reached by all parties well before the next election. Mechanisms to increase women’s Not addressed by Parliament. However, participation in election and represen- for the March 2018 elections, both tation in Parliament. leading parties increased the number of women candidates – the New National Party fielding seven female candidates of 15 total – and the National Democratic Congress three out of 15 total. Role of women in It is recommended that measures be Not addressed by Parliament. However, electoral process considered by Parliament to overcome for the March 2018 elections, both evident barriers and to encourage leading parties increased the number greater participation by women in the of women candidates – the New electoral process. National Party fielding seven female candidates of 15 total – and the National Democratic Congress three out of 15 total. Findings \ 19
to yield demonstrable results and create impact, undertaken by the Government of Grenada. on-going support and follow-up would have been However, it is unclear if the Government of Grenada required. It was observed that the legacy and imprint was acting on the Secretariat’s recommendations left by the election observation mission were weak; or not. Therefore, no causal link between however, implementation of the recommendations is recommendation and impact can be plausibly also based on political will and priorities. The country demonstrated. Table 6 shows progress on had to own the recommendations as well as have implementation of the recommendations. follow-up from the Secretariat. Sustainability The evaluation assessed the extent to which these recommendations were implemented, particularly The electoral reforms instituted by the government as the country was preparing for the next elections. and embedded in legislation will sustain the Four of the recommendations were addressed; nine progress so far achieved, particularly on the were not addressed but there were some introduction of symbols. However, the key proposed comments provided on the status; and no constitutional reform – the Elections and information was available at the time of evaluation Boundaries Commission (Amendment) Bill, 2015 – on the remaining twelve recommendations. was not passed at the referendum. The delay in Implementation of the recommendations was passing this bill will have significant effects on the attributed to the electoral reform actions implementation of electoral reforms.
Table 7. Programme performance
Impact Output Short-term Short-term Intermediate Pathway Outcome 1 Outcome 2 Outcome Theory of Pre-election observation National engagement National action Improvement in change missions conducted and consultation on plan on imple- electoral processes Election observation election observa- mentation of mission conducted tion report election recom- mendations Follow-up of elec- National action plan implemented tion recommendations drawn on implementa- tion on election Grenada participates in recommendations CEN Biennial Conference and JEP Programme Progress to Pre-election and election No clear national No national There is some good date observation mis- engagement with action plan progress in the sions conducted election report or in place efficiency in No follow-up conducted recommendations; 16% of election delivering the on election recommen- No national action plan recommenda- elections; however, dations drawn on implementa- tions imple- some fundamental recommendations Grenada participated in tion of election recom- mented in line that would contrib- CEN and JEP Programme mendations; however, with the electoral some level of imple- reforms ute to significant mentation of recom- improvements have mendations not yet been implemented Progress rating Comments Much as there have been improvements in electoral processes, these cannot be directly attributed to the implementation of the election recommendations but rather to the electoral reforms. A total of 84% of recommendations are still outstanding, which, if implemented, would considerably improve Grenada’s electoral processes. 20 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
2.2 Public Institutions More effective, efficient and equitable public administration
No. Result Indicators Grenada 2.1 Effective institutions # of targeted member countries with new or more effective Yes and mechanisms for NHRIs as indicated by: the promotion and • Enabling legislation adopted and compliant with Paris Principles protection of human • Fully operational rights • Movement towards ‘A’ status 2.2 Improved and # of targeted member countries that engage constructively with Yes constructive engage- the UN UPR as indicated by: ment of member • Quality reporting to the office of the UN High Commissioner countries in the UN for Refugees UPR process • Undergoing examination in a constructive manner • Implementing accepted recommendations # of key regional human rights issues progressively addressed by Yes Commonwealth Parliamentary Human Rights Groups 2.3 Effective mechanisms # of member countries with issues on the separation of powers No ensuring the autono- that reform their constitutional and statutory provisions in order to mous and harmoni- uphold the Commonwealth (Latimer House) Principles ous operation of # of member countries with issues on the appointment and No three branches of removal of judges that establish procedures that provide for the government and appointment, discipline and removal of judges in accordance with strengthened the Commonwealth (Latimer House) Principles independence of the # of member countries without continuous judicial education and No judiciary adequate resources for the judicial system that institute reforms to strengthen the cognitive and institutional aspects of the independence of the judiciary 2.4 National institutions # of member countries with weak capacity and judicial institutions Yes effectively facilitating using Secretariat guidelines, tools and model laws/regulations to the administration strengthen the administration and delivery of justice and delivery of the % of member countries without the relevant constitutional and Yes rule of law and justice statutory provisions making substantial progress in creating legal frameworks for the (i) effective delivery of justice and (ii) promo- tion of reforms conducive to sustainable development # of member countries where justice and law enforcement Yes institutions are weak effecting administrative reforms to strengthen those institutions 2.5 Improved public # member countries with effective, accountable and transparent Yes administration targeted public institutions in the efficient delivery of services as indicated by the existence and functioning of at least five of nine institutions outlined below: • Public Policy Coordination and Implementation Unit • Public Service Commission • Ministry of Establishment • Public Procurement Regulatory Agency • Internal Audit Department • Supreme Audit Institution • Public Accounts Committee • Finance Committee of Parliament • Anti-Corruption Agencies Findings \ 21
Context 2.2.1 Human Rights Well-performing public institutions are critical for During the period under review, the Secretariat’s establishing and sustaining democracy, good Human Rights Unit (HRU) carried out multiple governance and development. The Secretariat had interventions in Grenada. This included support to extensive engagement in Grenada in the area of the government’s efforts to take steps towards public institutions within Human Rights, Rule of Law establishing an NHRI. In June 2016, HRU convened and Public Administration. Technical support in the a national dialogue with key stakeholders in legislative support to Grenada was prominent in the government, Parliament and national institutions to period under review. create awareness and understanding on the
Commonwealth Secretariat’s support • The Secretariat engaged with the Government of Grenada on establishing an NHRI. • The Secretariat supported CARICOM member countries on UPR processes, including preparation for the UPR process and follow-up on recommendations through seminars conducted in 2010 and 2012. • The Secretariat provided technical assistance to the Constitutional Reform Advisory Committee (CRAC) of Grenada on a public education campaign during the 2016 referendum: • CFTC Expert – Senior Commercial Counsel, Attorney General’s Office (2012–2016); • CFTC Expert – Legislative Drafter, Attorney General’s Office (2015–2016); • CFTC Experts – Regional Advisers (Legislative Drafters) based in CARICOM (2010–2014) and supporting Grenada on a number of projects. • The first Commonwealth Regional Conference for Heads of Integrity Commissions and Anti-Corruption Bodies in the Caribbean was held in St George’s, Grenada, on 22–26 2015 June, on Strengthening Integrity Commissions and Anti-Corruption Bodies in the Commonwealth Caribbean. • The second Heads of Integrity Commissions and Anti-Corruption Bodies meeting was held in Trinidad and Tobago in June 2016, on the Role of Integrity Commissions and Anti-Corruption Bodies in Transforming the Commonwealth Caribbean. • The third Regional Conference for Heads of Integrity Commissions and Anti-Corruption Bodies in the Caribbean was held in Kingston, Jamaica, on 24–28 April 2017, on the he Anti-Corruption Agenda: Today, Tomorrow, the Region and Beyond. • A training workshop was held on Anti-Corruption and Good Governance in St George’s, Grenada, on 19–23 September 2016, on Effecting Better Synergies between All the Anti-Corruption Agencies in Grenada and the Development of Ideas for the National Anti-Corruption Strategic Plan. • Training workshops were held with the Integrity Commission in St George’s, Grenada, on 13–17 November 2017, on Cohesive Leadership and Team Building, Strategic Planning and Global Procurement Best Practices; and Effective Management of Integrity Commission and other Public Sector Organisations in Grenada towards Achieving Sustainable Development Goal (SDG) 16. • An Exchange Learning Conference was held in collaboration with Ghana’s Internal Audit Agency in Accra, Ghana, on 14–18 May 2018, on Achieving Sustainable Development – the Value-Added Role of Internal Audit and Enterprise Risk Management. • A Regional Internal Audit and Public Procurement Round Table Meeting was held in Barbados, on 23–24 June 2016, on Strengthening Institutional Oversight of Public Financial Management Systems and Processes: Assessing Challenges facing Commonwealth Caribbean in Delivering Effective Internal Audit and Public Procurement Oversight. 22 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Figure 4. Public Institutions direct programme expenditure, 2013/14–2016/17
£300,000
£250,000
£200,000
£150,000
£100,000
£50,000
£- FY 2013/14 FY 2014/15FY 2015/16FY 2016/17 CFTC £97,179 £243,265 £258,405 £49,084 COMSEC £- £- £- £2,231
importance and benefits of establishing an NHRI, to Efficiency demystify the establishment process, to encourage The Secretariat spent a total of £29,696 on its Human the government to pursue establishment in Rights programme in the period under evaluation; accordance with best practice and in a manner however, all costs were incurred in FY2016/17, appropriate to the context and to garner support when most of the activities were conducted. Most from key ministries to participate in the NHRI of the expenditure was on convening of meetings establishment process. Secretariat support to the and travel for staff and the Ombudsman of Namibia, establishment of an NHRI is on-going. When who provided technical expertise. The technical Grenada completes the process, it will become the input provided by the Ombudsman of Namibia and first Caribbean nation to establish an NHRI that is the Secretariat was far higher than the unit cost compliant with the Paris Principles. HRU also carried incurred. Direct delivery of the programmes by the out missions to Grenada in October and November Secretariat and calling on expertise from within the 2016 to provide technical assistance to the Commonwealth reduces the total of delivery, making independent CRAC of Grenada to raise awareness it an efficient approach to programme delivery. on the Rights & Freedoms Amendment Bill. Effectiveness Relevance UPR and treaty body reporting: The Secretariat has The Secretariat is commended by Grenada for being supported CARICOM member countries on UPR responsive to the technical needs in Human Rights processes, including preparation for the UPR for the Government of Grenada as indicated in a blog process and follow-up on recommendations from a Senior Foreign Service Officer from Grenada. through seminars conducted in 2010 and 2012. ‘I am truly inspired by the technical human Grenada hosted the Caribbean Regional Best rights expertise and assistance provided by the Practice Knowledge Platform on UPR and Treaty Commonwealth Secretariat. I am appreciative Bodies in June 2018 organised by HRU. Grenada of the frank and respectful manner in which identified four key reports to be submitted for our engagements take place. When I feel reporting, for the International Covenant on Civil overwhelmed, I am comforted knowing that and Political Rights; the International Covenant on they are only a phone call or an e-mail away and Economic, Social and Cultural Rights; the I am always, always assured of help. I feel very Convention on the Elimination of Discrimination much a part of the Commonwealth family and against Women; and the Convention on the Rights I would like to place on record, the gratitude of of Persons with Disabilities. A National Coordinating the Government and people of Grenada for all Committee that oversees reporting to UN the assistance received from the Secretariat. I mechanisms was established. Technical look forward with great anticipation to greater committees, comprising membership from Legal collaboration in the future.’ Affairs, Foreign Affairs and technical teams from Findings \ 23
relevant ministries, have been established for all the For example, a 20-year case which had previously identified reports and progress is underway in the been side-lined had now been taken to court as a drafting. The National Committee reviews drafts result of the legislation. The implementation of before submitting them to Cabinet for approval. legislation on domestic violence and abuse-related Grenada has adopted the model of submitting crimes is an area that has been identified by combined periodic reports to relevant treaty bodies Grenada for impact assessment. to make up for the number of years it has not National Human Rights Institution: The reported. This approach was highlighted as a case Government of Grenada agreed to implement study for learning in the June 2018 regional recommendations from the first two cycles of the platform hosted by Grenada. A key lesson learnt in UPR process on the establishment of an NHRI. the UPR reporting, particularly for a small country like Grenada, is to prioritise recommendations and The Secretariat’s support to the establishment of only take forward what is feasible within the available an NHRI in Grenada started in 2016.The Secretariat resources. The areas of legislative reform prioritised noted that the ‘process of establishing a National in Grenada include domestic violence and Human Rights Institution can take several years. There amendment of the Criminal Code. are several stages to this process, including a national stakeholder conference to hear the views of all As a direct result of implementing UPR stakeholders about the model, powers and mandate recommendations, legislation on domestic violence of the proposed NHRI; the drafting of legislation; the and abuse-related crimes is being implemented.
Figure 5. Progress on establishment of an NHRI in Grenada
1 - Advisory support on establishment on NHRI - Completed
2 - Commitment to establishment of NHRI by government - Completed
3 - National Stakeholder Conference and NHRI models presented - Completed
4 - Government reviews the various models and agrees on one
5 - Recommendations on legislations and guidance provided
6 - Legislations drafted and engagement with parliament and government ministries
7 - Stakeholder consultations held on draft legislations
8 - Legislations for establishment approved and passed by Parliament
9 - Advisory support on composition, staff structure, training of commissioners on Paris Principles
10 - Strategic Plan drafted
11 - Implementation of the strategic plan aimed at compliance with Paris Principles; preparation for accreditation
12 - Accreditation
13 - A-accredited (compliance)
24 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
parliamentary process; the allocation of a budget, 1. The CCJ becomes the final court of appeal offices, etc.; the appointment of commissioners; the (as opposed to the Privy Council of the UK); recruitment of staff; the training of commissioners renaming the Supreme Court of Grenada and staff; the development of a strategic plan; and the West Indies Associated States as the implementing a portfolio of work which complies with ‘Eastern Caribbean Supreme Court’; introducing the Paris Principles; and applying for accreditation a code of conduct for civil servants; changing under the Paris Principles.’6 the oath of allegiance so that allegiance is sworn to Grenada instead of the Queen (CCJ To initiate the establishment process, the and Other Justice Related Matters); Secretariat concluded the first phase of national stakeholder consultations with high-level 2. Creation of an Elections and Boundaries leadership, including ministers and technical Commission to replace the Constituency officers and officials involved in policy-making. Boundaries Commission and the Various models were presented with technical Supervisor of Elections (Elections and support from the Ombudsman of Namibia that Boundaries Commission); Grenada could adopt. The second phase was held 3. Allow the leader of the party with the most in June 2018. The focus was on NHRI models that votes to be appointed leader of the opposition will be recommended to Cabinet. Figure 5 shows and to sit in the House of Representatives if the steps through which Grenada will have to the second-placed party fails to win a seat progress in order to have an ‘A’-accredited NHRI. in a general election (Ensuring a Leader of At the time of the evaluation, Grenada was at the Opposition); Stage three of the process. Although the establishment process is still in its infancy, 4. Introduce fixed dates for elections, with the progress in Grenada compared with the region caveat that a vote of no confidence may trigger is advanced. an early election (Fixed Date for Elections); Grenada acknowledged the assistance received 5. Changing the official name of the State of from the Secretariat in its journey to establish a Grenada to ‘Grenada, Carriacou and Petite Paris Principles-compliant NHRI, stating that ‘the Martinique’ (Name of State); Commonwealth Secretariat is helping us implement 6. Expansion of the list of fundamental rights and the recommendations accepted during our last review. freedoms (Rights and Freedoms); It has heeded our request for support in establishing an NHRI and is helping us improve on our 7. Limiting the Prime Minister to three commitments to treaty bodies by submitting consecutive terms in office (Term of Office of outstanding reports.’7 Prime Minister). Grenada referendum: The Secretariat provided The outcome of the referendum affected a number technical assistance to the CRAC of Grenada on of planned reforms. its public education campaign on the proposed Sustainability fundamental Rights & Freedoms Bill during the 2016 referendum. A total of seven amendment The institutional framework to promote and protect bills were presented to the public following human rights is anchored on national structures comprehensive public education and awareness that ensure ownership and sustainability. Progress campaigns. The amendments would have been on UPR and treaty body reporting is expected to be approved if two-thirds of valid votes had been sustained because the National Coordinating cast in favour. However, voters rejected all seven Committee reports to Cabinet. The National proposals. This was the first referendum in Coordinating Committee draws on technical Grenada’s history. The seven amendments were: sub-committees that facilitate national engagement and anchors all reporting.
2.2.2 Rule of Law 6 http://thecommonwealth.org/media/news/time-for-a- caribbean-state-to-take-the-lead-on-human-rights The Rule of Law work was primarily centred on the 7 http://thecommonwealth.org/media/news/grenada- commonwealth-strengthens-participation-work-human- provision of technical assistance. The provision of rights-council CFTC legislative drafting expertise allowed the Findings \ 25
Table 8. Programme performance
Impact Output Short-term Short-term Outcome 2 Intermediate Pathway Outcome 1 Outcome Theory of UPR and treaty body Timely reporting of National reforms in area of NHRI accredita- change reporting supported Grenada on UPR and human rights started tion process treaty bodies following passing of Bill complete and Support provided to Grenada achieves establishment of Model agreed for Legislation developed and A status in an NHRI establishment passed by Parliament; accreditation of NHRI Strategic Plan developed Support provided to process to facilitate establishment public education Proposed fundamen- and functioning of NHRI in Grenada com- campaign on tal Rights & Freedoms compliance with plies with its inter- proposed fundamen- Bill passed in Paris Principles national tal Rights & Freedoms referendum commitments Bill at national Overdue reports to under relevant referendum relevant treaty bodies core human finalised and submitted rights instru- Follow-up on UPR and ments, to which it treaty body recommenda- has become party tions conducted Progress UPR and treaty body Timely reports Too early to assess Too early to to date reporting is an submitted by progress assess progress on-going process Grenada to UPR and treaty bodies Establishment of NHRI still at its initial Stakeholders in stages, but progress Grenada actively to date has been engaged in decision satisfactory and process of establishment NHRI; Technical support progress is satisfac- provided in run-up to tory referendum as required and stake- All seven Amendment holders commended Bills were not passed it as satisfactory in referendum despite outcome Progress rating Comments Progress, particularly on establishment of an NHRI, is still at the initial stage. There is satisfactory progress on the delivery of outputs so far. Stakeholder engagement is holistic at the national level, and, despite the slow pace, this is satisfactory. On the referendum, delivery of outputs did not match the expected outcome; however, the process was transparent and allowed for open and meaningful engagement nationally on pertinent issues.
Secretariat to support the Government of fiscal legislation for the Secretariat rather than Grenada with legislative drafting capacity and to by design, did such support also fulfil provide support for the law reform process in requirements under the Secretariat’s Economic specific thematic areas related to the IMF SAP Development programme – advocate for fair and and also requirements set by CARICOM for inclusive economic systems; enhancing trade regional model legislation. Equally, and capacity and managing debt effectively perhaps only because of the coincidental focus on and sustainably. 26 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Figure 6. Technical assistance direct programme expenditure, 2013/14–2016/17
£250,000
£200,000
£150,000
£100,000
£50,000
£- FY 2013/14 FY 2014/15FY 2015/16 FY 2016/17 CFTC £75,428 £209,957 £223,073 £-
Relevance Effectiveness Underpinning the requirements of a ‘Home-grown’ Establishment of the Legislative Drafting Unit: The IMF SAP was the need to have far-reaching fiscal Secretariat with support of a CFTC expert legislation that would support sustainability, deployed in the Attorney Generals’ Office of economic growth and development. The three- Grenada outside the reporting period (2009–2012) year Home-grown IMF SAP for Grenada began in established the Drafting Unit in Grenada. Grenada January 2014 with the broad objectives to (i) boost commended the work that laid the foundation for inclusive growth and job creation and (ii) restore all the legislative work carried out within the Office. fiscal and debt sustainability.The work of CFTC Systems and processes established were still in expert legislative drafters filled a capacity gap in operation and sustained to date. This included the Grenadian legislative drafting offices and also establishing all the systems and processes and the CARICOM Secretariat to produce legislation laying grounds for the recruitment of the legislative that would meet the needs of the Government of drafters. One of the established systems is for the Grenada and CARICOM, respectively. legislative drafters to attend sittings of the Upper and Lower House, a process that has become the Some of the evidence of relevance is as follows: norm for drafters. stakeholder engagement was evident in the process of passing pieces of legislation; the Drafting Unit Legislative drafting: Extensive demands were reported utilising drafting manuals produced; and placed on the government as part of the Home- lessons from regional capacity-building workshops grown SAP to review and develop new legislation. In were still being applied, such as ‘Domestic relevance total, 66 pieces of legislation needed to be of a treaty; how to include provisions of treaties into a developed, amended or reviewed. The Secretariat bill to give effect to different treaties.’ placed legislative drafters in Grenada on both a short- and a long-term basis. Grenada also Efficiency benefited from legislative drafters placed by the Technical assistance delivered through resident and Secretariat in CARICOM, as shown in the box below. regional CFTC experts delivered real-time expertise required. The total cost for expert placement CFTC short- and long-term experts in-country was £508,459 as shown in Figure 6. (This • Macro-economic Planner/Adviser, Ministry of cost is included in overall the Public Administration Finance (November 2014–November 2015) cost above.) Considering the number of pieces of • Senior Commercial Counsel, Attorney legislation produced and passed during this General’s Office (2012–2016) period, this represents good value for money. • Policy Adviser, Prime Minister’s Office Regional CFTC experts delivered a significant (2014–2016) amount of their work virtually and engaged with • Legislative Drafter, Attorney General’s Office member countries by telephone and through video (2015–2016) calls in an effort to reduce costs and increase their • Regional Advisers (Legislative Drafter) based input in responding to the needs of the in CARICOM (2010–2014) member countries. Findings \ 27
Table 9. Progress on legislation drafted
No. Legislation Drafting Status 1. 6 draft bills for CRAC, 2015 Completed Evaluation could not ascertain progress 2. Labour Relations Bill Completed Pending Labour Advisory Board review 3. Employment Bill of 2015 Completed Pending Labour Advisory Board review 4. Occupational Safety and Health Bill Completed Drafting completed; still a number of unre- solved technical policy issues 5. Timeshare and Vacation Plan Bill Act Completed Passed and came into force by SRO No. 35 of No. 3 of 2016 2016 6. Bankruptcy and Insolvency Act No. 15 Completed Passed and came into force by SRO No. 50 of of 2016 2016 7. Geographic Indicator Bill Completed Awaiting final comments from Registrar 8. Industrial Designs Bill Completed Awaiting final comments from Registrar 9. Grenada Solid Waste Management Completed Minor changes made to original Act but not by Authority Bill CFTC expert owing to time constraints; status unknown 10. Constitution of Grenada (Term of Completed Passed 2016 (SRO Unavailable) Office of Prime Minister) (Amend- ment) Bill, 2016 11. Proceeds of Crime (Anti-Money Completed Passed and came into force by SRO No. 24 of Laundering and Terrorism Financing) 2013 (Amendment) Guidelines 12. Proceeds of Crime (Anti-Money Completed Passed and came into force by SRO No. 25 of Laundering and Terrorism Financing) 2013 (Amendment) Regulations 13. Terrorism (Amendment) Act No. 35 of Completed In force but no actual details available 2013 14. Criminal Code (Amendment) Completed No information on progress 15. Investment Act No. 42 of 2014 Completed Came into force by SRO No. 31 of 2016 16. Public Procurement and Disposal of Completed Passed and came into force: Public Property Act No. 39 of 2014 Public Procurement and Disposal of Public Property Regulations SRO No. 32 of 2015 Public Procurement and Disposal of Public Property (Disposal Committee) Regulations SRO No. 30 of 2015 Public Procurement and Disposal of Public Property Act (Public Procurement Review Commission) Regulations SRO No. 31 of 2015 Details on implementation in section below 17. Free Zone Act of 2015 Completed Passed in 2015 18. Citizenship by Investment Act No. 15 Completed Passed and came into force in 2014 of 2013 Details on implementation in section below 28 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
The evaluation assessed progress on a number of the ‘Citizenship by Investment Fund now account[s] for legislations, most of which were passed and as much as 15% of Grenada’s GDP.’9 In 2017, official under implementation. statistics from Grenada’s Ministry of Finance and Energy (also now known as the Ministry of Finance, Implementation of Public Procurement Act 2014: Planning, Economic Development & Physical The Senior Commercial Counsel in the Attorney Development) showed the number of applications General’s Office (see more details below) drafted the had tripled to 300 per cent and the programme was Public Procurement Act as part of the Fiscal on track to raise $150 million in 2017.10 Adjustment and Reforms Programme and was also instrumental in the development of new The Secretariat was commended in the 2015 procurement framework, including capacity- Budget presentation to Parliament on the building. All public entities were brought under a placement of the CFTC Expert on Commercial management framework. At the time of evaluation, Counsel as noted below: it was noted that the Act was passed in August ‘The Commonwealth Secretariat afforded 2014 and the supporting regulations were passed in Grenada the services of an Expert on September 2015, and the former CFTC expert that Commercial Counsel who has the responsibility drafted the Procurement Act was appointed as a for providing the Government with advice and member of the Procurement Board. support on all commercial and investment Implementation of the Act started in 2016. Major matters that the Government is engaged in. institutions were established as part of implementing the Act. These include Public ‘The Expert has been engaged in the building Procurement Board appointed and functional; of the institutional capacity and strengthening Review Commission established and functional; of negotiation capacity within the Office of Procurement Secretariat established and already Attorney General to effectively lead and manage staffed, supporting the operations of the Board; current and future investment initiatives. and Procurement Units to be established in all The Government is now better positioned ministries. At the time of the evaluation, four to negotiate and conclude development and ministries had made good progress in the investment proposals which in turn foster establishment of procurement units in greater economic growth and development for line with the Act: Finance, Works, Health the country. and Education. The strengthening of institutional capacity Implementation of Citizenship by Investment Act has also been extended to other Ministries, 2013: The Senior Commercial Council in the departments, agencies, statutory bodies and Attorney General’s Office also drafted Grenada’s state-owned enterprises to enhance knowledge Citizenship by Investment Act 2013. The Act was and appreciation for the techniques for the passed in 2014 and fully operational and creating a elimination of risk and exposure of Government, new revenue stream for the government. CS Global such that Government’s interests are now being Partners notes that ‘citizenship by investment much better protected.’ provides a direct route to legally acquiring citizenship via an investment or contribution to the economy of a Regional legislative drafters: Four CFTC legislative nation. St Kitts and Nevis, Dominica, Grenada, Saint drafters were placed at CARICOM to enhance Lucia, Antigua and Barbuda, Malta, and Cyprus, all offer regional capacity in legislative drafting. The citizenship programmes that afford high-net-worth experts drafted model legislations and shared with investors the chance to acquire dual citizenship.’8 regional member countries; provided legal advice Grenada restructured, redeveloped and re-launched on what is permissible in line with the Constitution; its Citizenship by Investment Programme in 2013 assisted member countries to translate model following enactment, which has generated a provisions into domestic legislations; and significant amount of income for Grenada. conducted training programmes. Grenada According to Investment Migration Insider in 2017,
9 https://www.imidaily.com/caribbean/grenada-cip- 8 https://csglobalpartners.com/citizenship-by-inve revenue-double-2017-usd130m-according-ciu-boss/ stment/?gclid=Cj0KCQjwg73kBRDVARIsAF-kEH_ 10 https://www.imidaily.com/caribbean/grenada-cip- INaCMCtEGFKBLdoOtsWB4flb5FoNiJS7boz8ltgqlr_ applications-300-since-last-year-program-track-bring- YZb44tDKoaAjiwEALw_wcB us150m-2017/ Findings \ 29
A Commonwealth CFTC expert – Senior Commercial Counsel was placed in Grenada in the Attorney Gen- eral’s Office, Ministry of Legal Affairs, in 2012–2016, at the request of the government as it had entered investment and commercial agreements that were resulting in significant contractual and financial risk and losses. These risks and losses owed to absence of sound legal and commercial advice; inadequate negotiation capacity to engage with foreign investors; lack of necessary legal due diligence; inadequate legal and commer- cial expertise to oversee legal issues arising from contracts and disputes; absence of legal and economic appraisal and analysis of investment proposals; and limited human capacity to undertake effective contractual analysis of investment proposals. The expert was responsible for providing the Government of Grenada with legal and commercial support and advice on all commercial and investment matters that it was engaged in. Some of the achievements and outcomes realised during this assignment are noted below. Key achievements • Institutional capacity-building within the Attorney General’s Office to effectively lead and manage current and future investment initiatives has been achieved in full with two understudies identified, assigned and engaged in on-going matters and exposed to complex legal issues, commercial and investment matters and transaction management. • The government is now better positioned to negotiate and conclude development and investment proposals. The project has brought depth to the negotiation and conclusion of investment and development proposals. • The Attorney General’s Office is now directly responsible for the vetting, negotiation and approval of all investment proposals and draft agreements. • There has been heightened emphasis on due process during the period 2013 to the present by the Prime Minister and Cabinet. • Successes and achievements most notably are represented in a shift in behaviour and attitudes at the highest level of government and across the board. • The expert provided much-needed senior interface with the IMF and World Bank regarding the Home- grown SAP, thus facilitating the drawdown of funding. The project ensured IMF proposals were relevant and sustainable for economic growth and development for Grenada. • Investment of $2 billion in the tourism sector has been secured through investment agreements with Sandals, Silver Sands and, Mount Hartman Estates. • Commercialisation of agricultural estates by way of public–private partnership arrangements has occurred. • Citizen by Investment Programme: Investment Migration Insider reported that the combined revenue from property investment, National Transformation Fund contributions and Citizenship by Investment fees amounted to $74.9 million by the end of June 2017, which would indicate the small island nation could see $150 million in Citizenship by Investment income for 2017 as a whole, or a staggering 15 per cent of its GDP.11 Ms Kaisha Ince, Former CFTC Expert, who served as the Senior Commercial Counsel of the Attorney Gen- eral’s Office, Ministry of Legal Affairs, from 2012 to 2016 is now the Permanent Secretary in the Office of the Prime Minister; at the time of evaluation, she was continuing to provide legal counsel to the Office of the Prime Minister; Chair of the Grenada Citizen by Investment Programme; and member of the Board of Public Procurement.
1
11 https://www.imidaily.com/caribbean/grenada-cip-applications-300-since-last-year-program-track-bring-us150m-2017/ 30 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Table 10. Programme performance
Output Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome Theory of Legislation drafted Stakeholders Legislation passed Legislation imple- change in response to engage with by Parliament mented and supports national needs legislation drafted national reforms Increased capacity for National legislative Legislative drafting legislative drafting within capacity developed resource materials Drafting Unit used by Drafting Legislative manuals Unit developed and delivered Progress At least 19 pieces of Stakeholder One staff member in Evaluation could not to date legislation drafted engagement Drafting Unit completed assess and verify evident in the post-graduate diploma in status of all implemen- Grenada partici- process of pass- legislative drafting tation of all legislation; pated and also ing legislation at Athabasca however, substantive hosted regional evidence of imple- legislative drafting Drafting Unit CFTC Expert on Com- mentation of Public training programme reported using mercial Counsel retained Procurement Act that drafting manuals in Grenada as Permanent was followed up; produced Secretary in Office of Citizenship by Invest- Prime Minister and still ment Act; and Fiscal providing legislative Responsibility Act support Progress rating Comments Significant progress was noted in the legislative drafting process and tangible impact on the ground on implementation of passed legislation. Capacity within the Drafting Unit is still low and challenged by on-going drafting needs.
benefited from all these supports. Some of the younger drafters to learn from seasoned drafters pieces of legislation supported have already been through hands-on support’. Among the notable passed and are currently under implementation. lessons still being applied from the regional These include: workshops was that on ‘Domestic relevance of a treaty; how to include provisions of treaties into a bill to • The Anti-Money Laundering and Terrorist give effect to different treaties.’ Financing (Amendments) Regulations; A manual for legislative drafting was produced by • The Terrorism (Amendment) Bill; one of the CFTC experts at CARICOM and shared • The Criminal Code (Amendment) Bill. with Grenada, among others. A respondent in Grenada highly commended the manual, particularly Grenada participated in trainings and coaching its ease in supporting the drafting process, and sessions jointly delivered by all the legislative confirmed that the team actively‘ make reference to drafters at the regional level, hosted in Grenada, the manual’. Other publications produced by the Barbados, Trinidad and Tobago. Coaching sessions Secretariat in this period include: included participation in court cases and discussed the outcomes and implications for legislations with • Drafting Legislations in CARICOM Member the drafters as well as reviewing the drafts. One of countries: A Manual on Legislative Style and the beneficiaries of this training and mentorship Practice – Revised 2016 – Funded by the highlighted that this gave the ‘opportunity for Government of Canada; Findings \ 31
• The Legislative Process and Drafting the CFTC contribution is valid while it lasts but Instructions: A Manual for Instructing Officers in this has been temporary and therefore there the CARICOM Member countries – March 2016. needs to be more appreciation and application of a systems level approach to sustainability; Building capacity of legislative drafters in the Grenada was one of the avenues taken for • Use Caribbean experts who can stay on and sustainability. Regional CFTC experts as part of work legally within Grenada once their CFTC their TOR were to ensure drafters were enrolled on contracts end. This would in some respects the post-graduate diploma in legal drafting at assist with retention of institutional knowledge Athabasca. A total of nine drafters enrolled on the and specialist expertise. Two CFTC experts did programme from the region, including one stay on, CFTC Legislative Drafting Expert Ms participant from Grenada. The short-term CFTC Brown (2005–2012) and most recently CFTC expert in Grenada, also a tutor at Athabasca, Expert Ms Kaisha Ince (Trinidad and Tobago), provided mentorship to Grenada’s drafter in the who went on to take an important role within completion of the programme. The drafter the government; completed the on-line programme in January 2018. • Retain Grenadian law graduates through One of the respondents noted that there was a scholarships that provide work experience and ‘dearth of legislative drafting experience in the tie graduates in to legislative drafting roles for Caribbean’. Grenada has been challenged in the long term and, second, involve universities to recruitment over the years, particularly from 2013, promote legislative drafting to students; when efforts were made to recruit a Chief • Ensure CFTC experts are flexible in their Parliamentary Counsel. Findings from this approach in order to provide for the needs of evaluation confirm an assertion by a CFTC expert the country; that ‘many of the small CARICOM jurisdictions are finding it difficult to recruit senior drafters either • Enhance member countries’ policy formulation because of the paucity of seasoned drafters or capacity to reduce this burden on legislative because the ones available are not prepared to drafters and allow drafters to focus solely on accept the remuneration that is being offered.’ drafting and not policy formulation.
Sustainability 2.2.3 Public Administration CFTC expertise was temporary and beneficial for The Secretariat’s support in Public Administration the specific time period it was able to provide included provision of CFTC experts in the Office of support. In its absence, the Grenadian Legislative the Prime Minister to lead strategic planning, Drafting Unit has returned to its original condition corporate planning, RBM processes and technical and form from prior to Secretariat support. The support to the Integrity Commission, including on its design of the programme did not consider this level establishment, capacity-building and strengthening of sustainability at the outset. networks in the region on the anti-corruption agenda. Equally, further consideration should be made of the Relevance fact that legislative drafting is not seen as an attractive career option for law graduates. There are Stakeholders commended the timely and responsive huge issues with the recruitment and retaining of approach to technical expert placement in Grenada, drafters in Grenada and the region as a whole and which directly contributed to national development this will require systemic solutions in the future. planning. The expertise provided by the Secretariat Stakeholder suggestions for enhancing capacity led and steered national development and corporate building and improving sustainability are: planning and is driving the anti-corruption agenda. Despite some challenges encountered with aspects • Provide more appropriate Secretariat support of the expert’s placements, overall Grenada found that is linked into government programme the Secretariat’s support relevant, timely and cycles and responds to specific sustainable responsive to national needs. development needs and allows for impact to be effectively measured; Efficiency • Ensure greater recognition that drafting affects CFTC expert placement was an efficient way to the whole governance of a country – deliver long-term and sustained technical 32 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
assistance. The cost of technical assistance was consistent programme delivery. The total cost in higher compared with staff delivery, but constant relation to the outputs delivered and change engagement at the national level ensured progress realised to date demonstrates efficient utilisation was sustained. Despite some of the excellent of resources. contributions by CFTC experts (noted below), there were some management issues that could have Effectiveness been addressed at recruitment stage had the Government of Grenada had an opportunity to Grenada’s National Sustainable interface with the experts through interviews to Development Plan 2030 ensure best fit to the local circumstance. Much as As part of the Fiscal Adjustment and Reforms the outputs delivered contribute to improved Programme, Grenada, led by the Ministry of Finance public administration, the unit within the and supported by the Macro-Economic Planner/ Secretariat in charge of public administration did Adviser from the Office of the Prime Minister, not have any interface with the CFTC experts and embarked on the development of a National their programme. This is a key lesson learnt in Sustainable Development Plan (NSDP) anchored on this study. the SDGs. The proposal for the NSDP process was Efficiency in the utilisation of experts’ skills launched in May 2015. The Steering Committee and in-country was noted. Given urgent national Technical Working Group were established. The priorities, there were deviations from the original expert led the Technical Working Group in the TOR to respond to these. The evaluation noted, development of the NSDP. however, that the deviation was still within the Unfortunately, the expert’s support was not broad framework and produced more outcomes satisfactory and the services were terminated with that the government owned and took forward. some lessons to be learnt in the recruitment of In relation to anti-corruption programme, the total experts. At the time of evaluation, there was still cost of delivery over the evaluation period was progress in the NSDP development, led by the £101,505. Most of this cost relates to staff travel National Planning Commission in the Ministry of and participant costs in hosting of training Finance. Public consultations started in July 2017 programmes in Grenada. The cost is spread over were in progress and one sectoral consultation the four years in a proportional way: FY2013/14: (Ministry of Agriculture) was completed. It was £21,750.17; FY2014/15: £33,308.47; FY2015/16: noted that technical support in the finalisation of £24,963.79; and FY2016/17: £21,482.16, showing the NSDP is still required.
A Commonwealth CFTC Expert – Macro-Economic Planner/Adviser was recruited to the Office of the Prime Minister in November 2014 to November 2015 to provide technical expertise and ensure the following were delivered: (i) detailed review and analysis of Grenada’s socio-economic performance and prospects in the context of its development objectives; (ii) Prime Minister and Cabinet Office advised on appropriate macro-economic policies and strategies to be pursued in the context of the local, regional and international environment; (iii) macro-economic policy analysis, planning and decision-making capacity within the Prime Minister’s Officer and the Ministry of Finance, Planning, Economic Development and Physical Development improved through support, training and knowledge-sharing. This will include the analysis of key policy issues and policy documents, including the Medium-term Economic Strategy and debt restructuring operations; and (iv) frameworks for collection of economic data to facilitate (current and future) macro-economic planning developed and implemented. Following the deployment of the CFTC expert, national priorities changed to development of Grenada’s National Sustainable Development Plan 2030. With the CFTC experts’ credentials deemed adequate to lead this process, having completed a similar process in one of the Caribbean member countries, the operational terms were changed to include this assignment. Findings \ 33
Table 11. Programme performance
Output Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome Theory of Development of National Steering Committee for NSDP drafted; NSDP 2030 change NSDP 2030 sup- NSDP established approved Stakeholders ported Technical engaged on Establishment of Working Group on NSDP estab- draft NSDP Steering Committee lished for development of Stakeholders engaged in develop- NSDP facilitated ment of NSDP Stakeholder consul- tations facilitated Development of Technical Working Group on NSDP facilitated Progress to Key meetings held Development of NSDP launched in No progress N/A date on establishment of May 2015 expected as national Steering NSDP still under Steering Committee established Committee and development with representation from whole of Technical Working government and civil soci- Group ety organisations Public consultations on NSDP started in six constituencies and consultations in three constituen- cies postponed Sectoral consultations in Agricul- ture conducted and feedback provided Progress rating Comments There is satisfactory progress on development of the NSDP. Progress based on the implemen- tation plan is expected to be slower as it involves the whole of government. Expected timelines for completion are still unknown. The CFTC expert’s contribution to this process was small because of the time expended on the project and therefore much of the progress is attributed to the National Strategic Planning Team. The timeframe for the CFTC expert’s assignment was shorter than required for completion of the planning process, it was anticipated that the expert would lead the process and hand over to national stakeholders
Corporate planning development and implementation
A Commonwealth CFTC Expert – Senior Policy Adviser – Policy Coordination, Analysis and Capacity-building, in the Cabinet Secretariat of the Office of the Prime Minister in 2014–2016, supported the Government of Grenada in embedding RBM management and corporate planning across government. The Cabinet Secre- tariat confirmed some of the outputs and outcomes during this assignment, some of which were verified during the evaluation. 34 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Key achievements: • RBM framework introduced and being applied; • Corporate Plan and Performance Measurement templates designed, approved and now utilised by ministries and departments; • Quarterly Performance Report template redesigned and approved by Cabinet; • Annual Performance Report template designed; • Annual Work Plan template for ministries and departments for a results orientation approved by Cabinet; • Performance Management System Policy brief prepared for Cabinet submission; • Cabinet Committee system brief prepared and presented to Prime Minister and key ministers; • Two pilot Cabinet Committees formed; • Enhanced understanding of strategic planning and elements of performance management across the government; • Better understanding of performance measurement process and utilisation of tools for monitoring results; • Enhanced understanding and knowledge among Cabinet office staff in strategic planning, annual planning performance monitoring and reporting.
As part of the Home-Grown SAP, all ministries and risk jeopardising achievement of departments were required to develop Corporate national outcomes. Plans. The Policy Adviser in the Office of the Prime All key ministries and departments were engaged in Minister, primarily responsible for strategic the development of Corporate Plans, which will planning, monitoring and evaluation, was contribute to the sustainability of corporate plan requested to lead the process. The Policy Adviser development in Grenada. supported the successful development and review of three-year Corporate Plans in all government On sustaining the achievements, the capacity ministries and departments. The evaluation developed within the Cabinet Secretariat (at the confirmed and verified with the various ministries end of the CFTC expert’s term by 2016) to take and department visited that Corporate Plans were forward the reforms and performance management effectively being implemented and guiding approaches is still operational. The technical team programme delivery. As most of the Plans were has been expanded to a cross-functional team of due to expire, plans were already in place for staff. Building on work of the CFTC expert, the team development of the next three-year Plans using is engaged in the development of the medium- the same approach and template – a sign of term plan (five years) with support from the World sustainability. However, it was noted that the next Bank. This support also includes conducting a Corporate Plans were to be linked to the new NSDP functional review of the Cabinet Secretariat and under development. The delay in the NSDP restructuring to further strengthen the operations completion will have an effect on the timeline for of the Cabinet Office. delivery of the Corporate Plans. Anti-corruption The whole of government approach brought with it Anti-corruption was identified at the 2005 some challenges in the delivery. Another challenge Commonwealth Heads of Government Meeting encountered was an overlap in the TOR of the (CHOGM) as an important priority and component CFTC expert with those of two other consultants of good governance. Through combatting on national reforms (regarding performance corruption, good governance is strengthened, management) with differing implementation accountability promoted and integrity within the approaches. A key lesson drawn was on the need Commonwealth upheld. for effective management of relationships between consultants of similar expertise whose The Secretariat’s support to Grenada started in potentials can transform national reforms but, if 2010 with placement of a CFTC expert in the not managed, with a strong national vision, could government to support establishment of the Findings \ 35
Table 12. Programme performance
Output Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome Theory of RBM pro- Ministries and Corporate Plans developed Corporate plans change cesses established departments led on and approved implemented development of Capacity of staff in Cabinet Secretariat’s Corporate Plans RBM developed capacity strengthened to Cabinet staff provide guidance on Planning and applying skills and planning and RBM reporting frame- knowledge on RBM works developed Planning and reporting Planning and frameworks utilised by the Framework for reporting frame- various ministries and Corporate works approved by departments Plans developed Cabinet Development of Corporate Plans supported Progress to All outputs deliv- Whole of govern- All Corporate Plans for key Corporate Plans date ered, despite some ment approach ministries and departments being implemented, challenges at the adopted for developed and approved some of which were end of the CFTC development of coming to the end Cabinet Secretariat assignment 3-year Corpo- of their term at the capacity expanded and cur- rate Plans time of evaluation, rently embarking on 5-year with plans for All key ministries medium-term plan- developing the next and departments ning process cycle engaged in devel- Utilisation of some frame- opment of Corpo- works developed hampered rate Plans by newly introduced Management Action Plans as part of performance management Progress rating Comments Progress from outputs to outcomes was satisfactory despite challenges on conflicting approaches on RBM and performance management.
Integrity Commission. Support included advice on Life Act and the Prevention of Corruption Act in staffing arrangements; preparation of Rules and Grenada. The Government of Grenada is a Procedures for the Commission; development of signatory to the Inter-American Convention necessary administrative systems, processes and Against Corruption (since 15 November 2002) and procedures; and development of standards for on 1 April 2015 acceded to the UN Convention proper performance of duties and functions under Against Corruption. its governing legislation, the Integrity in Public Life As part of strengthening the operations of the Act No. 24 of 2013. Integrity Commission and regional capacity in The Integrity Commission was established as an anti-corruption, the Secretariat facilitated several independent body by the Integrity in Public Life Act conferences and workshops, as indicated below. No. 24 of 2013, which authorises the Commission Outcomes realised during this period are to oversee the provisions of the Integrity in Public highlighted thereafter. 36 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
• First Commonwealth Regional Conference for Heads of Integrity Commissions and Anti- Corruption Bodies in the Caribbean, St George’s, Grenada, 22–26 June 2015: Strengthening Integrity Commissions and Anti-Corruption Bodies in the Commonwealth Caribbean; • Second Heads of Integrity Commissions and Anti-Corruption Bodies Meeting, Trinidad and Tobago, June 2016: The Role of Integrity Commissions and Anti-Corruption Bodies in Transforming the Commonwealth Caribbean; • Third Regional Conference for Heads of Integrity Commissions and Anti-Corruption Bodies in the Caribbean, Kingston, Jamaica, 24–28 April 2017: The Anti-Corruption Agenda: Today, Tomorrow, the Region and Beyond; • Training workshop: Anti-Corruption and Good Governance, St George’s, Grenada, 19–23 September 2016: Effecting Better Synergies between All the Anti-Corruption Agencies in Grenada and the Development of Ideas for the National Anti-Corruption Strategic Plan; • Training workshops with the Integrity Commission, St George’s, Grenada, 13–17 November 2017: Cohesive Leadership and Team Building, Strategic Planning and Global Procurement Best Practices; and Effective Management of Integrity Commission and other Public Sector Organisations in Grenada towards Achieving SDG 16.
Commonwealth Caribbean Association of Integrity an International Anti-Corruption Day March and Commissions and Anti-Corruption Bodies Rally (8 December 2017) with secondary school established: Grenada was the first chair and held the students and stakeholders. executive positions of chair, secretary and treasurer Some of the other achievements made by the from 2015 to 2017. It drafted a TOR for a legal Integrity Commission with skills, lessons and drafter to prepare model integrity/anti-corruption experiences from training workshops and regional legislation for all states in CCAICACB. A draft conferences include: constitution and financial management plan for CCAICACB were produced. A comprehensive • Established commitments to end impunity, needs assessment of integrity commissions and prevent corruption, empower victims and anti-corruption bodies was conducted and support activists, in an effort to bolster good agreement on an annual subscription fee reached governance and transparency and support and confirmed. Annual conferences enabled sustainable development; Grenada’s Integrity Commission to enhance its • Development of anti-corruption procedures activities and operations; build public trust; heighten for the operation of a Gift Registry for the awareness of anti-corruption initiatives and policies; Public Service; and conduct a Public Education Outreach Programme. They further served to emphasise the • Development of anti-corruption issues objectives of CCAICACB to provide a regional and by officials; international forum for delegates to share • Establishment of a Systems Hub for experiences and ideas concerning anti-corruption Administrative and Operational Management; efforts in the Caribbean. • A memorandum of understanding (MoU) with The Integrity Commission actively implemented a the Financial Intelligence Unit; Conference Communiqué recommendation: ‘Integrity Commissions and Anti-Corruption Bodies • Drafting of a Risk Management Treatment Plan; should intensify their public education and citizens • Educational outreach seminars commenced engagement initiatives more robustly, and in particular with ministries, departments and mobilise youth, civil society organisations and religious statutory bodies; bodies more effectively in the fight against corruption’ through (i) outreach educational seminars with • Development of ideas for a national anti- church leaders and political parties; and (ii) holding corruption strategic plan. Findings \ 37
Anti-corruption knowledge exchange: As part of the Contractor General and the Commission for the uptake of regional knowledge exchange and Prevention of Corruption in Jamaica. This technical learning, member countries selected countries for visit enabled Grenada’s Integrity Commission to (i) benchmarking and peer learning by undertaking restructure various technical aspects of its work; field study trips. Integrity Commission staff and (ii) further develop and implement procedure conducted a technical field visit to the Office of the manuals and guidelines for technical work.
Table 13. Programme performance
Output Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome Theory of Co-operation MoU for collaboration and Regional centre opera- Improved change between Caribbean establishment of regional tional, self-sustainable and Integrity anti-corruption centre signed delivering support to Commission agencies facilitated anti-corruption agencies oversight of Participation by Grenada anti-corruption Regional Training seen in regional knowl- Integrity Commission with agenda and Centre established edge-sharing well-developed strategies reduction in and exchange for combatting corruption Capacity of risks of Grenada’s Integrity Strengthened leadership Integrity Commission with corruption in Commis- skills within Integrity enhanced capacity and public sector sion strengthened Commission to steer skills to deliver effective anti-corruption agenda anti-corruption services Regional confer- ence hosted by Grenada Progress 4 regional anti- Establishment of Commission mandate is Too early to to date corruption confer- anti-corruption in broadening to anchor the assess progress ences held progress with an identi- national fied training facility; anti-corruption agenda Grenada hosted partnership being first inaugural Commission has clear explored with Govern- regional anti-cor- strategies and plans to ment of Singapore to ruption conference address provide funding anti-corruption issues 2 training work- and expertise shops for the Key events delivered by Learning visit conducted Integrity Commis- Commission: outreach to Jamaica sion held educational seminars with CCAICACB established church leaders and Grenada identified political parties; and as location for Grenada held executive International Anti-Corrup- Regional Training positions of chair, tion Day March and Rally Centre secretary and treasurer with secondary students (2015–2017) of CCAI- and stakeholders CACB following its establishment Progress rating Comments There is satisfactory progress from outputs to outcomes. There is confidence that momentum in the establishment of the Regional Training Centre in Grenada is on course and fully supported by the government. The Integrity Commission’s mandate may limit the level of leadership on anti-corruption going forward. 38 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Anti-Corruption Regional Training Centre: The the Office of the Integrity Commission. Areas Government of Grenada offered to assist the where the Integrity Commission would benefit from CCAICACB with capacity-building support through capacity support are leadership development; the provision of a Regional Training Centre that will enhancement of the customer experience; and be operated in collaboration with the Government organisational development. of Singapore and the Secretariat to be implemented in the near future. 2.3 Social Development: Health Sustainability Enhanced positive impact of social development The Office of the Integrity Commission, as an independent government body, would operate if Context donor funding ceased but to a lesser extent. Its capacities and capabilities would be able to grow In the reporting period, there was no direct and expand if more funding were made available. programme delivery on education and gender This is seen as an important aspect of the Integrity equality in Grenada. The Secretariat’s efforts in Commission’s ability to carry out the provisions health are focused on addressing NCDs. The contained within the Integrity in Public Life Act and November 2009 CHOGM in Trinidad and Tobago the Prevention of Corruption Act. Broadly, there provided a Statement on Commonwealth Action to are three aspects to the Integrity Commission’s Combat NCDs that affirmed member countries’ work: (i) declarations; (ii) compliance; and commitment to addressing NCDs. This included a (iii) investigations. Both declarations and call to the UN General Assembly for a Summit on compliance were deemed to be running fine but NCDs to be held in 2011, the 2011 Political investigations – staffed by only one person – was in Declaration on NCDs and the subsequent World need of strengthening. Health Organisation (WHO) Global Action Plan for the Prevention and Control of NCDs 2013–2020. There has been good political will and momentum behind establishing the Office of the Integrity Regionally, the 2001 Nassau Declaration Commission, establishing national legislation to underscored the importance of health to support anti-corruption efforts and acceding to development. Six years later, the Heads of international anti-corruption treaties. Efforts Government of CARICOM signed the Port-of-Spain to establish a Regional Anti-Corruption Training Declaration in Trinidad and Tobago (15 September Centre are currently being spearheaded by the 2007). This emphasised the importance of Government of Singapore. The regional centre will addressing chronic NCDs within the Caribbean be in a position to support the capacity needs of region and proposed five action areas: risk
No. Result Indicators Grenada 3.1 Strengthened national frameworks Member countries with up-to-date policies and Yes and policies improve health outcomes regulatory mechanisms to meet international health care delivery standards 3.2 Strengthened national policies and Member countries with up-to-date policies, No frameworks improve education regulatory mechanisms and standards for the outcomes implementation of quality teaching and learning systems 3.3 Gender equality and the empower- Policy formulation and planning processes of No ment of women effectively main- member countries reflect and demonstrate streamed into member country gender equality and empowerment policies, frameworks and programmes and Secretariat’s projects 3.4 Improved capacity-building for social Member countries have the ability to formulate No development policy and planning processes for social develop- ment priorities Findings \ 39
reduction, integrated disease management, The Secretariat in collaboration with the Healthy surveillance, public policy and advocacy, and Caribbean Coalition worked with member countries programme management. in the Caribbean region in responding to NCD challenges. Healthy Caribbean Coalition (Barbados) Globally, there exists the 2011 Political Declaration is a regional civil society alliance to combat NCDs on NCDs, and implementation through the WHO and their associated risk factors. The programme Global Action Plan for the Prevention and Control of involved hosting a regional meeting for National NCDs 2013–2020. Additionally, NCD is found to NCD Commissions held with participation from have relevance to 12 of the SDGs – ensuring NCDs Grenada; development of a Framework for the are addressed holistically as a poverty, inequality Establishment of and Strengthening of National and social justice issue. The most specific is SDG 3: NCD Commissions; and establishment of a National Global Health and Well-Being. Coordinating relevant NCD Commissions web portal to facilitate regional UN agencies and other inter-governmental engagement on NCD agenda and knowledge- organisations in their efforts to address NCDs is the sharing and exchange. UN Interagency Task Force on the Prevention and Control of NCDs. Relevance The Secretariat’s work on NCDs is well aligned with Commonwealth Secretariat’s support international frameworks and Commonwealth and • Regional meeting for National NCD national priorities. There is clear alignment with the Commissions held with participation Port-of-Spain Declaration, the SDGs and priorities from Grenada; established at the 2009 CHOGM. • Framework for the Establishment of and The Secretariat was recognised as an important Strengthening of National NCD Commissions player for the three specific and central activities established in collaboration with the Healthy that took place. However, beyond the Caribbean Coalition; stakeholders involved, its influence was limited. Key NCD strategic players within the region were • National NCD Commissions web portal the Pan American Health Organisation – having a established in collaboration with the Healthy regional office in nearby Barbados), WHO and the Caribbean Coalition; Caribbean Public Health Agency. Two important • Participation in 2016 Commonwealth Health strategic areas that would have raised the Ministers Meeting, 22 May 2016, Geneva; Secretariat’s profile would be the development of • Participation in 2015 Commonwealth Health more high-profile strategic partnerships Ministers Meeting, 17 May 2015, Geneva. combined with efforts to enhance Secretariat visibility within the region.
Figure 7. Social Development direct programme expenditure, 2013/14–2016/17
£1 £1 £1 £1 £1 £1 £0 £0 £0 £0 £- FY 2013/14 FY 2014/15FY 2015/16FY 2016/17 CFTC £- £- £- £- COMSEC £- £- £- £-
CFTC COMSEC 40 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Efficiency Stakeholders reported that they knew of or had read the Framework Report. There was no evidence Whereas it is clear that all outputs were achieved, the Framework was being utilised to establish or the feasibility of tracing this contribution to strengthen National NCD Commissions in any higher-level results remains a challenge. other way than to inform discussions. Stakeholders spoke of the low visibility the Secretariat had within the region with regard to Grenada’s NCD Commission is in the early stages NCDs and said other actors were more prominent of development and has found the Framework and active. It is clear that the Secretariat made a Recommendations useful to take the Commission contribution to undertaking three activities with the to the next level. The Grenada National Chronic Healthy Caribbean Coalition in Barbados (the web NCD Commission was established in 2010 (but had portal, Framework and regional meeting for NCD been in operation as the National Advisory Commissions) and helped ensure these were Committee on Chronic NCDs from 2000). achieved. However, its impact and visibility beyond St George’s University is an integral stakeholder in this seems diluted. One Grenadian government Grenada’s NCD Commission, given its research stakeholder stated that the Secretariat ‘doesn’t expertise, financial opportunities, partnerships and really feature’ and the head of the Grenadian NCD research projects. Currently, there is no funding Commission was only aware of its involvement allocated directly to the NCD Commission but all because ‘their name was on the Framework’. ministries are urged to allocate funds dedicated to Programme delivery through a recognised and addressing line items on NCDs. At the time of the respected organisation within the region such as evaluation, stakeholders identified the the Healthy Caribbean Coalition reduced the cost. following progress: Because the organisation is based in Barbados, the • A partnership was under discussion with the delivery cost is not reflected for Grenada but Chamber of Commerce and Industry as a key for Barbados. stakeholder in the fight against NCDs. Funding Effectiveness proposals were being prepared on elements of a National Action Plan to the UN Food and Regional meeting for National NCD Commissions: Agricultural Organization (FAO). The meeting – Strengthening the Multi-Sectoral Response to NCDs in the Caribbean – was held on 5 • Activities to establish an umbrella organisation June 2015 in Bridgetown, Barbados. The intended represented by 10–12 organisations for impact was the galvanisation of support for action advocacy on NCD are in progress. on NCDs within the region. Specific impact cannot • A skills bank was being developed for the be measured beyond this. It is clear that the regional Commission to facilitate leadership and drive meeting made a contribution to sustaining new initiatives. Key areas identified include momentum behind addressing NCDs but this research, policy development, governance should be seen within the wider context of and evaluation. contributions from other international actors. Regional exchange visits and learning opportunities Framework for the Establishment and were hosted with Barbados. Much as Grenada’s Strengthening of National NCD Commissions: The NCD Commission had progressed, it was Framework – Getting National NCD Commissions challenged by the visit to Barbados, which showed Up and Running – was developed in collaboration remarkable progress and an excellent working with the Healthy Caribbean Coalition, with an relationship between the Ministry of Health and the established implementation framework and Commission. Lessons learnt from Saint Lucia enhanced regional collaboration through the related to membership of Grenada’s NCD establishment of an on-line portal for National NCD Commission inclusive of civil society. Commissions with the region. The Framework is hosted on the Health Caribbean website.11 Establishment of a National NCD Commissions web portal: This has been established. However, stakeholders reported varying degrees of use from ‘very good’ to ‘poor’. It is expected that, once 12 http://www.healthycaribbean.org/wp-content/uploads/ 2017/04/Getting-National-NCD-Commissions-Up-and- National NCD Commissions are more established Running.pdf and more operational, the web portals function as a Findings \ 41
Table 14. Programme performance
Output Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome Theory of Regional meeting Stakeholders in Grenada Grenada’s NCD Com- Grenada’s NCD change for National NCD engaged with the Frame- mission strengthened Commission Commissions held work for the Establishment effectively with participation of and Strengthening of responding to from Grenada National NCD national NCD Commissions agenda Framework for the Establishment and Information from the Strengthening of Framework informs National NCD Grenada’s NCD Commis- Commission sions established National NCD Commis- National NCD sions portal utilised for Commissions web information-sharing and portal established learning from the region Progress All outputs deliv- There was limited engage- National Action Plan for Not assessed to date ered; however, ment with the Framework the Grenada National there is limited developed as Grenada is Chronic NCD Commis- engagement by more advanced on NCDs sion in place; smooth Grenada with the transition in leadership of Regional exchange visits outputs the Commission; that facilitate information- budgets not yet allo- sharing conducted cated directed to NCD Commission; partner- ships and resources sort Progress rating Comments Progress noted is satisfactory but fully attributed to Grenada as limited engagement was noted between the outputs delivered and outcomes being realised. Grenada’s National Chronic NCD Commission is mature and has engaged with the Secretariat through the Healthy Caribbean Coalition, which is a more recognised and respected stakeholder in the field of NCD. The Healthy Caribbean Coalition engaged in the delivery of the output is fully committed and a leader in the NCD agenda in the region, making the Secretariat invisible – just providing the resources for the delivery.
Community of Practice will be enhanced and this will The utilisation of the Commonwealth web portal for result in greater uptake among regional National NCD Commissions as a means for stakeholders. Stakeholders reported little knowledge exchange was considered a mechanism knowledge of the Secretariat’s involvement in this for sustainability. However, use of the portal is (despite it being on the website) and therefore currently limited. The regional meeting was seen as more could be done to enhance its visibility. a contribution to strengthening the basis of NCD work within the region and to galvanising action in Sustainability this area. The extent that the regional meeting informed future interventions remains unclear and Currently, there is no funding allocated directly to is perhaps beyond the scope of this evaluation. Grenada’s NCD Commission, but all ministries are urged to allocate funds dedicated to addressing At the outset, sustainability appears to have been line items on NCD. This has implications given little consideration in the programme for sustainability. design. It is not articulated as a strategy in the 42 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Programme Management Information System and development within Grenada and the Caribbean the three activities undertaken are linked only to region, a gap that other international and/or limited logic models. Nonetheless, these activities regional actors have yet to effectively fill. do have relevance at the systems level, which increases the potential for sustainability of Relevance programme results. As mentioned previously, the For the strategic period 2013–2017, the Secretariat outputs of Secretariat intervention were fully was not recognised as the key player on youth aligned with national, regional and international development work within Grenada and the region. policies and this is one way of generating national Prominent contributions came from CARICOM’s in-country ownership and sustainability. Youth Ambassador Programme (launched 1993), UN Development Programme funding for the 2.4 Youth: Empowerment Fostering Level Headed Youth programme in of Young People Grenada (launched June 2016) and the Caribbean Youth are more integrated and valued in Development Bank juvenile justice prevention and political and development processes response system funding to the Government of Grenada (since December 2016). Prior to 2013, Context however, the Secretariat was a key and important figure in the area of youth development because of Grenada’s Ministry of Youth Empowerment and the CYP and the CYP Regional Centre in Guyana. If Sports (now known as Ministry of Youth, Sports, the Secretariat is to ensure its assistance will yield Culture & The Arts) is responsible for youth affairs. Grenada was signatory to the Commonwealth Plan Commonwealth Secretariat’s support of Action for Youth Empowerment 2006–2015 and also to the CARICOM Youth Development Action • Grenada participated in the Technical Meeting Plan 2012–2017. on Enhancing Youth Development Statistics in the Caribbean on 2–28 June 2016 in Kingston, In the reporting period, no direct youth programme Jamaica. activities were implemented in Grenada; however, Grenada participated in regional workshops and • Grenada participated in the Workshop on meetings (see below). Evidence-based Policies on Youth Development in the Caribbean on 2–4 June 2015 in The CYP created a platform for youth development Bridgetown, Barbados. in Grenada and the Caribbean. Several politicians and other prominent Grenadians are part of the • Grenada participated in the Regional Youth CYP alumni. However, the change of focus of the Ministerial Meeting 2015, held in Antigua and CYP in 2013 led to the demise of youth Barbuda.
No. Result Indicators Grenada 4.1 National and pan- # of member countries implementing reform actions to Yes Commonwealth establish or strengthen the policy environment for youth frameworks advance empowerment social, political and # of member countries taking action to further the Yes economic empowerment professionalisation of youth work of young people # of member countries adopting sport as an intentional No approach to advancing development and peace as indicated by: • Specific policy instruments • National coordination and cross-sectoral mechanisms 4.2 Young people empowered # of national, regional and pan-Commonwealth youth-led Yes and supported to networks and platforms set up or strengthened participate meaningfully # of targeted national, regional and international institutions No and to take forward and individuals demonstrating increased impact in youth youth-led initiatives development and youth-led programming Findings \ 43
Figure 8. Youth direct programme expenditure, 2013/14–2016/17
£3,500
£3,000
£2,500
£2,000
£1,500
£1,000
£500
£- FY 2013/14 FY 2014/15FY 2015/16FY 2016/17 CYP £834 £1,351 £3,078 £- demonstrable and impactful results in the future, countries in developing evidence-based policies, then reinstating the CYP will be an important first the Secretariat facilitated the Caribbean Regional step. Certainly, the level of passion and commitment Workshop on Youth Policies on 2–4 June 2015 in articulated by all youth development stakeholders Bridgetown, Barbados. At the time, Grenada was for the CYP warrants a revisiting of how the engaged in developing the next National Youth Secretariat should engage with the Government of Policy and the lead consultant, the former Regional Grenada on youth development work in the future. Director for the CYP for the Caribbean (2005– 2011), participated in the workshop. This Efficiency consultative process guided the evidence-based The mode of delivery of youth programming from approach for the consultant to develop the new London was not considered effective or engaging National Youth Policy, funded by the Government of enough in Grenada. The new direction, supporting Grenada. One of the key lessons from the evidence-based programming, is not fully workshop was that national stakeholder appreciated, as there is less engagement between consultations had to be initiated in all three Islands, Grenada and the Secretariat since the closure of primarily with young people. The Policy, endorsed by the CYP Regional Centre. Minimal costs were young people, was tabled before Parliament in incurred on youth during the reporting period. The 2018. Draft legislation has also been produced and total cost of £5,263 was primarily for travel costs for is awaiting approval of the Policy. participants to regional workshops. Youth Development Index Effectiveness The YDI, developed by the Secretariat and first National Youth Policy launched in 2013, measures the status of young The Policy Environment Scorecard developed by people in 183 countries, including 49 of the 53 the Secretariat was implemented in Grenada in Commonwealth countries. It is a comprehensive 2013. The Secretariat and the Ministry of Youth measure across five domains critical to youth Empowerment and Sports (now known as Ministry development: education, health, employment and of Youth, Sports, Culture & The Arts) collected and civic and political participation. On the 2016 YDI, analysed data country-wide against the scorecard. Grenada scored lowest on youth political A report was produced in 2013 at the time when the participation and highest on education. CYP Regional Centre was closing. Complementing Challenges facing the YDI include weak statistics the YDI, the Scorecard identifies capacity gaps and units in member countries affecting data collection provides subnational analysis that informs the and inability to provide information to countries on Youth Policy Framework. what is actually taking place. The Grenada National Youth Policy was operational Statistics capacity at a country level is essential from 2003 to 2008 and reinvigorated in 2013. The when compiling the YDI. Progress has now been CYP supported the development of this first made on measuring the regional YDI and statistics National Youth Policy. In supporting member offices in Commonwealth member countries were 44 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
targeted in the dialogue. A regional workshop Development Programme. One of the stakeholders designed to build capacity on statistics was held in noted that ‘several officers have benefited from the Barbados with participation from young people, Diploma Programme, including the Honourable stakeholders, consultants and the University of Minister Emmalin Pierre, Minister for Implementation, West Indies (UWI). Grenada was represented at the Office of the Prime Minister.’ Technical Meeting on Enhancing Youth Development Statistics in the Caribbean in Jamaica on 27–28 June 2016 in which statisticians from seven countries Hon. Emmalin Pierre, Former Minister for Youth participated. The CARICOM Regional Office agreed and at the time of evaluation Minister for on a programme of reform on statistics, and Implementation, Office of the Prime Minister, is Grenada was one of the countries selected. In an alumna of the CYP and the diploma in Youth 2017/18, the Secretariat further worked with Development Work. The Secretariat noted that CARICOM to map out regional statistics and she was instrumental in establishing the youth consider options for taking forward the regional YDI. policy framework; setting priorities at the 2015 Youth work professionalisation regional meetings; and promoting Common- wealth perspectives in the UN and other The Secretariat’s flagship diploma was started in international spaces. 2012 by UWI under the Youth Development Programme in collaboration with the CYP. It is Ms Pierre’s career as a youth work professional designed to equip its graduates to perform started at the CYP Regional Centre in Guyana. technical, administrative and leadership functions in She considers herself ‘a child of the CYP’. At the support of activities to promote youth development age of 16, she joined the CYP and was actively work in the public and private sectors as well as to engaged in youth activities. Her career pro- plan, implement, monitor and evaluate youth gressed as follows: development projects, among others. The diploma • Head of National Youth Council (as a has evolved into a Bachelor of Science degree (BSc) young person); in Youth Development Work. • Deputy Chair of Regional Youth Forum; ‘The programme is offered in sixteen (16) countries across the Commonwealth • Deputy Director of Youth (organised and Caribbean. Using a mix of guided online/ interfaced extensively with Regional Centre); web-based instruction, tutorials, seminars • Internship at CYP Office in Guyana; and face-to-face fieldwork exercises, it • Appointed Youth Senator in Parliament (aged allows participants to interact with youth 27 years); through professional placement with youth- or youth-serving organisations or via other • Minister of Youth (aged 28 years); specially arranged sessions. From the start of • Minister for Implementation, Office of the the programme, students are exposed to an Prime Minister. integrated framework of traditional academic educational tools and professional training Ms Pierre has a close working relationship with tools. The online offering will be designed to be the CYP Regional Centre. She was part of the accessible to students from home, office or at CYP structure that was instrumental in UWI centres/sites in each country.’12 setting up the Youth Enterprise Programme, watched it in operation in Guyana during her In 2018, there were six Grenadian nationals internship and later got support from the CYP currently pursuing the degree. Three staff at the to establish a similar framework in Grenada. Youth Centre Morne Rouge, Grenada, have The CYP worked with Ms Pierre to engage previously or are currently undertaking the degree. with the banking on financing for small grants There are a number of graduates within under the youth enterprise programme, government who are alumni of the Youth these grants were used as seed funding provided by the CYP to get the programmes 13 http://www.open.uwi.edu/programmes/diploma-youth- established. development-work Findings \ 45
Despite having the diploma and degree programme whole of the Caribbean region. The diploma and in place, it was noted that there is no standard entry the degree programme are now recognised as part level for youth development work in Grenada; of the CVQ. however, there is a standard for entry into the public Youth networks service. A respondent noted that, ‘if you want to be a youth development worker, there is no The CYP Regional Centre was commended for standard qualification.’ constantly advocating for the establishment of a National Youth Council. The Grenada National In addition to the diploma and degree in youth work Youth Council operated between 1994 and 2004. development, the Grenada National Training Since 2004, it has not been in operation. Reasons Agency offers the Caribbean Vocational for the inactivity include decline over the years in Qualification (CVQ) and National Vocational the number of formal youth organisations that form Qualification, which allows youth to undertake the backbone of the National Youth Council; training in a specific area and obtain a qualification inactive parish and district councils; and inactivity of (Level One – Certificate; Level Two – Diploma; the Council. Currently, other existing structures are Level Three – Associate Degree; Level Four – relied on for youth participation. These include Bachelor’s Degree; Level Five – Post-graduate National Youth Ambassadors and the National Degree). These qualifications are recognised in the Youth Parliament.
Table 15. Programme performance
Output Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome Theory of Caribbean Regional Workshop on National Youth National Youth National Youth change Youth Policies conducted Policy that is Policy Policy evidence- approved by Cabinet implemented Technical Meeting on Enhancing based developed Youth Development Statistics in Improved collection the Caribbean Increased engage- of youth-related ment on identifica- national data for Regional Ministerial Meetings tion and closing of youth policy facilitated gaps in national implementation and statistics on youth contribute to development regional statistical requirements for YDI Progress Participated in Technical Meeting National Youth National Youth Not assessed to date on Enhancing Youth Develop- Policy developed Policy tabled but at ment Statistics in Caribbean after extensive time of evaluation consultations with (February 2018) not Participated in Workshop on stakeholders yet approved Evidence-based Policies on Youth Development in the Caribbean Participated in Regional Youth Ministerial Meeting 2015 in Antigua and Barbuda Progress rating Comments There was satisfactory progress linked to the national policy and YDI. There was limited direct programme delivery in the period under review. Participation of the right persons involved in an on-going process can bring about a change. Progress on outcomes is attributed primarily to Grenada and its stakeholders, who are leading the process. 46 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
The National Youth Parliament started as a mock • Grenada Youth Enterprise Initiative: The parliament. The CYP Regional Centre was Regional Centre was commended for commended for starting the process that its instrumental role in establishing a encouraged countries to move away from this number of initiatives, one of which was status and transition the entity into a real the Commonwealth Youth Credit Scheme, Parliament, adopted by the government. Ms launched in 2004 as the Grenada Youth Emmalin Pierre was elected the first Member of Enterprise Initiative. The scheme developed that Parliament. in collaboration with the Government of Grenada provided training and start-up capital It was noted, however, that the National Youth of EC$3,000 at the time to youth 18–25 years. Participation Bill 2015 had been tabled to The programme, now run by the Ministry of Parliament but had not yet been approved. The Youth Empowerment and Sports (now known proposed Bill will address the establishment of a as Ministry of Youth, Sports, Culture & The National Youth Council with the following branches: Arts) and the Grenada Development Bank, the National Youth Parliament; National Youth which facilitates the financial transactions, Ambassadors; National Youth Elections is still on-going. One stakeholder noted that (management of participation in the National Youth ‘today, the start-up capacity is EC$25,000’ from Parliament); and a National Youth Bureau the initial EC$3,000. (administration of the programme). • Healthy Lifestyle Project: The Healthy Despite the challenge with National Youth Lifestyle Project was one of the HIV/ Council, Grenada is currently the Caribbean AIDS programme initiatives run by Regional Representative on the Commonwealth the Regional Centre based on a model Youth Council. developed for the region. The Government Impact of Grenada adopted the model in 2005 and implemented it through the national Stakeholders highlighted some of the impact budget in 2005–2013. Unfortunately, the realised in Grenada with support from the CYP programme was phased out with the change Regional Centre. in government. • First National Youth Policy: The CYP • Internship Programme: The Regional Centre Regional Centre was commended for its hosted interns from across the region extensive advocacy for the development as part of developing their capacity and of national youth policies. In 2004, the skills. Some of the skills acquired during Regional Centre provided technical this internship were community mapping, support in the development of the first leadership skills, group dynamics, small National Youth Policy in Grenada. The business development and youth advocacy. Policy was commended for shaping A number of the current senior youth youth development in Grenada and development leaders started their career in increasing government’s awareness of youth development as an interns in the CYP the importance of youth development. e.g. Ministers within Government, Permanent This is reflected in the increased annual Secretaries and the Directors of Youth. The budget allocation to youth development, Minister for Implementation also attributes from EC$10,000 in 2002 to current EC$30 momentum for youth development careers to million. A Youth Strategic Action Plan and the internship programme. Implementation Strategy was developed that has clear roles and responsibilities for Sustainability the different line ministries. There is also an Inter-Ministerial Focal Group for Youth The regional CYP (1974 to 2013) was an Policy that meets quarterly to discuss instrumental force behind youth development progress on implementation of the Plan. within Grenada and the Caribbean region as a The Policy was in implementation until whole. The regional youth network benefited hugely 2015 when successor policy development from the coordinating efforts of the CYP Regional was commissioned. Centre in Guyana. Findings \ 47
Unfortunately, both the CYP and the Regional 2.5 Economic Development Centre came to an end in 2013 as a result of More inclusive economic growth and internal decisions made by the Secretariat in sustainable development London. This closure left a large hole in youth development programming for Grenada (and the Context region) and that hole has not since been filled. Concerns were levied at the programming level Grenada entered into the three-year, IMF (by youth development workers) and higher supported, Home-grown SAP in January 2014. The (government officials) that theCYP disappeared main objectives of the SAP were to boost inclusive overnight without the Government of growth and job creation; and to restore fiscal debt Grenada and other stakeholders being sustainability. The Secretariat’s support in Grenada considered or consulted as to what the within this reporting period was delivered within this correct transition process should be. Many context as the country responded to the policy, within Grenada felt let down by the Secretariat legislative, planning and structural requirements. over this process and were mournful at the loss of such a highly regarded youth development 2.5.1 Trade programme. The broad aim for the Government of Grenada is to Secretariat interventions for the strategic period diversify the economy and reduce its vulnerability in 2013–2017 did not fill this void and as yet little has this area. To achieve this, it utilised the Secretariat’s been done to redeem the situation. Stakeholders methodology, a comprehensive trade strategy felt that more needed to be done to build covering supply-side capacities, quality of the partnerships and programming interventions that business environment, market entry and reignite efforts in this area and launch youth developmental impact. This has involved multiple development on a sustainable course. sectors. For example, FAO has provided support to
No Result Indicators Grenada 5.1 Effective policy mecha- Member countries that effectively formulate trade policy, nego- Yes nisms for integration and tiate and implement international trade agreements participation in the global Member countries that implement export development and Yes trading system competiveness strategies 5.2 Commonwealth princi- Commonwealth position on global development and financing N/A ples and values advanced decisions recognised at G-20 and post-2015 Millennium in global development Development Goal framework, among others and financing decisions 5.3 National frameworks Member countries that reform their management of public debt Yes facilitate effective debt Member countries effectively utilise the Secretariat’s debt Yes management management systems to proactively manage their debt 5.4 Strengthened, equitable The degree of integration between policies and legislation in No and sustainable manage- member countries for the management and governance of ment of maritime and natural resources other natural resources # of reformed/established governance frameworks and Yes institutional arrangements in member countries that promote and support the sustainable management of natural resources # of maritime boundaries delimited by member countries in No accordance with international law, including through joint development and other provisional arrangements # of broad-based mechanisms for effective, transparent and No integrated management of marine resources implemented by member countries 48 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Commonwealth Secretariat’s support • Technical support to the development of Grenada Strategic Options for Export Development: Export Capacity Assessment produced in April 2015; • Technical support provided for the NES implementation review, 2015; • Technical support to the development of the Grenada NES 2017–2021 produced in January 2017; • Drafting of the Public Debt Management Act 2015 with support from the CFTC Expert – Senior Commercial Counsel in the Attorney General’s Office; • E-learning courses on domestic debt management, external debt management concepts and CS-DRMS to manage external debt developed and delivered to three Ministry of Finance officials; • Latest version of CS-DRMS (CS-DRMS v2) installed; • Two regional training workshops on public debt management concepts and CS-DRMS v2 delivered, to four participants from the Government of Grenada’s Debt Management Unit, Ministry of Finance; • Enhanced version of Horizon finalised but not yet deployed; • Technical assistance on conclusion of an agreed maritime boundary between Grenada and Trinidad and Tobago under the Treaty between the two countries on the Delimitation of Marine and Submarine Areas (Delimitation Agreement); • Technical assistance on Grenada/Trinidad and Tobago economic zones and shelf jurisdiction; • Technical advice on the Draft Framework Agreement between the Government of Trinidad and Tobago and the Government of Grenada concerning cooperation in energy sector development; • Discussions on the development of a legal, fiscal and regulatory framework for petroleum development.
the Grenadian agricultural export sector and the development of the new NES and implementation IMF has supported Grenada’s Home-grown SAP. plan. The new NES focused on the new transformation sectors in support of the new The Government of Grenada requested technical Growth and Poverty Reduction Strategy. The work assistance from the Secretariat to review the 2006 involved nationwide consultations with identified National Export Strategy (NES) and develop a new national teams working together with the technical NES and implementation plan. The support was assistance team. provided in two phases. The first involved a review of implementation of the 2006 NES, taking stock of In September 2017, the Secretariat received and achievement, challenges and shortcomings. The is responding to a request from Grenada for results of this guided the second phase, which saw further support under the New Products New
Figure 9. Economic Development direct programme expenditures, 2013/14–2016/17
£60,000
£50,000
£40,000
£30,000
£20,000
£10,000
£- FY 2013/14 FY 2014/15 FY 2015/16FY 2016/17 CFTC £4,960 £43,960 £48,355 £14,413 COMSEC £- £- £2,581 £- Findings \ 49
Markets scheme to support efforts to increase Activities under the Secretariat’s trade penetration of existing markets for established programme have made a significant contribution products and enter new markets with to achieving the required changes. The short- new products. term outcome – improved market access capabilities – has been achieved and frameworks Relevance to implement the Grenada NES 2017–2021 are in The NES 2017–2021 supported by the Secretariat place. These frameworks were built on lessons responded to a relevant and urgent need for learnt from the challenges faced in implementing Grenada. Not only did stakeholders appreciate the the NES 2006–2011 and therefore the policy Secretariat’s technical expertise in the mechanisms were deemed to be more effective as development process but also the government per the intermediate outcome requirement. It was fully owned the strategy. too early within the NES 2017–2021 programme cycle for a true determination of effectiveness to be Efficiency made, and any benefit to the economy would in any Delivery of the NES took longer than anticipated. case likely be the result of multiple contributions, for With the request received early in 2012, the work example the IMF SAP 2013–2017, to which has was expected to start in August 2012 and to be been attributed a reduction in the country’s debt– completed by May 2013. However, the final output GDP ratio from 100 to 70 per cent in 2017/18. Early was completed and launched in July 2017. Factors indications are positive, in that the strategic that caused the delay included Grenada being in outcome – more inclusive economic growth and breach of the Abuja Guidelines in September sustainable development – will be achieved. 2012, which meant the project could not progress. Concerns existed, however, over the amount of Grenada only came out of this breach in early 2014; donor funding required to implement the NES this coincided with the change in government. The 2017–2021 and whether all aspects of the timelines for implementation were aligned with strategy will be implemented effectively. government plans and priorities. An inception Sustainability mission was only conducted in November 2014, at the convenience of the government. The evaluation The Grenada Strategic Options for Export thus noted a gap between the NES 2006–2011 and Development: NES Implementation Review Report the new NES 2017–2021, but stakeholders noted June 2015 addressed some of the challenges and that during the gap period the NES 2006–2011 was impediments to implementing the NES 2006–2011. still in operation. These lessons learnt were incorporated into development of the NES 2017–2021 and Effectiveness therefore we can see that sustainability was The Ministry of Trade completed the NES 2017– considered at the systems level to enhance 2021 and presented it to the Cabinet in 2017 and sustainability of implementation results. it was approved for implementation and roll-out in However, implementation of the NES 2017–2021 an attempt to diversify the economy and reduce is heavily dependent on donor funding, with the country’s vulnerability to economic shocks. An government resources for implementing activities implementation plan was also developed and (outside of recurrent budget allocations) at only approved. This tasked line ministries to incorporate EC$250,000/£65,555 for 2018. Therefore, without activities of the NES in their annual planning. The donor funding from the international community, evaluation was informed that each ministry had the NES 2017–2021 would not be successfully budgeted for NES activities that would be implemented. Despite the low levels of government implemented over the NES five-year period. The funding, the evaluation team deemed government Cabinet appointed the National Implementation ownership high, with commendable efforts to Committee to oversee implementation of the NES. implement the NES 2017–2021 being made – with This Committee, comprising members from a new laws, policies and programmes being instated cross-section of key ministries and the private to increase the likelihood of sustainable sector, meets quarterly. In addition, the Strategy programme results. Management and Monitoring Framework for the NES 2017–2021 was developed and there will be Any international actor is challenged to be able to quarterly reporting. define its comparative advantage or niche. Given 50 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Table 16. Programme performance
Output Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome Theory of Review of previous Stakeholders Implementation plan and NES 2017– change NES conducted engaged in structures for NES 2021 NES development developed and financed implemented Strategic options for export development produced Grenada NES 2017– Technical support provided 2021 developed in development of NES 2017–2021 NES approved and launched Progress to Grenada Strategic Options Extensive national National Implementation Not assessed date for Export Development: consultations on Committee established Export Capacity NES conducted and Strategy Management Assessment produced in key stakeholders and Monitoring April 2015 engaged in drafting Framework for NES and reviewing Grenada Strategic Options 2017–2021 developed for Export Development: NES 2017– Strategy to diversify NES Implementation 2021 developed economy and reduce Review Report produced in NES approved by vulnerability to June 2015 Cabinet and shocks begun Grenada NES 2017–2021 launched in 2017 Dedicated staff allocated produced in January 2017 for NES Progress rating Comments There is satisfactory progress in the delivery of outputs and expected short-term outcomes. The NES is fully owned by the Government of Grenada and there are clear indications that, unlike the previous NES, mechanisms for ensuring effective implementation of the plan are in place.
the scale and breadth of actors required to adjustment and strong GDP growth have all implement this comprehensive strategy, and based contributed to a fall in Grenada’s public and national on feedback from stakeholders, the Secretariat debt since measures were implemented.14 can be seen to have positioned itself well in Grenada entered the IMF’s SAP between 2014 and providing support to the Government of Grenada 2016. This followed a period of protracted in this area. economic downturn for the country, triggered by 2.5.2 Debt Management Hurricane Ivan (2004) and the global financial crisis (2008/09). A period of recession (2009–2012) prior Debt management is seen as an instrumental to the 2013 national elections ushered in a new component of Grenada’s financing strategy. administration under Prime Minister Mitchell, whose Long-term sustainability of the country’s debt government instigated ‘home-grown reforms’ in obligations serves the purpose of increasing order to begin and take responsibility for the productive investment while reducing debt country’s difficult fiscal imbalances. distress.13 The IMF SAP, debt relief, fiscal
15 Government of Grenada (2017) Why Grenada’s 14 UNCTAD, Target 17.4: Long-term debt sustainability: National Debt is Falling: www.gov.gd/egov/news/2017/ http://stats.unctad.org/Dgff2016/partnership/goal17/ mar17/24_03_17/item_4/grenada-national-debt-falling. target_17_4.html html Findings \ 51
The Eastern Caribbean Central Bank (ECCB) facilitate effective debt management. Additional provides debt management support to Grenada support in this area could have been enhanced and other members of the Eastern Caribbean through policy advisory support and technical monetary union. Grenada demonstrated the assistance but this was perhaps deemed preconditions for inclusive economic growth and unnecessary given the ample support in this area sustainable development through successfully being provided by the IMF, ECCB and the Canadian managing its public debt portfolio and International Development Agency. promoting growth. Therefore, it can be said that the Secretariat The technical support the Secretariat created and occupied its niche well and played to its provided included: comparative advantage. Additional Secretariat support should focus on deepening government • Drafting of the Public Debt Management Act staff capacity so they can solve problems and 2015 with support from the CFTC Expert – troubleshoot without external support Senior Commercial Counsel in the Attorney (Secretariat or ECCB) and become self-sustaining. General’s Office; Efficiency • E-learning courses on domestic debt management, external debt management In the reporting period, there was no direct concepts and the Commonwealth Secretariat expenditure by the Secretariat on the technical Debt Recording and Management (CS-DRMS) support provided on debt management through to manage external debt developed and systems. All the systems technical support was delivered by the Secretariat to three Ministry provided remotely from London. Stakeholders of Finance officials; noted that the response from the Secretariat was timely. At the time of evaluation, there were no • The latest version of the CS-DRMS (v2) outstanding technical issues. ECCB provides installed; additional technical support, with debt • Two regional training workshops15 on public management advisers based in the region. debt management concepts and CS-DRMS Capacity-building on debt management was v2 delivered, with four participants from the conducted at regional level and thus costs were Government of Grenada’s Debt Management charged at that level, not country level. The Unit, Ministry of Finance; Secretariat is currently addressing this to ensure costs for each country are properly reflected for • Enhanced version of Horizon finalised but not each activity. The cost of drafting the Public Debt deployed in Grenada. Management Act 2015 is integral to the CFTC Relevance expert’s cost and not attributed to each task. The Secretariat aligns itself with the priorities of the Effectiveness SDGs through offering support to countries in The Secretariat supported the Government of achieving long-term debt sustainability. For Grenada in the drafting the Public Debt Grenada, this support has been advisory and Management Act 2015 through the resident CFTC diagnostic, and involved capacity-building and the expert in the Office of the Attorney General. The provision and support of public debt management Act was passed and is now implemented through systems.16 the Medium-term Debt Strategy. This was part of Secretariat support in this area is fully aligned with the IMF Home-grown SAP, which saw strong the Commonwealth Secretariat Strategic Plan ownership at the national level, which included a 2013–2017, in that all activities contributed to wide array of measures, including debt relief; the intermediate outcome 5.3 – national frameworks Medium-term Debt Strategy; establishment of a Fiscal Responsibility Oversight Committee; and new legislation, for example the Public Debt 16 (i) Joint Secretariat-ECCB Workshop on CS-DRMS v2, St Management Act 2015 and the Fiscal Responsibility Kitts, 28 October–8 November 2013; and (ii) Workshop on CS-DRMS v2 with Service Pack, Frigate Bay, St Kitts, 23 Act of 2015, among others. May–1 June 2016. 17 http://thecommonwealth.org/public-debt-management- The Government of Grenada successfully programme completed and met all the targets of the 52 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Table 17. Programme performance
Output Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome Theory of Public Debt Management Stakeholders Public Debt Public Debt change Act drafted engaged on Public Management Act Management Act Debt 2015 passed 2015 implemented E-learning courses on Management Act in Parliament domestic debt management, National external debt management Skills and Real-time frameworks concepts and CS-DRMS to knowledge gained responsive debt facilitate effective manage external debt utilised in management data debt management developed and delivered debt management and information produced by Debt Two regional training Debt management Management workshops on public debt system effectively System and used management concepts and utilised to manage to inform CS-DRMS v2 delivered public debt decision-making Latest version CS-DRMS (v2) installed Progress All the above outputs Debt management Act was passed by Implementation of to date delivered as planned system effectively Parliament Act started through being utilised and in 2015 Medium-term reports produced Debt Strategy Real-time debt on time to inform reports produced Evidence on debt decisions to inform management management decisions not decisions available, therefore not assessed Progress rating Comments There is satisfactory progress from outputs to outcomes. The software is sustaining operations and capacity developed is functional but limited due to staff transition.
2013–2016 IMF SAP. Over 60 pieces of legislation contributed to improved management of the debt have been passed to improve the business climate portfolio under the government’s Medium-term and promote growth. In relation to debt, this was Debt Strategy. Broadly, this meant improved staff the 2016 Public Debt Management Act. There has capacity, data management, budgeting processes been a substantial reduction in the debt-GDP ratio. and debt servicing. Secretariat activities were seen Between 2014 and end 2017, public debt declined to support the Government of Grenada’s substantially from 108 to 72 per cent (IMF data) additional efforts to reduce economic vulnerability. owing to comprehensive debt restructuring, fiscal All contributory factors were deemed successful. adjustment and GDP growth.17 Sustainability The Secretariat’s support in system development Debt management, as an important component of and capacity-building in debt management further achieving sustainable growth for Grenada, benefits from high government ownership and support from the IMF and ECCB. This momentum meant 18 IMF (2017) Grenada Sets Stage for Sustainable Growth: activities were deemed sustainable but dependent https://www.imf.org/en/news/articles/2017/05/23/ NA230517-Grenada-Sets-Stage-for%20Sustainable- on certain variables. Secretariat funding has built Growth the capacity of government staff to a certain Findings \ 53
extent and provided the debt management development of a legal, fiscal and regulatory software. Therefore, to some degree, Secretariat framework for petroleum development; activities are sustainable. integration of renewable energy; technical assistance in the delimitation of maritime However, stakeholders raised questions boundaries; and development of a framework for concerning the unsustainability of the initiative ocean governance and integrated ocean during the evaluation. Broadly, government staff space planning. felt they were not self-sufficient because they still had to rely on external support. Stakeholders The Secretariat provided CFTC-funded legal and said the software was not always reliable – with technical assistance to the Government of Grenada occasional system shutdowns – requiring in the following areas: government staff to lean on external support and • Natural resource management and matters the expertise of ECCB in Saint Lucia. Additionally, arising from the conclusion of an agreed they felt the e-learning course was good on the maritime boundary between Grenada and basics but needed to be more in-depth and Trinidad and Tobago under the Treaty on the advanced in order for them to be truly self- Delimitation of Marine and Submarine Areas sufficient. (Delimitation Agreement); Additional activities suggested by stakeholders • Grenada/Trinidad and Tobago economic during the course of the evaluation were: zones and shelf jurisdiction: Intention to • Additional in-depth and advanced training implement Article VI of the Delimitation Treaty on CS-DRMS for government staff to under which the two states have agreed to increase their capacities and self-sufficiency cooperate on areas of common interest, to solve problems and reduce their reliance including the exploration and exploitation on the Secretariat and also ECCB for of non-living natural resources of the external support; exclusive economic zone and continental shelf. Accordingly, Article 1 of the Draft • Build human resource capacities in debt Agreement provides that the aim of the Draft management strategy and analysis. Agreement is to establish an agreed process through which the parties may cooperate 2.5.3 Oceans and Maritime Boundaries in the development of their respective energy sectors; In response to the 1982 UN Convention the Law of the Sea (concerning establishment of maritime • Technical advice on the Draft Framework zones), the Secretariat provides technical Agreement between Trinidad and Tobago assistance to its member countries where two and Grenada concerning cooperation in coastal countries have agreed to cooperate energy sector development. concerning areas of common interest, including the Grenada participated in regional and international exploration and exploitation of non-living natural technical working groups with support from the resources of the exclusive economic zone and Secretariat that Grenada: continental shelf as per Articles 77 and 83. • 54th Meeting of the OECS Heads of The Secretariat’s support to the Government of Government Meeting, Rodney Bay, Grenada on Oceans and Natural Resources goes Saint Lucia, 23–24 January 2012. The back to 2001. The Secretariat responded to Secretariat agreed to assist the OECS in Grenada’s request for technical support with the process of developing regional and regard to ‘principle for a proposal by Grenada of a national ocean governance frameworks Joint Development Area/Zone with Venezuela’. In (taking into account policy, legislative and 2009, the work involved ‘Conversion of Maritime institutional requirements). Coordinates’. In April 2011, a background paper Grenada Maritime Boundaries was submitted by • Ocean governance framework for the the Secretariat to the Government of Grenada. In Eastern Caribbean region, Rodney Bay, February 2012, the Secretariat received a request Saint Lucia, 8–9 February 2012. The primary for technical assistance in a number of areas: objective was to establish consensus among 54 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
OECS member countries on how to develop possibility of seabed minerals, such as rare earth an ocean governance framework for the metals, and potential oil and gas deposits. Eastern Caribbean region. The workshop A recent World Bank report18 identified five key succeeded in defining steps to be taken for strategies that would enable and sustain the the development of a harmonised regional Caribbean’s transition to a blue economy: governance framework. 1. Measure both the region’s ocean economy • Secretariat/OECS Oceans Governance Team and natural capital; Maritime Boundaries Working Session, Bay Gardens Resort, Saint Lucia, 4–6 2. Manage the Caribbean ocean space in a more February 2014. Working sessions redefined integrated manner; steps to begin the commencement of 3. Invest in sustainable growth and key boundary negotiations. public goods; • UN Oceans Conference, New York, 5–9 4. Monitor the transition over time; and June 2017 with participation by Grenada and a speech by Prime Minister Mitchell on the 5. Repeat steps 1–5 adapting based challenges facing small states; Secretariat on experience. side event: Our Oceans, Our Future: The Government of Grenada, in March 2015, Partnering for the Implementation of SDG requested technical assistance from the Secretariat 14; high-level panel to discuss successes in the areas of climate finance and blue growth. The and hurdles to date in blue economy Secretariat’s support to Grenada’s Global Oceans implementation, with a view to developing Action Network endeavours to promote an ocean guiding principles in the form of a Blue based-economy was to assist specifically with the Commonwealth Charter. It is anticipated that development and implementation of the Blue agreement concerning the implementation Economy Master Plan, similar to the approach the of SDG 14 and blue economy development Secretariat is taking with other member countries in will support national implementation and the development of blue growth frameworks. This provide relevant direction for the provision of was to involve scoping the issues to be addressed in ocean-related advice and support to coastal such a master plan; assisting with stakeholder member countries. consultation; undertaking specific technical studies 2.5.4 Natural Resource Management to evaluate the feasibility of certain sectors in Grenada; and formulation of the draft Master Plan. The Government of Grenada has committed the In 2017, the Secretariat engaged with the country in partnership under the SDGs to government on the development of legal, fiscal ‘Supporting Grenada’s national transformation to and regulatory framework for petroleum a Blue Economy Ocean State and development of development, including on policy/strategy; acreage a National Blue Economy and Oceans promotion and competitive bidding; revenue Governance Institute’. Under this initiative, management; legislative frameworks; negotiations parties have joined forces to encourage the and dispute resolutions; environmental protection; sustainable use of the marine system, with the and capacity-building/training. intention of increasing productivity, ensuring coastal people’s livelihoods that are threatened The evaluation team was unable to meet any of the by climate change and identifying practices that stakeholders in Grenada to assess the status of propel the sustainable use of coastal and engagement on the Blue Economy Master Plan and marine resources. the development of legal, fiscal and regulatory framework for petroleum development. Grenada has identified the unique elements of its competitiveness in the blue economy. These are the country’s marine tourism potential, its EU fish
Export Licence, the unique genetic biodiversity of 19 World Bank (2016) Towards a Blue Economy: A Promise for the hemisphere’s largest submarine volcano, the Sustainable Growth in the Caribbean. Findings \ 55
2.6 Small States: Resilience Profiling Strengthened Resilience of Small States and Vulnerable States
No. Result Indicators Grenada 6.1 International policies, mecha- # of targeted international conferences that acknowl- No nisms and rules are more edge the sustainable development needs of small states responsive to small states’ % of small states that effectively participate in targeted Yes development strategies and international processes related to their sustainable resilience needs development needs 6.2 Small states enabled to effec- % of small states constructively engaging with trade for No tively participate in international a and human rights mechanisms in Geneva via the Small decision-making processes States Office # of small states engaging effectively with the UN No General Assembly and other forums in New York via the Small States Office 6.3 Improved climate financing # of Commonwealth member countries that report No frameworks improved access to climate finance arising from Com- monwealth-influenced tools or policies
Context The Secretariat in a 2014 report noted that small states’ ability to effectively withstand and bounce The Caribbean Island states, like many small island back from external shocks depended on the extent states in the Commonwealth, face environmental to which they employed policies conducive to challenges that directly affect their economies. macro-economic stability, market efficiency, good According to the Association of Caribbean States, environmental management and political ‘given the impact that disasters have on regional governance, and social cohesion in national plans economies, and notwithstanding the underlying and strategies.20 The report noted that the complexities, political and social, one thing is certain: approach of profiling vulnerability and resilience to the countries of the Greater Caribbean must build articulate country-specific policies had been well their capacities as well as resilience in order to adapt received by the international community. Other to the threats of natural hazards. Vulnerability institutions such as the UN have been exploring encompasses an assortment of theories and features vulnerability and resilience, prompted by the calls comprising sensitivity or predisposition to harm and from small island developing states. Since the lack of capacity to cope and adapt. It is no surprise Secretariat’s seminal work in developing the then that the countries of the Greater Caribbean are, resilience framework, the importance of by and large, prone to natural disasters of great governance – that is, the role of institutions, magnitude, given their location and systems and rules – previously acknowledged but geomorphology.’19 not effectively captured, has been brought into As 31 of the world’s small states are sharp focus. Commonwealth members, the Secretariat is The Secretariat’s efforts prioritise understanding, committed to ensuring international attention is addressing and advocating on the vulnerability of paid to the special development challenges they the most affected member countries. Resilience face. Over the past four decades, the institution has profiling is one of the key initiatives rolled out in the made considerable progress in advancing Pacific Papua( New Guinea, Tonga, Samoa, Solomon international awareness of the vulnerabilities of Islands) and the Caribbean (Barbados, Grenada, these countries and thus the challenges they face. Jamaica, Saint Lucia) island member countries.
20 http://www.acs-aec.org/index.php?q=disaster-risk- 21 Commonwealth Secretariat (2014) Building the Resilience reduction/reducing-vulnerability-in-the-greater-caribbean of Small States: A Revised Framework. 56 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Commonwealth Secretariat’s support • Resilience profiling conducted for Grenada; • Stakeholder consultations on resilience-building, 23–24 February 2015, St George’s, Grenada; • Workshop on Building Resilience through Governance, 24 July 2015, St George’s, Grenada; • Participated in Third Global Biennial Conference on Small States, 26–27 March 2014, Saint Lucia.
Figure 10. Small States direct programme expenditure, 2013/14–2016/17
£1,400
£1,200
£1,000
£800
£600
£400
£200
£- FY 2013/14 FY 2014/15 FY 2015/16 FY 2016/17 CFTC £- £876 £1,240 £-
In 2010, the Secretariat published the Economic interactions to solve societal problems and to create Vulnerability/Resilience Framework second revision, societal solutions. Governance plays an underpinning with the addition of a Vulnerability Index (indicators role in resilience but the distinctive nature of small for the Framework were developed by the states is often not fully considered in studies on Secretariat and the University of Malta). In 2014, as governance to date. Challenges for small states in the part of a third revision, the Commonwealth area of governance include limited capacities and the Technical Working Group was formed, consisting of underdevelopment of institutions, which is economic, social, environmental and governance exacerbated through the significant role of informal experts from all the small states regions, to identify networks.’21 gaps and areas of improvement. One gap identified Governance issues identified include the problems was the exclusion of governance and the role of that small size creates with public administration, different institutions and their interactions as an the most important of which is probably the small underpinning factor in building resilience. Therefore, human resource base from which to draw the institutional dynamic was seen as an important experienced and efficient administrators. Another aspect in building resilience. issue is that many government functions tend to be The Commonwealth Third Global Biennial very expensive per capita when the population is Conference on Small States in March 2014 small, because certain expenses are not divisible in attended by 31 small states in Saint Lucia proportion to the number of users. emphasised the conceptual underpinnings of In September 2014, the Secretariat developed a vulnerability and resilience and the use of resilience Governability Assessment Framework in the Context profiling to drive progress towards greater of Resilience Building in Small States. This proposes resilience. The meeting noted that country profiling an assessment that incorporates the special could identify resilience gaps and inform national characteristics of a country’s socio-economic strategies to guide change in a results-oriented way. Addressing the governance structure for building resilience, participants recognised ‘governance as being the whole of public and private 22 Outcome Statement, p. 1. Findings \ 57
setting, as well as the prevailing governance system. Effectiveness In this context, governance needs to be understood Based on the profiling report, some of the major as being a function of both the system it seeks to highlights from the Caribbean profiling govern and the governing system that incorporates exercise were: all the different actors. This is best described by the term ‘governability’, which can be defined as ‘the (i) Countries were able to identify a focal person capacity to govern’. to provide support and facilitate processes; Grenada was one of the Caribbean countries that (ii) Countries were eager to have a participated in the resilience profiling based on comprehensive vulnerability/resilience the Governability Assessment Framework. The framework to be tailored for each country primary objective of the exercise was to enable context and contain practical propositions to assessment of the quality of governance for building resilience; building resilience in the broad areas and, as a (iii) There was strong political will and buy-in result, clarify the governance status of the demonstrated at consultations by participants profiled states. This made it possible to highlight to positively to contribute to change in their gaps in the governance of all aspects of the respective sectors and countries as a whole; Resilience Framework. Identified gaps were and examined and the aim was to develop governance policy proposals to enhance resilience in Grenada. (iv) The consultations demonstrated common Key public, private and civil society stakeholders problems and recommendations across the were given the opportunity to inform the process Caribbean region which would benefit the and take the assessment beyond an analysis of just region as a whole. data. A resilience assessment questionnaire (v) It was recommended that greater attention (144-page Codebook) on institutional interactions be paid to the pre-planning process of was used to inform the consultations. consultations and more advanced notice Relevance given to governments and individuals. The profiling was conducted and a validation Some of the challenges identified in the profiling workshop was held to discuss the findings; however, exercise were as follows: the final report was not produced to support the • The codebook at 144 pages is very long and country in developing governance policy proposals the use of it over two-day workshops is time- as intended. Much as Grenada welcomed the consuming; this might not have been the best resilience profiling, as shown by its participation in way to collect the information. the exercise, the expected outcome of the exercise has not been realised to benefit the • Provision of information by all stakeholders country. No stakeholder was available at the time of of varying seniority led to questions over the the evaluation to respond on the relevance of legitimacy of the findings contained in the the exercise. draft reports. Efficiency • The feedback request allowed only two weeks for feedback from countries, which Delivery of the profiling exercise was conducted was later deemed too short a time and with support of a consultant and academics. unrealistic. Feedback and peer reviews are Profiling for the selected countries in the Caribbean long processes. was conducted within the same period, therefore reducing the travel costs for staff and consultants • Member countries took a negative view that were attributable to each country. Direct costs of the use of a vulnerability index that incurred totalled £2,116. A total of 51 government ranked the countries/departments. A officials, private sector representatives and civil more effective method of communicating society actors participated in the exercise in two findings might have been action points workshops. The evaluation confirmed that the the countries could adopt in order to Secretariat funded all costs, including the venue and progress. Political sensitivities need to be participant costs. handled correctly. 58 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Table 18. Programme performance
Output Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome Theory of Resilience govern- Member country National reforms on Implementation of change ability assessment engages with the resilience govern- national reforms report produced information and data to ance planned reflective of resil- plan for reform as well as ience governance advocate for resources needs of Grenada Progress to Resilience govern- Not assessed Not assessed Not assessed date ability assessment report not produced and no forward plans for its conclusion Progress Rating Comments Overall project in all the selected countries was not completed and has been abandoned with no clear forward plans for completion.
The profiling was conducted in 2015. At the time of the that the Governance Team within the Secretariat evaluation (February 2018), a final report had not yet was not consulted in the development and been produced and there were no plans in the Delivery delivery of the framework in the member Plan of the Secretariat to conclude this exercise. The countries. This echoes a challenge already evaluation noted that the lead technical expert who identified in the Secretariat of teams working in had initiated this programme was no longer with the silos. The cross-cutting nature of the framework Secretariat. Strategic direction for completion of this and the information that can be collected means activity is missing in the transition from one Strategic that it would be useful far beyond the conceived Plan to the next, across the entire region. needs of the project. Based on review and analysis of documents and input It is recommended this framework be reviewed from the Secretariat and Grenada, the framework in light of a Secretariat-wide framework and represents an excellent opportunity for assessing its use rethought within the broader cross- and reflection on the governability of resilience in a divisional scoping and multi-disciplinary member country. If it were completed, the outcome country analysis, to provide the member of this exercise would provide the member country country and the Secretariat with baseline and the Secretariat with key information useful for information and a basis for measuring reform and advocacy. An opportunity also exists to progress. It should also be considered take forward this work in partnership with the UN for priority technical assistance in the Department of Economic and Social Affairs, which is Secretariat’s engagement with the member also working in this area on their own vulnerability/ country – a process that would facilitate as resilience framework that is similar to that of the well as enhance meaningful Secretariat and Secretariat, and they hold more resources. member country cooperation. Sustainability The transition from one Strategic Plan to The governability framework, if effectively another should have clear consideration for implemented and delivered, has the potential to on-going projects and the implication for anchor the Secretariat’s programmes beyond stopping any on-going project in a member their resilience needs. It is, however, of concern country. Synthesis \ 59
3. Synthesis
This section provides a synthesis based on the picture. There was clarity on the part of OECD-DAC criteria of relevance, efficiency, Grenada on the national strategy and effectiveness, impact and sustainability. Based on priorities and the gaps the Secretariat these and challenges encountered, some lessons needed to fill. The evaluation revealed the are drawn to summarise this section. interconnectedness of the Secretariat’s support that was achieved without prior 3.1 Relevance coherent planning. The Secretariat’s support to Grenada is in direct • Depth of interventions: Unlike in some of response to requests received as well as to the similar evaluations, there was depth in Grenada’s agreement to participate in its initiatives. the Secretariat’s engagement in Grenada. In this regard, the evaluation assumes that all This relates to the longer-term commitment programmes delivered were relevant. Grenada was on specific areas with the support of very proactive in identifying its national needs and technical experts. Notable areas include debt engaging with the Secretariat in meeting those management (existence and support to the needs. The evaluation noted the following aspects: system); legislative drafting; anti-corruption (consistent meetings and structured capacity- • Linkage to national priorities: Technical building, with a regional capacity-building hub assistance provided by the Secretariat on being established in Grenada); and export legislative drafting and national planning promotion (development of two sets of was directly linked to a whole of government export strategies and now clear commitment priority on the SAP. The Secretariat’s input in strategy implementation). was timely and Grenada was resourceful in using the technical assistance provided, • Limited use of a Secretariat-led initiative: including reviewing the TORs for the experts The Secretariat failed to deliver a report on to address the most urgent national priorities. resilience governability profiling following This is also reflected in the development of extensive consultations with stakeholders the NES, a key priority for the economy. and validation of findings. The resources used and time taken to engage on this exercise • De-prioritisation of youth: Youth without an output questions its relevance programming was considered a core priority to a small country that could have benefited by Grenada and the Secretariat a lead player. from the product, particularly as a supply-led However, ever since the closure of the initiative: with no internal momentum, owing CYP Regional Centre, the Secretariat’s to staff turnover at the Secretariat, it was not engagement with Grenada has been concluded and there are no plans within the limited, with a particularly very big gap Secretariat to take it forward. in supporting capacity development and youth participation. Stakeholders noted that Grenada’s engagement and participation in 3.2 Efficiency and value for money Commonwealth youth-related programming Overall, Grenada contributed a total of £240,012 such as Ministerial Meetings had lost to CFTC, COMSEC and CYP funds and direct momentum and representation was no programme expenditure to Grenada was £796,742. longer prioritised. Grenada benefited more than it contributed to the CFTC and less on COMSEC and CYP funds, as • Lack of a national picture: The emerging shown in Figure 11. picture shows that the Secretariat’s support was concentrated more in Public Institutions These figures do not include regional and Pan- and Economic Development. Much of the Commonwealth programmes from which Grenada support seems to have been fragmented, would have benefited. COMSEC expenditure is uncoordinated and without a holistic national particularly low, as most of the funds are used 60 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Figure 11. Total income and expenditure by fund
£300,000
£250,000
£200,000
£150,000
£100,000
£50,000
£- CFTC COMSECCYP Income £72,397 £1,31,525 £31,320 Expenditure £2,53,704 £29,317 £5,263
for running the organisation and less for direct costs as it includes dedicated salary and gratuity programme delivery. In the Secretariat’s overall commitment for the experts during the agreed expenditure, COMSEC funding is used for contract period. convening meetings such as Ministerial Meetings On total expenditure, 82 per cent (£650,165) and CHOGM, in all of which Grenada participated. was incurred in Public Institutions. Of this total, As the cost is not disaggregated, except where £508,459 represented CFTC expert costs. The there was direct support with travel cost or cost for regionally based CFTC experts who made technical input, the unit cost for each country could contributions to Grenada is not represented at the not be determined. national level, therefore is not included. Figure 13 Expenditure was concentrated in FY2014/15 shows there was no direct expenditure on Social and FY2015/16 reflective of the presence of Development. Expenditure incurred on health is long-term CFTC experts in Grenada as shown in also reflected at the regional level, as support was Figure 12. The cost of short- and long-term CFTC regional as opposed to national. The second largest experts is higher than other programme delivery expenditure (£114, 268, 14 per cent) is in Economic
Figure 12. Total income and direct expenditure
£400,000
£350,000
£300,000
£250,000
£200,000
£150,000
£100,000
£50,000
£- FY 2013/14 FY 2014/15 FY 2015/16FY 2016/17 Income £63,487 £60,109 £41,911 £74,505 Expenditure £1,03,398 £2,89,451 £3,34,506 £69,387 Synthesis \ 61
Figure 13. Total expenditure by programme
Small States
Economic Development
Youth
Social Development
Public Institutions
Democracy
£- £100,000 £200,000 £300,000 £400,000 £500,000 £600,000 £700,000
Public Social Economic Democracy Youth Small States Institutions Development Development Total expenditure £24,931 £6,50,165 £- £5,263 £1,14,268 £2,116
Development. Of this total, £98,597 relates to TOC was recreated and used to assess progress on development of the NES. the translation of outputs to outcomes. Details on progress can be found in the respective sections in Overall, there was a high concentration of Chapter 2: Findings. As indicated in the tables below, CFTC experts in comparison with other of the ten sets of outputs assessed, only one was countries evaluated so far. This relates to not delivered. Progress directly attributable to the Grenada’s awareness of technical assistance Secretariat is most notable in oceans governance support and the proactive nature of Grenada in (Economic Development). Other areas with steady requesting it. progress include elections and trade (Democracy and Economic Development). Public Institutions 3.3 Effectiveness and Social Development see good progress but Programme effectiveness is assessed with regard the Secretariat’s contribution is limited. There is no to progress from delivery of output to outcomes. A progress in Youth and Small States.
Democracy
No. Output(s) Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome 1. Pre-election observation National engagement and National action plan Improvement missions conducted consultation on election on implementation in electoral observation report of election processes Election observation mission recommendations conducted National action plan drawn implemented on implementation on Follow-up of election election recommendations recommendations Grenada participates in the CEN Biennial Conference and JEP Programme 62 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Public Institutions
No Output(s) Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome 1. UPR and treaty body Timely reporting of National reforms started Accreditation reporting supported Grenada on UPR and treaty following passing of Bill process Support provided for the bodies Legislation developed complete establishment of NHRI Model agreed for and passed by Parliament; and Grenada achieves Support provided to establishment of NHRI Strategic Plan developed to A status in conducting a national 7 Amendment Bills passed facilitate implementation of accreditation referendum in referendum Paris Principles process Follow-up on UPR and treaty body recommendations conducted
2. Legislation drafted in Stakeholders engage with Legislation passed by Legislation response to national needs legislation drafted Parliament implemented National legislative capacity Legislative drafting Increased capacity for and supports developed resource materials utilised legislative drafting within national reforms Legislative manuals by Drafting Unit Drafting Unit developed and delivered
3. Development of NSDP 2030 National Steering NSDP drafted NSDP 2030 supported Committee for NSDP Stakeholders engaged on approved Establishment of Steering established draft NSDP Committee for development Technical Working Group of NSDP facilitated on NSDP established Stakeholder consultations Stakeholders engaged in facilitated development of NSDP Development of Technical Working Group on NSDP facilitated
4. RBM processes established Ministries and Corporate Plans developed Corporate Capacity of staff in RBM departments lead on and approved plans developed development of Corporate Cabinet Secretariat’s implemented Plans Planning and reporting capacity strengthened to frameworks developed Cabinet staff applying skills provide guidance on planning and knowledge on RBM and RBM Framework for Corporate Plans developed Planning and reporting Planning and reporting frameworks approved by frameworks utilised by Development of Corporate Cabinet the various ministries and Plans supported departments Synthesis \ 63
No Output(s) Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome 5. Cooperation between MoU for collaboration Regional Training Centre Improved Caribbean anti-corruption and establishment of the operational, self-sustainable Integrity agencies facilitated Regional Training Centre and delivering support to Commission Regional Anti-Corruption signed anti-corruption agencies oversight of Training Centre established Grenada participates Integrity Commission with anti-corruption agenda and Capacity of Integrity in regional knowledge- well-developed strategies for reduction Commission of Grenada sharing and exchange combatting corruption in risks of strengthened Strengthened leadership Integrity Commission with corruption in skills within Integrity enhanced capacity and skills Anti-Corruption Regional public sector Conference hosted by Commission to steer anti- to deliver effective anti- Grenada corruption agenda corruption services
Social Development
No Output(s) Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome 1. Regional meeting on National Stakeholders in Grenada Grenada’s NCD Grenada’s NCD NCD Commissions held with engaged with Framework Commission Commission participation from Grenada strengthened effectively Information from Framework responding to Framework for Establishment of informs Grenada’s National national NCD and Strengthening of National Chronic NCD Commission agenda NCD Commissions established National NCD Portal utilised National NCD Commissions web for information-sharing and portal established learning from the region
Youth
No Output(s) Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome 1. Caribbean Regional Workshop National Youth Policy National Youth Policy National on Youth Policies conducted that is evidence-based approved by Cabinet Youth Policy developed implemented Technical Meeting Improved collection of youth- on Enhancing Youth Increased engagement related national data for Development Statistics in the on identification and youth policy implementation Caribbean closing of gaps in and contribution to regional national statistics on statistical requirements Regional Ministerial Meetings youth development for YDI facilitated 64 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Economic Development
No Output(s) Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome 1. Review of previous NES conducted Stakeholders engaged Implementation Grenada NES in development of NES plan and 2017–2021 Strategic options for export structures for NES implemented development produced NES developed developed and Technical support provided in NES approved and financed development of NES 2017–2021 launched
2. Public Debt Management Act drafted Stakeholders engaged Act passed in Act on Act Parliament implemented E-learning courses on domestic debt management, external Skills and knowledge Real-time National debt management concepts and gained utilised in debt responsive debt frameworks CS-DRMS to manage external debt management management data facilitate developed and delivered and information effective debt Debt management produced by debt management Two regional training workshops on system effectively management public debt management concepts utilised to manage system and and CS-DRMS v2 delivered public debt used to inform Latest version CS-DRMS (v2) decision-making installed
Small States
No Output(s) Short-term Short-term Intermediate Outcome 1 Outcome 2 Outcome 1. Resilience Member country engages National reforms Implementation of governability with the information and data on resilience national reforms reflective assessment report to plan for reform as well as governance of resilience governance produced advocate for resources planned needs of Grenada
3.4 Impact anticipated looking beyond the Strategic Plan period being evaluated to identify signs of impact The Secretariat’s understanding of ‘impact’ needs from previous programmes. However, it highlighted to be understood within the context of the ‘Impact a few impact areas of the Secretariat’s support to Pathway’ versus the mainstream impact that Grenada as indicated below. Additional information pertains to the changes in citizens’ lives. Considering on the impact is documented in Chapter 2: Findings. the level of resource input as well as the Secretariat’s support was limited to national institutional support • Debt management: The Secretariat with no direct engagement with citizens, the supported the Government of Grenada in impact is defined in relation to this context. Table 19 drafting the Public Debt Management Act presents the four result categories with what is 2015 through the resident CFTC expert considered as impact for the Secretariat. in the Office of the Attorney General. The The depth of programming in Grenada over Act was passed and is now implemented the years could not be holistically established, through the Medium-term Debt Strategy. owing to the poor knowledge management This is part of the IMF Home-grown SAP, system within the organisation. The evaluation which saw strong ownership at the national Synthesis \ 65
Table 19. The Secretariat’s definition of impact
Result area Consensus-building, Thought Policy and Institutional Networking, Leadership and Advocacy Legislative Development Knowledge Development and Capacity- Generation building and Sharing What is Consideration/uptake of Policy Improvement Improvement considered policy position/strategies; implementation in institutional in institutional impact Implementation of action plans processes processes
level that included a wide array of measures from EC$10,000 in 2002 to the current EC$30 including debt relief; the Medium-term million. A Youth Strategic Action Plan and Debt Strategy; establishment of a Fiscal Implementation Strategy were developed Responsibility Oversight Committee; and new that have clear roles and responsibilities for legislation, for example the above act and the different line ministries. There is also an the Fiscal Responsibility Act No. 29 of 2015, Inter-Ministerial Focal Group for Youth Policy among others. that meets quarterly to discuss progress on implementation of the Plan. The Policy was • Public procurement: The Secretariat (CFTC in implementation until 2015 when successor Expert - Senior Commercial Counsel in the policy development was commissioned. Attorney General’s Office) supported the drafting of the Public Procurement Act, as part of the Fiscal Adjustment and Reforms 3.5 Sustainability Programme, and was also instrumental Technical assistance: The programmes in the development of new procurement delivered as part of technical assistance had clear framework, including capacity-building. The sustainability planning built in and discussions with Act was passed in August 2014 and the the member country on transition following the end supporting regulations in September 2015. of the technical assistance. There was evidence Implementation of the Act started in 2016. of monitoring mission reports that addressed Major institutions were established as part of issues of sustainability. However, there was also implementing the Act: Public Procurement evidence that, despite efforts to ensure there was Board appointed and functional; Review capacity in place, particularly for legislative drafting, Commission established and functional; which received the most experts, the Grenadian Procurement Secretariat established and Legislative Drafting Unit seems to have returned already staffed, supporting the operations to the condition and form that existed prior to of the Board; Procurement Units to be Secretariat support. This is primarily because law established in all ministries. At the end of graduates do not see legislative drafting as an the evaluation, four ministries had made attractive career option. There are huge issues with good progress in the establishment of the recruitment and retaining of drafters in Grenada procurement units in line with the Act and the region as a whole and this will require (Finance, Works, Health and Education). systemic solutions in the future. • National Youth Policy: The CYP Regional Youth programme: Capacity developed through Centre was praised for its extensive advocacy the CYP at regional level has been evident in for the development of national youth policies. Grenada, with key positions in ministries and In 2004, the CYP Regional Centre provided political leadership held by alumni. The diploma in technical support in the development of Youth Development Work programme, which has the first National Youth Policy. This was been transitioned to UWI, is still operational and commended for shaping youth development graduating candidates. However, closure of the CYP in Grenada and increasing government Regional Centre in Guyana significantly affected awareness of the importance of youth the continuation of youth programming in Grenada, development. This is reflected in the increased as noted by its limited progress on national annual budget allocation to youth development youth representation. 66 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Debt management system: The CS-DRMS is a the benefit of working together in a concerted sustainable system that was adopted by Grenada manner to achieve sustainable results. In the and is still in operation with all the various upgrades. case in point, the experts in the team engaged in the delivery were experts not in governance but in resilience and therefore their interface on 3.6 Lessons learnt governance issues as a whole was challenged. Recruitment of CFTC experts within the region A key lesson is that expertise from across the not only had the benefit of local context knowledge different Directorates and Divisions needs to be but also made it possible to retain experts in the drawn together to deliver on programmes for member country or the region to continue providing the Secretariat. valuable technical capacity. An example is the The Secretariat profile in programme delivery retention of the CFTC Expert as the Permanent is limited at activity level to press releases on Secretary in the Office of the Prime Minister. high-visibility engagements such as programme Expert-led Secretariat initiatives tend to launches and the Secretary-General’s visit to lose momentum when the expert leaves the member country as opposed to the holistic the organisation and there is no handover or programming being delivered in the member organisational direction to complete the work country and the change the Secretariat intends started. The governance resilience framework lost to contribute to. This realisation implies the the lead expert within the Secretariat and came to Secretariat’s visibility is experienced on a case- a halt. All initiatives, both innovative and on-going by-case basis and the member country does not programmes, need to be grounded and owned by have the complete picture of its work. Secretariat the Secretariat but not dependent on the technical engagement needs to address longer-term change expert delivering them. in a holistic manner and should be consistently communicated to the member country leadership Inter-Divisional coordination opportunities and development partners. were missed during the development and implementation of the resilience governability Stakeholders consultations on the closure of the framework in the small states. The Governance Regional Youth Centre should have been more Team was not consulted on a governance project extensive and a transition programme or national that was being delivered by another technical options to keep momentum of progress at the time Division. Ownership of initiatives seems to override considered. Recommendations \ 67
4. Recommendations
4.1 Programme challenges and really feature’ and the head of the Grenadian NCD Commission was aware of the Secretariat’s recommendations involvement only because ‘their name was on Youth – closure of the Regional Youth Centre the Framework’. and impact on youth programme: The CYP The Secretariat needs to develop partnership Regional Centre in Guyana was the hub for youth at a strategic level, with the Ministry of Health development in the Caribbean and the Secretariat in Grenada and implementing partners, to raise was the only key development player in youth the profile of its engagement. development, as noted by stakeholders. As such, its closure had a direct effect on the delivery of Small States – resilience governability framework: the capacity development programmes, affecting Implementation of the resilience governability youth participation. The process adopted for the framework did not occur. Challenges included closure was not consultative, affecting Grenada’s its conception as a framework for assessment confidence in the future of the CYP. Options for the and its use within the member country and the region to consider continuation of the programme Secretariat; misgivings on how it would be viewed were not explored. The current approach to youth and utilised, for example for political purposes development has not yet taken root and gained the rather than for the purpose for which it was confidence of Grenada. Stakeholders also noted developed; lack of coordination with experts that Grenada’s engagement and participation within the Secretariat in charge of governance for in Commonwealth youth-related programmes technical input; and lack of strategic direction and such as Ministerial Meetings had lost momentum budget for continuation. With out-dated data but and representation was no longer prioritised. an excellent framework that can be utilised within Stakeholders felt that more needed to be done to other contexts, this initiative needs to be brought build partnerships and programming interventions back to focus. to reignite efforts in this area and launch youth It is recommended this framework be reviewed development on a sustainable course. in light of a Secretariat-wide framework and The Secretariat needs to conduct a its use rethought within the broader cross- comprehensive assessment of the impact of divisional scoping and multi-disciplinary country the closure of the Regional Youth Centre on analysis, to provide the member country and national youth programming. the Secretariat with baseline information for measuring progress. It should also be The Secretariat’s Youth Team needs to establish considered for priority technical assistance a closer working relationship with Grenada and in the Secretariat’s engagement with the build confidence in the current direction of country, a process that would facilitate as well as the CYP. enhance meaningful Secretariat and member Health – development of National NCD country cooperation. Commissions. The Secretariat was recognised as an important player in the three specific and 4.2 Institutional challenges and central activities. However, beyond the stakeholders involved, its influence was limited. Two important recommendations strategic areas that would have raised its profile Transition in the Strategic Plans: Outputs not would have been the development of more high- concluded in one Strategic Plan have not been profile strategic partnerships combined with efforts planned for effectively in the next Strategic Plan to enhance Secretariat visibility within the region. period. The resilience governability framework Stakeholders reported little knowledge of the development was one of these; it started in the Secretariat’s involvement, thus more could be done strategic period 2013/14-2016/17 but was not to enhance its visibility. One Grenadian government budgeted for or included in the Delivery Plan for stakeholder stated that the Secretariat ‘doesn’t the next Strategic Plan period. Even if other factors 68 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
contributed to failure to deliver the output, budget update progress on implementation, as well as was one significant aspect. to draw attention to gaps and successes. The transition from one Strategic Plan to Technical assistance: The recruitment of technical another should entail clear consideration experts does not include interviews or the of on-going projects and the implications opportunity for the member country to engage with of stopping any such projects in a potential candidates to ascertain best fit for the member country. role and for the country context. As a result, some challenges were experienced in Grenada that led Strategic direction in programme delivery needs to the termination of contracts. This could have to be strengthened. Interpretation of the Strategic been avoided had there been more rigour in the Plan is dependent on the technical expertise recruitment process. on board at the time of delivery and not on the organisational vision and strategy to address The recruitment process of CFTC experts the key challenges in the Commonwealth. The should be broadened so that member countries Secretariat’s delivery is dependent on member hosting a technical expert are given the country requests and the technical expertise of opportunity to engage with the candidates staff in post. Technical staff have the ability to steer under consideration for the assignment, for initiatives towards their unique expertise, whereas more informed decision on the candidate the Secretariat as an institution is slower to embed beyond the profile and curriculum vitae. the initiative into the organisation to ensure there International relations versus national coordination: is strategic-level leadership independent of the Similar to findings in other country evaluations, the technical staff. The dependence on technical staff Secretariat’s programme coordination is anchored expertise with no clear organisational strategic within the ministry in-charge of international relations direction on taking forward such initiatives means as opposed to national planning and coordination the work, however excellent it is, stops once the mechanisms. It is important for the Secretariat to technical expert leaves the Secretariat. expand its engagement to directly coordinate its All programmes delivered need to be grounded programme delivery with the latter mechanisms within the Secretariat’s strategic vision so as not to duplicate efforts and to ensure the for the Commonwealth so as to ensure all Secretariat’s input is effectively reflected in national initiatives started are owned by the Directorate planning and reporting. and delivered irrespective of existing The Secretariat’s programme delivery in a staffing capacity. member country needs to be coordinated both Country focus in programme planning at the diplomatic level (ministry in-charge of and delivery: The evaluation uncovered an international affairs) and at the programmatic interconnectedness of the Secretariat’s support level (ministry in-charge of national planning and that was achieved without prior coherent planning. coordination) to ensure its input is responsive Much as the Secretariat’s support seemed and reflective of national priorities as well as fragmented, uncoordinated and without a holistic highlighted in national reports. national picture, despite clarity on the part of Follow-up, monitoring and evaluation: Similar Grenada on the national strategy and priorities and to findings in other country evaluations, except in the gaps that the Secretariat needed to fill. the case of expert placements in Grenada, where A country focus needs to be inbuilt in there was monitoring and evaluation, there has programming at the strategic level (such as in been limited follow-up and lack of monitoring the Delivery Plan) and a national programme and evaluation on programming. Follow-up delivery approach or strategy needs to be on implementation is evident only in on-going established that is linked to the priority needs of activities where both the Secretariat and Grenada the member country. This should be reflected are keen to progress. in the depth of programme delivery and Country-level data/information collection as engagement in the selected areas. part of monitoring and evaluation needs to be A country-designated focal point needs to be embedded in all field missions and information established within the Secretariat to map out from Back to Office Reports compiled in a all engagements with the member country and central country database. Annex 1: Terms of Reference \ 69
Annex 1: Terms of Reference Evaluation of the Commonwealth Secretariat’s support to Grenada 2013/14–2016/17
1. Introduction • Guides policy and planning decisions by providing feedback on the performance The Commonwealth Secretariat is an and quality of the Secretariat’s portfolio of intergovernmental organisation established development and democracy work; in 1965 with 52 member countries across the • Provides an opportunity to identify and globe, bringing together 2.2 billion citizens. The disseminate organisational lessons to Organisation promotes democracy, rule of law, guide the future work of the Secretariat in human rights, good-governance, social and a particular country or region and generally economic development and is also a voice for small across its membership; states and youth empowerment. The Secretariat work is guided by its Charter that affirms the • Assess the contribution versus the benefits core commonwealth principles (of consensus and that individual member countries attain from common action, mutual respect, inclusiveness, the Secretariat’s service delivery. transparency, accountability, legitimacy, and responsiveness) and by its Strategic Plan. 2. Context In response to the evolving development context The Strategic Plan 2013/14 – 2016/17 evaluation and demands of member countries and other noted that the Secretariat should do more stakeholders, the Secretariat has adopted an ‘evaluative monitoring’ to reduce its reliance on increasingly results-oriented approach. Guided costlier external evaluation. As the Secretariat by the Strategic Plan and Evaluation Plan, a select matures in the monitoring function, it is anticipated number of independent evaluations and country that the evaluation function will endeavour to bridge evaluation are commissioned each financial year the outcome monitoring gap through evaluative to respond to member countries demands for monitoring. As outcomes take a long time to accountability as well as the Secretariat’s need for materialise, outcomes of projects implemented learning and organisational improvements. in the 2013/14-2016/17 strategic plan will only The overall aim of the Evaluation function is to be realised in the next strategic period (2017/18 – determine the relevance, efficiency, effectiveness, 2020/21). impact and sustainability of a programme, policy, Building on the Secretariat’s ‘Impact Pathway’ or project so as to incorporate lessons learned into approach to results based planning, monitoring and the decision-making process. As such it requires evaluation, an evaluation framework that applies gathering, analysing, interpreting and collating qualitative evaluative monitoring methodologies information. To be effective, evaluations must be such as outcome mapping, outcome harvesting well designed, meet accepted standards for data and case studies will be applied. gathering, quality and analysis and be well managed. Country-focused evaluative monitoring will take a The Secretariat’s Country Evaluations are designed holistic approach to the Secretariat’s engagement to fulfil a number of functions: in the selected country in assessing outcomes • It is an instrument of accountability to and impact. These studies will be conducted member governments, providing an internally by the Strategy, Portfolio and Partnerships assessment of effectiveness, relevance, Division’s Evaluation Team increasing the scope and impact and sustainability in delivering results reach of the study over the strategic plan period. of Secretariat’s projects, programmes and The selection criteria used for the countries to be special activities in member countries; evaluated include: 70 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
a) An adequate geographic balance of nations; 4. Approach and Methodology b) No previous country evaluation conducted; One of the primary focus of the Country Evaluations is to assess if there has been any outcomes or c) The size (number and value) of activities impact that can be attributed to the contribution supported by the Secretariat; of the Secretariat to the member state. It is very d) A balance between small nations and others; difficult to assess the contribution of the Secretariat in the midst of different development players, and e) A balance between varying levels in some cases where the Secretariat’s contribution of development; has been limited. In that regard, a mix of qualitative methodologies will be used to try an ascertain the 3. Purpose and Scope of changes that have occurred and evidence their links Assignment to the Secretariat. Some of the methodologies that will be used include the Secretariat’s developed The Country Evaluation is an internal evaluation led ‘Impact Pathway’, outcome harvesting, outcome by Strategy, Portfolio and Partnership Division. The mapping and case studies. purpose of Country Evaluations is to assess the Based on the above evaluation methodologies relevance, effectiveness, impact and sustainability informing the questions and tools development, of the Secretariat’s support to the target member the Evaluation Team will include the following state. The study will cover the four-year period key steps in the conduct of the evaluation for of the strategic plan 2013/14 – 2016/17 as the information collection, analysis and report writing common base for all country evaluations. However, during the study. depending on when the evaluation takes place, information collected should be up-to-date to • National country documentations, including the time of the study that will include the current strategy documents and reports available strategic plan period 2017/18 – 2021/22. The publically will be reviewed to provide context evaluation will provide an independent opinion and address the general evaluation questions; on the design, performance and results of all the • Desk review of all projects and interventions Secretariat’s programme in the targeted member delivered in the target country. Project state. It will also make recommendations from design documents with their monitoring both the strategic and operational perspectives to plans and results reports will reviewed. All optimise the utilisation of resources in achieving key documentations including Back to Office sustainable impact. Specifically, the evaluation will: Reports, research reports, progress reports • Review the extent to which the Secretariat from Consultancies etc. will be reviewed to support was relevant to the priorities of the address the specific evaluation questions; targeted member country, and consistent with • Focus group discussions and interviews will be intermediate outcomes of the Strategic Plan; held with project teams to better understand • Assess outcomes and impact achieved the programme theory, qualify/contextualise over the evaluation period and the level of the results documented and seek responses sustainability of the results; to specific questions that will emerge from the literature review; • Assess member state contribution to Secretariat’s funds and the benefits realised • Field visits will be conducted to the target over the review period and conduct a country to meet key stakeholders, boundary contribution-benefit analysis, assessing value partners, beneficiaries and others who for money for the member country; may have engaged with the interventions. These visits will allow the evaluation team • Review the delivery model of programmes in the to triangulate desk findings, verify results member state, including communication and information and collect raw data on the programme coordination in-country, highlighting evaluation questions in the evaluation lessons and areas for improvements; framework. Where possible, focus group • Identify issues, challenges and lessons learned discussions will be held with teams/ and make recommendations on the overall beneficiaries directly engaged with the Secretariat’s programming. Secretariat’s programmes; Annex 1: Terms of Reference \ 71
• Specific engagements will be conducted with Learning and Innovation. The study is to be national level monitoring and evaluation units, completed within three months from inception. planning and statistical units to aggregate Travel and Daily Subsistence Allowance expenses national information and also verify national related to country field visits will be covered by statistics and policy positions; the Country Evaluation budget in line with the Secretariat’s Travel Policy. In order to maximise access to key stakeholders, where possible, the timing for these studies will coincide with any country, regional or Pan- 7. Technical Requirements Commonwealth meetings or events taking place The Evaluation Team should demonstrate in the target country. Evaluation Teams, where the following: possible, can also hold side review meetings • Substantive knowledge and experience alongside these meetings/events. in undertaking reviews, evaluations and critical research; 5. Deliverables • Knowledge and experience of policy and • Inception report incorporating the programming matters as well as challenges revised Terms of Reference TOR and and issues in global and national development Country Evaluation Framework and data and democracy; collection tools; • Ability to handle and analyse big datasets, and • Evaluation Report: The report, following the conduct multi country reviews; desk review, interviews, survey and field work, • Excellent communication skills, both spoken will include all the findings, analysis, lessons and written English, including experience and recommendations. Case studies will be in the production of clear and concise used in the representation of the some of reports for international/inter-governmental the information; institutions, and delivery of messages to a • Impact Stories: These will be a core output of diversified audience; each of the field visit. They will be stand-alone • In-depth understanding of the work of the case studies where there is strong evidence of Commonwealth; and, impact. These will be published separately with photos where appropriate. The impact stories • Familiarity with SDGs and the international will be used to supplement progress reports governance architecture. and published for wider access; • Synthesis Studies Themes: Emerging themes 8. Evaluation Team Selection from completed country evaluations and Criteria impact stories will be identified for further To be selected to participate on the Country analysis and synthesis to provide a regional or Evaluation Team, the staff member should: Pan-Commonwealth picture; • Be objective and able to view the progress or • Dissemination seminar presenting lack of it from a learning perspective; and validating the evaluation findings and recommendations; • Be balanced, critical and able to independently lead and facilitate discussions with both • Evaluation summary report: A short internal and external stakeholders; document that highlights key findings and can be easily accessible and used for • Not be a part of the programme team decision making. for projects being evaluated in the targeted country; 6. Schedule and Level of Effort • Be able to engage with and represent the The study is planned to commence in June 2018. Secretariat at key meetings, present and It is estimated that at least a team of two staff will defend the evaluation findings to external and be involved led by a team member of Strategy, internal stakeholders; 72 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
9. Evaluation Team communication with internal and external stakeholders; Circulate data collection tools; The Country Evaluation Team is composed of Schedule interviews; Facilitate field visits the following: logistics; Support analysis and reporting; • Head of Evaluation and Learning – Team Participate and prepare minutes for meetings, Leader: Accountable for the overall evaluation including presentation of report and follow- study; Lead the evaluation study, including up meetings. preparation of evaluation tools, desk review, • Consultant: Conduct desk review; Conduct data/information collection, analysis and interviews and participate in field visits; reporting; Lead the team on the field visit; Facilitate focus group discussions as required; Lead the preparation and presentation of the Conduct analysis of data and information; evaluation report; Support preparation of evaluation report; • Programme Officer: Support desk Support presentation of the evaluation review; Support data collection; Support findings. Annex 2: Evaluation Framework \ 73
Annex 2: Evaluation Framework
Evaluation questions Context What has been the Secretariat’s engagement with the institution? What issues/ problem was being addressed by the Secretariat? Did the Secretariat fully understand the problem within the broader context? What was delivered by the Secretariat? When was this delivered? Relevance Were the activities and outputs of the programme responsive to the problem/ issue that were identified? Was the Secretariat support relevant to the priorities of the institution? Was this support consistent with intermediate outcomes of the Strategic Plan? Efficiency What was the delivery mechanism? How efficient was the delivery? Were costs economised without affecting the quality of delivery? Were issues of equity considered in the achievement of programme outcomes? Effectiveness Were the planned results of the programme achieved? What factors contributed to the achievement or non-achievement? Was the Secretariat responsive to the issues? How effectively have the outputs and outcomes been monitored? Impact What changes (positive and/or negative) have you seen? Can this change be directly attributed to the support provided by the Secretariat? Who are the other players contributing to this change? How has this change affected women and men differently if any? Or could the change potentially be experienced differently between men and women? Are there any unplanned changes that happened as a result? Sustainability Can these results be sustained over a long period? What needs to be put in place to ensure the programme is sustainable? Value added Could this programme have been delivered by another partner? What distinct value does the Commonwealth Secretariat add? Challenges What challenges were experienced and what areas could be improved? Lessons What lessons can be drawn? What could the Secretariat do differently? Recommendations How can the programme be improved to be better meet needs? 74 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Annex 3: Grenada’s Participation in Ministerial Meetings, Conferences and Training Workshops
No. of participants Event name Dates Location from Grenada Ministerial events/meetings Commonwealth Foreign Affairs 26-Sep-13 New York, USA 3 Ministers Meeting 2013 Commonwealth Finance Ministers 09-Oct-13 Washington DC, USA 1 Meeting 2013 Commonwealth Sports Ministers 21-Jul-14 Glasgow, Scotland 1 Meeting 2014 Commonwealth Finance Ministers 08-Oct-14 Washington DC, USA 1 Meeting 2014 Commonwealth Health Ministers 17-May-15 Geneva, Switzerland 2 Meeting 2015 Commonwealth Health Ministers 22-May-16 Geneva, Switzerland 2 Meeting 2016 Commonwealth Foreign Affairs 22-Sep-16 New York, USA 3 Ministers Meeting 2016 Commonwealth Trade Ministers 10-Mar-17 London, UK 1 Meeting 2017 Other meetings/conferences Stakeholders’ Consultations on 23–24 February 2015 St George’s, 29 Resilience-building Grenada Commonwealth Regional Meeting 22–26 June 2015 St George’s, 41 of Heads of Integrity Commissions Grenada and Anti-Corruption Bodies in Commonwealth Caribbean Building Resilience through 24 July 2015 St George’s, 22 Governance Grenada Tackling Corruption Together 11 May 2016 London, UK 1 Commonwealth Electoral Network 22–24 June 2016 Port of Spain, 1 Biennial Conference Trinidad and Tobago Dialogue with Government of 28–29 June 2016 St Georges, Grenada 36 Grenada: Establishment of a National Human Rights Institution in Compliance with the Paris Principles Annex 3: Grenada’s Participation in Ministerial Meetings, Conferences and Training Workshops \ 75
No. of participants Event name Dates Location from Grenada Trainings/Workshops CS-DRMS v2 ECCB/Secretariat Joint 28 October – St Kitts and Nevis 3 Workshop 8 November 2013 OECS/COMSEC Maritime Boundaries 4–6 February 2014 Rodney Bay, Saint 2 Working Session Lucia Regional Legislative Drafting Seminar 26–28 May 2014 Grenada 23 Workshop on Evidence-based 2–4 June 2015 Bridgetown, 2 Policies on Youth Development in the Barbados Caribbean CS-DRMS v2 SP2 ECCB/Secretariat 23 May – 1 June 2016 St Kitts and Nevis 3 Joint Workshop Technical Meeting on Enhancing 27–28 June 2016 Kingston, Jamaica 2 Youth Development Statistics in the Caribbean Training Workshop on Anti-Corruption 19–23 September 2016 St George’s, Unknown and Good Governance Grenada E-Learning Courses on Domestic N/A N/A 3 Debt Management; External Debt Management Concepts; and CS-DRMS to Manage External Debt 76 \ Evaluation of the Commonwealth Secretariat’s Support to Grenada
Annex 4: Internal Stakeholders List
No. Role 1. Adviser & Head, Debt Management; Economic, Youth and Sustainable Development Directorate 2. Debt Systems Development Officer, Debt Management; Economic, Youth and Sustainable Development Directorate 3. Adviser, Debt Management; Economic, Youth and Sustainable Development Directorate 4. Adviser, Debt Management; Economic, Youth and Sustainable Development Directorate 5. Adviser, Health; Economic, Youth and Sustainable Development Directorate 6. Health Research Officer, Health; Economic, Youth and Sustainable Development Directorate 7. Programme Assistant, Economic Policy; Economic, Youth and Sustainable Development Directorate 8. Acting Head, Economic Policy; Economic, Youth and Sustainable Development Directorate 9. Technical Economic Officer, Economic Policy; Economic, Youth and Sustainable Development Directorate 10. Operations Officer, Trade; Trade, Oceans and Natural Resources Directorate 11. Adviser, Trade; Trade, Oceans and Natural Resources Directorate 12. Senior Administrative Officer, Office of the Chief Operations Officer 13. Adviser & Acting Head, Technical Assistance Unit 14. Economic Adviser, Oceans and Natural Resources; Trade, Oceans and Natural Resources Directorate 15. Legal Adviser, Oceans and Natural Resources; Trade, Oceans and Natural Resources Directorate 16. Head, Social Policy Development; Economic, Youth and Sustainable Development Directorate 17. Acting Head & Adviser, Anti-Corruption, Public Sector Governance; Governance and Peace Directorate 18. Adviser, Public Financial Management, Public Sector Governance; Governance and Peace Directorate 19. Head, Human Rights; Governance and Peace Directorate 20. Political Officer, Political; Governance and Peace Directorate 21. Head, Good Offices; Governance and Peace Directorate 22. Legal Adviser, Justice Section, Rule of Law; Governance and Peace Directorate 23. Adviser & Head, Law Development Section, Rule of Law; Governance and Peace Directorate 24. Legal Adviser, Legislative Support & Law Reform, Rule of Law; Governance and Peace Directorate 25. CODA (Financial System) Consultant, Finance; Office of Chief Operations Officer 26. Human Resources Officer; Human Resources and Facilities Management Division Annex 5: List of Institutions Consulted \ 77
Annex 5: List of Institutions Consulted
No. Institution 1. Ministry of Foreign Affairs 2. Ministry of Finance, Planning, Economic Development & Physical Development 3. Cabinet Office, Office of the Prime Minister 4. Office of the Integrity Commission 5. Department of Public Administration 6. Ministry of Health 7. Grenada Drafting Office 8. Grenada Youth Centre 9. Parliamentary Elections Office 10. Ministry of Youth, Sports, Culture & The Arts 11. Ministry of Education and Human Resource Development 12. Inter-Agency Group of Development Organisations 13. Grenada Community Development Agency 14. Grenada Organisation of Women 15. Ministry of Legal Affairs 16. Central Statistics Office 17. Ministry of Agriculture 18. Secretariat – National Development Plan 2030 19. Justis Chambers, Cajeton Hood Office 20. National Training Agency 21. St George’s University 22. Ministry of Trade, Industry, Co-operatives & CARICOM Affairs Commonwealth Secretariat Marlborough House, Pall Mall London SW1Y 5HX United Kingdom thecommonwealth.org D16294