ASSESSMENT OF DEVELOPMENT RESULTS
ASSESSMENT OF DEVELOPMENT RESULTS Evaluation of undp ConTRIBuTIon PAPUA NEW GUINEA PAPUA effectiveness
HUMAN DEVELOPMENT COORDINATI NEW efficiency sust
GUINEA COORDINATION AND PARTNERSHIP NATIONAL OWNERSHIP relevance MANAGING FOR sustainability MANAGING FOR RESULTS responsivene AN DEVELOPMENT responsiveness NATIONAL OWN ISBN #: 978-92-1-126323-7 NATIONAL OWNERSHIP effectiveness COORDINATI e-ISBN: 978-92-1-054999-8 United Nations Development Programme efficiency COORDINATION AND PARTNERSHIP sust Evaluation Office 220 East 42nd Street New York, NY 10017, USA NATIONAL OWNERSHIP relevance MANAGING FOR Tel. (646) 781 4200, Fax (646) 781 4213 Internet: www.undp.org/evaluation sustainability MANAGING FOR RESULTS responsivene HUMAN DEVELOPMENT effectiveness COORDINATI Assessment of development results Evaluation of undp ConTRIBuTIon pApuA neW GuIneA
Evaluation Office, August 2011 United Nations Development Programme REPORTS PUbLiSHED UNDER THE ADR SER iES
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ASSESSMENT OF DEVELOPMENT RESULTS: EVALUATiON OF UNDP cONTRibUTiON – PAPUA NEW GUiNEA
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The analysis and recommendations of this report do not necessarily reflect the views of the United Nations Development Programme, its Executive Board or the United Nations Member States. This is an independent publication by the UNDP Evaluation Office.
Editing: Jeffrey Stern, Suazion (suazion.com) Graphic design: Suazion (suazion.com) Cover images provided by Rita Willaert. AcKNOWLEDGEMENTS
The UNDP Evaluation Office would like to offer The evaluation would not have been possible its sincere thanks to the evaluation team. The team without the commitment demonstrated by was led by Philip Tortell and comprised Sherrill David McLachlan, UN Resident Coordinator Wittington, Ozren Runic and John Duguman. and UNDP Resident Representative, and Carol Philip Tortell and John Duguman addressed Flore, Deputy Resident Representative. We UNDP work in the area of environment and very much appreciate the cooperation received energy support, Sherrill Wittington addressed from Patrick Pee, Operations manager, and the gender equality and support to crisis preven- programme and project staff of UNDP in Port tion and recovery in the Autonomous Region Moresby and in the field. We would also like to of Bougainville, and Ozren Runic addressed the thank the UNDP Regional Bureau for Asia and areas of Millennium Development Goals, govern- the Pacific, in particular, Vineet Bhatia, Chief of ance, HIV and AIDS and disaster risk reduction. South-East Asia and Pacific division, Sergelen Thanks also go to Vijayalakshmi Vadivelu as Dambadarjaa, and Rosemary Kalapurakal, for the UNDP Evaluation Office task manager. their valuable support and contribution to the Elizabeth De León-Jones provided valuable ADR process. research support. The Evaluation Office would like to thank the entire evaluation team for their The quality enhancement and administrative dedication and hard work throughout the exercise. support provided by Evaluation Office colleagues is critical to the successful conduct of all evalua- Our thanks are extended to stakeholders and tions. As part of the quality enhancement process, partners of UNDP Papua New Guinea, including Oscar Garcia, Alan Fox and Michael Reynolds members of the government, civil society, inter- provided an important internal review of the national development community, the United draft evaluation report. The Evaluation Office Nations family and members of the communities is grateful to Christine Bradley, who provided that the team consulted during the course of the valuable comments as an external reviewer. Many evaluation. In particular, the Evaluation Office thanks are due to Michelle Sy and Thuy Hang would like to thank Ms. Ruby Zarriga, Acting To, who provided valuable management and Secretary, Ms. Juliana Kubak, Acting Deputy administrative support to the evaluation process. Secretary and Joseph Turia, First Assistant Marina Blinova and Anish Pradhan assisted in Secretary fromthe Department of National the editing and publication process with the help Planning and Monitoring. of an external editor.
ACKNOWLEDGEMENTS i FOREWORD
This is the report of an independent country- risk management responded to key national level evaluation conducted by the United Nations needs and priorities. The evaluation also identi- Development Programme (UNDP) Evaluation fied a number of areas in which UNDP needs to Office in 2011. The evaluation examines the address specific challenges. These areas include strategic relevance and positioning of UNDP ensuring national ownership and capacity devel- support and its contributions to development opment of all UNDP interventions, following a results in Papua New Guinea from 2003 to 2011. more systematic approach to programming and At the national level, the period of evaluation enhancing synergies among interventions. There coincides with important efforts by the Govern- are missed opportunities in the areas of govern- ment of Papua New Guinea. These include ance and environment, which did not identify Vision 2050, the Papua New Guinea Develop- critical gaps for long-term support. In addition, ment Strategic Plan 2010–2030, and five yearly the Assessment recommends that UNDP should Medium-Term Development Plans. Papua have a more holistic approach on macro devel- New Guinea has established many institutional opment issues, such as furthering achievement arrangements for promoting good governance, has key monitoring and accountability struc- of the Millennium Development Goals, gender tures in place, and is poised to make economic equality, and environment. progress. However, development challenges The Assessment of Development Results was remain in ensuring that many of the policies, carried out at an accelerated pace by the Evalu- laws and regulations are implemented effectively. Furthermore, the resource boom due to liquefied ation Office in order to provide timely inputs natural gas and rapid economic expansion has for the new UNDP programme following the yet to generate a human development focus. The shortening of the current programme by one year evaluation therefore comes at a critical time when in January 2011, and to meet its commitment UNDP has an opportunity to further strengthen to align with the 2011–2015 Medium-Term the contributions it has made during the period Development Plan. The evaluation has provided being examined. recommendations to allow UNDP to build on the lessons learned from its programme in the The evaluation found that UNDP contributions past years. I hope it will be useful for UNDP as have been important in terms of responding to well as its national and international partners in national priorities and government needs. During Papua New Guinea and that it will help UNDP the period covered by the evaluation, UNDP continue to make a significant contributions to technical support to the government strength- achieving national development goals. ened institutional development and enhanced policy formulation. Although some of the areas were not key government priorities, UNDP interventions in the areas of Millennium Devel- opment Goal planning and monitoring, govern- ance, HIV and AIDS, conflict prevention and Saraswathi Menon recovery, energy and environment and disaster Director, UNDP Evaluation Office
ii FOREWORD cONTENTS
Acronyms and Abbreviations v Executive Summary vi Chapter 1. Introduction 1 1.1 Objective and Scope of the Evaluation 1 1.2 Methodology 1 Chapter 2. Development Context and Challenges 5 2.1 Government Policies 5 2.2 Economic Growth 6 2.3 Poverty Reduction 6 2.4 Millennium Development Goals 7 2.5 HIV and AIDS 8 2.6 Gender Equality and Human Rights 9 2.7 Governance 11 2.8 Environment, Energy and Climate Change 12 2.9 Disaster Risk Management 14 2.10 The Role of Development Cooperation 15 Chapter 3. UNDP Response 17 3.1 The UN Programme 17 3.2 The UNDP Country Programme and its Relevance 20 3.3 Programme Delivery 21 Chapter 4. UNDP Contribution to Development Results 25 4.1 Millennium Development Goals 25 4.2 Democratic Governance 26 4.3 Environment and Energy 31 4.4 HIV and AIDS 35 4.5 Disaster Risk Management 40 4.6 Crisis Prevention and Recovery in Bougainville 42 4.7 Gender Equality 46 4.8 UNDP Strategic Positioning 50 4.9 Summary of Results Achieved 52 Chapter 5. Conclusions and Recommendations 55 5.1 Conclusions 55 5.2 Recommendations 61 Annexes 65 Annex 1. Terms of Reference 65 Annex 2. Key Evaluation Criteria and Questions 75 Annex 3. Documents Consulted 79 Annex 4. Persons Consulted 82
C ONTENTS iii Annex 5. Likelihood of Achieving MDG and Medium-Term Development Strategy Targets 87 Annex 6. UNDP Outcomes Adopted by UNDP Country Programme 2008–2012 88 Annex 7. UNDP Project Portfolio, 2003–2012 89 Boxes Box. Evaluation criteria 2
Figures Figure 1. National HIV Prevalence Rate, Through 2009 8 Figure 2. Number of Annual HIV Infections and Cumulative Number of HIV Infections Between 1987 and 2008 9 Figure 3. Official Development Assistance to Papua New Guinea, 2003–2009 16
Tables Table 1. Top Ten Bilateral and Multilateral Development Aid Donors to Papua New Guinea, 2003–2009 16 Table 2. Resources Provided by UNDP to Different Thematic Areas, 2004–2011 22 Table 3. Achievement of the UNDP Country Programme Outcomes 53
i v CONTENTS AcRONyMS AND AbbREViATiONS
ADR Assessment of Development Results AIDS Acquired Immune Deficiency Syndrome AusAID Australian Agency for International Development CEDAW Convention on the Elimination of All Forms of Discrimination against Women DEC Department for Environment and Conservation DNPM Department of National Planning and Monitoring GDP gross domestic product GEF Global Environment Facility HIV Human Immunodeficiency Virus LLG local-level governance MDGs Millennium Development Goals MTDP Medium-Term Development Plan MTDS Medium-Term Development Strategy NSP National HIV and AIDS Strategic Plan REDD Reduced Emissions from Deforestation and Forest Degradation ROAR Results Oriented Annual Report TRAC target for resource assignment from the core (of UNDP) UN United Nations UNCT United Nations Country Team UNAIDS Joint United Nations Programme on HIV and AIDS UNDAF United Nations Development Assistance Framework UNDP United Nations Development Programme UNFCCC United Nations Framework Convention on Climate Change UNGASS Special session of the General Assembly on HIV and AIDS UNIFEM United Nations Development Fund for Women (now UN Women) UNICEF United Nations Children’s Fund
A CRONy MS AND ABBREVIATIONS v EXEcUTiVE SUMMARy
This Assessment of Development Results (ADR) UNDP country programme was aligned with in Papua New Guinea is an independent country- the UNDAF for the same period and focused level evaluation conducted in 2011 by the United on good governance and poverty reduction as Nations Development Programme (UNDP) overarching goals, and identified nine outcomes Evaluation Office. The main objectives of the under the thematic areas of poverty reduction, ADR were to assess overall UNDP performance gender, human rights, sustainable development, and contributions and to draw lessons for future employment, HIV and AIDS, the Millennium strategies—particularly for the next program- Development Goals (MDGs), and aid coordina- ming cycle. The ADR reviewed the period from tion. The 2008–2011 UNDP country programme 2002 to 2010, which includes the previous and is aligned with the priorities of the UN country the ongoing UNDP country programmes (2003– programme and the government’s Medium-Term 2007 and 2008–2012; abridged to 2011). Development Strategy (MTDS). It outlines four broad areas of support, which are: democratic The evaluation had two main components: an governance, HIV and AIDS, poverty reduction, analysis of how UNDP programme outcomes and environment and sustainable development. contributed to development results, and an In the two country programmes from 2003 to analysis of UNDP-adopted strategies. The evalu- 2011, UNDP programme spending was approxi- ation, following a standardized methodology mately $40 million; 50 percent of which came for ADRs, examined all thematic areas of the from UNDP core funds. UNDP programme. Specific criteria applied for the assessment included sustainability, strategic relevance, effectiveness, efficiency, and promotion KEy FiNDiNGS of United Nations (UN) values. Under each The ADR structures its analysis and findings to criterion, specific sub-criteria and questions correspond with the key areas of UNDP support. were used within a larger evaluation framework The key findings of the ADR include: developed for the ADR. The ADR process entailed specific steps: background research, two UNDP support to the preparation of the country visits for evaluation scoping and for data 2006 Human Development Report for the gathering, report writing and quality assurance. Autonomous Province of bougainville, Prior to finalization, the Government of Papua the 2004 and 2009 MDG reports, and for New Guinea, UNDP in Papua New Guinea and MDG-oriented national planning documents the Regional Bureau for Asia and the Pacific has been highly relevant. More efforts reviewed the ADR. are required to strengthen national data systems that are key for MDG monitoring and national planning. UNDP PROGRAMME UNDP interventions have been important, The period spanned by this ADR, 2003–2011, considering the slow progress in terms of MDG covers two UNDP programme cycles that achievement, weak governmental capacities for differ significantly—one is based on the United MDG-oriented planning, weak data systems and Nations Development Assistance Framework overall lack of awareness of the MDGs. UNDP (UNDAF) approach; the other on the joint UN supported the Department of National Planning country programme model. The 2003–2007 and Monitoring and other national bodies to
vi EXECUTIVE SUMMAR y develop clearly defined targets and indicators on outputs. UNDP also missed opportunities in the MDGs and to integrate them as outcome terms of not following up the pilot programmes indicators into the Logical Framework Matrix on voter education and corruption. of the 2011–2015 Medium-term Development Plan (MTDP). As a result, the MTDP showed UNDP has been actively supporting and significant improvement over its predecessors in strengthening government initiatives, terms of MDG visibility. However, the reliability policy formulation and monitoring institu- of the data upon which MTDP outcome indica- tions aimed at reducing HIV and AIDS. UNDP tors are based has not improved significantly. support to establishing the Monitoring and Evaluation Unit at the National AIDS Council The poor dissemination of the MDG report has Secretariat was one of its most important been a matter of concern, particularly consid- contributions to development results. ering the need for increased awareness of MDG- However, more efforts will be required related progress. in order to strengthen the National AIDS Council Secretariat’s capacities. UNDP provided support to governance institutions in Papua New Guinea, despite UNDP supported the enactment of the 2003 a challenging environment in terms of HIV and AIDS Management and Preven- assistance to democratic governance. tion Act, which provided a formal legal basis Further efforts are needed to follow up for protecting the basic human rights of people on pilot initiatives to better inform policy living with HIV and AIDS. UNDP initiatives and planning. (e.g. support to leadership development), served UNDP programmes provided flexible support to as catalysts and helped created the necessary respond to continuous development challenges political will and government support for institu- that the government encounters. Interventions, tional and legal reforms in the national response such as support to financial management at the to HIV and AIDS. provincial level, are critical to strengthening capacity of the local institutions. Though the In recent years, the Monitoring and Evaluation provincial-level local governance programme is Unit faced numerous challenges in data gathering, progressing well in terms of achieving specific primarily due to weak capacities at the provincial outputs, it is too early to make observations on and district levels. Efforts towards strengthening its contributions to development results in terms the National AIDS Council Secretariat’s capaci- of improved service delivery at the sub-national ties to better coordinate HIV and AIDS-related level. Integration with other sub-national initia- activities were not evident. More efforts will also tives and government monitoring mechanisms be required in order to strengthen civil society (which are currently lacking) is important to organizations’ capacities and to include them in strengthening decentralized fiscal systems. the HIV and AIDS response.
Despite difficulties in continuing the Support to Recognizing the country’s international Parliament project, the project evaluation, stake- environmental obligations and the value holders and development partners in Papua New of the Papua New Guinea environment, Guinea found that the intervention was positive UNDP made the environment and energy and commendable because it was initiated in a thematic area its third largest in terms of very volatile political climate. However, in the financial resources. A good foundation for past years UNDP made very few attempts to promoting environmental sustainability re-establish cooperation with parliamentary has been laid; however, this does not seem structures or to find alternative routes to address to contribute directly to the thematic area’s the planned country programme document overarching outcome.
EXECUTIVE SUMMAR Y v i i UNDP has not been very effective in its environ- assess the results of this disaster risk management ment and energy portfolio of projects; no output institutional coordination initiative. has been fully achieved, and only slight progress has been made towards the overarching country Comprehensive disaster risk management work programme outcome. plans have been developed for the Autonomous Region of Bougainville and the provinces of Oro The UNDP response was relevant in general, and the Eastern Highlands. As a result of these but it appears to be somewhat ad hoc and interventions, four high-risk provinces in Papua not proceeding according to a well-founded New Guinea have functional, staffed disaster strategic approach. For example, foundational management offices with formally established land-use planning interventions could underpin provincial Disaster Management Committees. the Protected Areas Programme to identify and The sustainability of the committees and contin- secure areas of high ecological and biodiversity gency planning, however, remain a challenge, due value. Such interventions could also provide a to a lack of provincial government support. basis for decisions in the face of liquefied natural gas developments, mining, and other consump- In the Autonomous Region of Bougainville, tive land use developments, or serve as the basis the UNDP programme complemented for thorough and effective environmental impact government efforts by facilitating the assessment processes. implementation of national development strategies and policies. UNDP contributions Given Papua New Guinea’s elevated exposure, have been important in incorporating the UNDP interventions in support of disaster Bougainville chapter into the MTDS in order risk management are highly relevant. In to reflect the needs of the region and the providing assistance to national planning formulation of the 2005–2010 Bougainville in disaster risk reduction and management, Corporate Plan. UNDP initiatives made important achieve- UNDP provided technical support to the Prime ments in terms of furthering the disaster Minister’s Department for the National Security management agenda to higher levels of Policy for establishing an Interdepartmental government development planning. Committee on Small Arms Control and for UNDP activities and advocacy contributed collecting and analysing armed violence reduction to including disaster risk management in the data. UNDP also provided assistance for the 2010–2030 Development Strategic Plan and as formulation of the Autonomous Bougainville a cross-cutting issue in the 2011–2015 MTDP, Government’s Peace, Reconciliation and Weapons although these plans have yet to be implemented. Disposal Policy and for establishing the Autono- Though these documents do indicate which mous Bougainville Government Peace Division. disaster risk management policies and legislation initiatives need reform and updating, there is no UNDP work concentrated on reconciliation, current strategic-level document that includes all weapons disposal, human rights, support to the the recommendations or that provides an effective Council of Elders and technical assistance to the implementation-oriented document that lists the Autonomous Bougainville Government. The specific needs and activities necessary to achieve early period of weapons disposal was not fully the Papua New Guinea Development Strategic successful, reflecting the associated complexities. Plan and the MTDP targets. UNDP recently The programme’s main weakness stemmed from initiated a programme to integrate disaster risk UNDP taking on a high-profile weapons disposal management into the development planning and programme that UNDP and its Autonomous budgeting of three key departments: the Depart- Bougainville Government counterpart were ment of National Planning and Monitoring, the ill-equipped to implement. The programme’s Department of Education and the Department strength, however, has been the support given of Physical Planning. However, it is too early to to local-level peace and reconciliation initiatives.
v i i i EXECUTIVE SUMMAR Y Positive contributions were made through support cONcLUSiONS AND to rehabilitation efforts, such as the Community REcOMMENDATiONS Trauma Programme and peace fairs through the UNDP made varied contributions across Nazareth Centre for Rehabilitation. programme areas. While factors such as complex Overall, the conflict prevention and resolu- development issues and a challenging political tion programme has been partially effective in environment constrained meaningful results achieving both outcome areas, although national- contributions, the country programme lacked a level achievements and achievements in provinces systematic and deliberate approach to addressing outside Bougainville have been limited. Lack of key development needs. This was evident partic- continuity, decreasing financial resources, poor ularly in the areas of MDG planning, govern- monitoring, time-consuming recruitment and the ance, environment, gender and reconciliation and insufficient technical capacity of staff were some recovery. The following are the main conclusions of the constraints in achieving intended outcomes. and recommendations.
Despite the complex nature of the issues cONcLUSiONS involved and the challenging political context in Papua New Guinea, UNDP 1. UNDP contributions have been important consistently extended support to gender in terms of the response to national priori- equality and women’s empowerment in both ties and government needs amidst a complex country programmes. political context. During the two country There was considerable evidence that UNDP programmes cycles under review, UNDP was committed to addressing gender inequali- technical support was critical to key govern- ties in public and political spaces and that UNDP ment departments. Although many outputs consistently supported policy formulation and were achieved, contributions to long-term facilitated policy discussions. UNDP also actively development results were limited. participated in joint UN initiatives that addressed 2. UNDP support to MDG planning and prep- gender-related issues. However, it is premature to aration of MDG reports has been important. make observations on contributions to results in The emphasis given in the programme to this challenging development issue. these issues, however, is not commensurate with the needs in the country and does not UNDP interventions focused on support for reflect the complexity of issues. UNDP was efforts to reserve legislative seats for women in not successful in using its programme inter- the Parliament. UNDP adopted an inclusive and ventions in the area of gender, environment nationally driven process that included capacity- or governance to further MDG planning and building initiatives for the government, partners, reporting. There was a missed opportunity potential women candidates and advocacy in supporting the National Statistics Office groups. UNDP provided technical assistance to strengthen data collection mechanisms, for drafting legal documents and for extensive which are critical for MDG reporting. While consultations. These efforts have resulted in the UNDP is engaged in MDG awareness- women’s Equality and Participation bill now raising advocacy, more efforts are needed at before Parliament. both the national and sub-national levels in order to integrate MDGs in planning. The progress of UNDP initiatives to support the government in reducing gender-based violence has 3. In the face of strong cultural and traditional been slow. Though gender-based violence is an resistance, UNDP has supported efforts to extraordinarily complex issue, UNDP efforts lacked address gender inequality and gender-based the required urgency to address this problem. violence in Papua New Guinea; UNDP has
EXECUTIVE SUMMAR y ix contributed to taking forward the national UNDP activities in this area largely comple- discussion on the subject. While it is too ment the government’s work, the sustaina- soon to expect concrete results related to bility and scaling up of some UNDP support gender equality, the UNDP approach was activities would have been further enhanced not holistic and was too narrowly focused on with better partnerships with government a single issue (women in parliament), losing and other development partners. the opportunity of more tangible gender UNDP is not only a key agency in the areas equality outcomes. of governance, but also it has high levels 4. UNDP has responded to a number of of credibility and is seen as an impartial Papua New Guinea’s environmental needs agency without ulterior or political motives. and is supporting government efforts to UNDP should further leverage its corporate meet international commitments on biodi- advantage in this area and its political accept- versity and climate change. However, the ability to address some of the key govern- UNDP response has neither been cohesive ance issues, such as fair elections, transpar- nor strategic and the content and approach ency in governance, human rights, stability of UNDP interventions is influenced by of political parties and the development of funding sources. Considering the impor- effective civil society structures. tance of a sustainable environment for Papua New Guinea, UNDP could have put in 8. In disaster risk management, UNDP technical more efforts in supporting the government support contributed to building institutional to integrate environment issues in national systems and developing policies. UNDP needs planning as a key development priority. a more coherent programme to enable better coordination among government agencies at 5. UNDP contributions to reconciliation and the national level, and to strengthen disaster recovery in Bougainville had mixed outcomes. risk management at the local level. While demobilization was challenging given the complexity of issues, UNDP support to the 9. One of the weak areas of the UNDP national government in policy formulation, programme, both in design and in imple- strengthening the Autonomous Bougainville mentation, is the lack of attention paid Government’s capacities, and to the recon- to addressing cross-cutting issues such ciliation process has created a more enabling as the MDGs, gender equality, human environment. Lack of an integrated approach rights, capacity development and HIV and to addressing multidimensional issues into AIDS. Lack of synergies between different reconciliation and fragmented interventions programme areas further undermined constrained UNDP contribution. addressing cross-cutting issues. 6. UNDP put significant effort into addressing 10. UNDP programme contributions would have the HIV and AIDS epidemic. The UNDP further benefited from a balanced approach Leadership Development Programme served to upstream and downstream support. The as a catalyst and created the necessary political Papua New Guinea context requires sub- will to support important HIV and AIDS- national and community-level support to related initiatives. UNDP needs to maintain augment UNDP upstream support. UNDP the momentum generated by refocusing its needs strategic partnerships to further support to strengthening the capacity of the strengthen programmes at the sub-national Special Parliamentary Committee and the and community levels. National AIDS Council Secretariat. 11. Lack of a long-term approach to capacity 7. UNDP has yet to utilize fully its comparative development is an area of concern in Papua advantage in the area of governance. While New Guinea. Although UNDP has addressed
x EXECUTIVE SUMMAR Y capacity development in various government improving synergies between complementary institutions through a number of interven- programme areas. UNDP programme strategy tions, the approach has not been strategic. should also address programme implementa- Lack of needs assessments and no time- tion challenges in Papua New Guinea. frame made capacity development initiatives 2. UNDP should strive for a balance between its mere substitutions of capacity gaps. upstream and downstream work and further 12. As a self-starter, the UN country programme increase its support at the provincial and in Papua New Guinea has made consider- community level. The UNDP programme able progress in moving towards Delivering should focus on strengthening capacities at as One UN, and UNDP contributions have the sub-national and local levels. been important towards this. While the UN 3. UNDP should put more emphasis on country programme responded to the need supporting MDG planning and monitoring. for more effective development cooperation, UNDP support should specifically include there is further need for consolidating coop- localized MDG planning in order to accel- eration between agencies and taking forward erate progress towards MDGs. UNDP should the momentum gained in Papua New Guinea. leverage on its ongoing efforts in the area of More importantly, there is need for greater gender equality, HIV and AIDS and environ- engagement with the government and for a ment to better contribute to MDG planning. more strategic UN country programme. 4. UNDP should have a sustained, long-term The UN system in general, and UNDP in and multi-pronged approach to addressing particular, needs to further strengthen the gender equality at all levels. In coordination engagement of government agencies. While with the UN country team, UNDP should the government is positive about the Deliv- adopt a holistic approach to integrating ering as One UN programme, lack of clarity of gender equality into all areas of MDG what it entails undermines managing results. implementation. 13. The efficiency of UNDP support was under- 5. Given the importance of linkages between mined by weak programme design, lack sustainable environment, land use and live- of synergies between thematic areas and lihoods in Papua New Guinea, UNDP between complementary themes. UNDP also should refocus its work in the environment had difficulties in timely funds disbursement. sector. UNDP should support an institu- tional analysis and capacity assessment of the REcOMMENDATiONS Department of Environment and Conserva- tion in order to facilitate establishing indica- These recommendations consolidate the findings tors for capacity development. Considering and conclusions of the evaluation and are the inadequate attention paid to the envi- primarily focused on UNDP priority issues. ronment in the MTDS, specific attention is required in the forthcoming programme in 1. For more sustainable contributions to devel- order to integrate environmental issues into opment results, UNDP should define clearly national policy and planning. the strategic focus of its programme under each thematic area and narrow the range of 6. UNDP should play a more proactive role activities accordingly. in strengthening governance capacities at different levels. It should clearly define areas An integrated approach to programming is of support for long-term engagement. crucial to achieving results in each thematic area as well as for the UNDP programme as a 7. UNDP needs to establish and nurture whole. UNDP should pay specific attention to strategic partnerships to complement its
EXECUTIVE SUMMAR y xi expertise and supplement its resources. There resource allocation in programme planning is need to further strengthen the nature of and implementation for addressing cross- partnerships and partnership arrangements cutting issues. with government departments. 9. UNDP should strengthen programme 8. UNDP is strategically positioned to promote planning and management in the forth- UN values and should make a stronger coming programme. Urgent measures should commitment to address cross-cutting issues be taken to strengthen programme moni- such as gender equality and human rights in toring and reporting systems. UNDP has programme planning and implementation. several capacity development projects and UNDP needs to pay sufficient attention to components. Such projects must be preceded mainstreaming gender equality across its by a needs assessment, and baselines must programmes, irrespective of specific inter- be identified. Projects should have a realistic ventions related to women’s empowerment time-frame and plan for disengagement and or gender equality. There is need for specific handing over.
x i i EXECUTIVE SUMMAR Y Chapter 1 iNTRODUcTiON
1.1 ObjEcTiVE AND ScOPE cycle. While primarily focused on the current OF THE EVALUATiON country programme, the ADR also covered ongoing projects that had started in the previous In 2011, the Evaluation Office of the United programme period.1 The evaluation covered Nations Development Programme (UNDP) programmatic and non-programmatic UNDP conducted an independent country-level evalua- contributions in areas such as: tion in Papua New Guinea. The Assessment of Development Results (ADR) analysed UNDP Support to Millennium Development Goal- contributions to development results in Papua based planning; New Guinea and the effectiveness of UNDP strategy in facilitating and leveraging national Energy, environment and climate change; efforts to achieve development results. The Support to strengthening governance systems period reviewed coincides with the previous and at the national and provincial levels; the ongoing UNDP country programmes (2002– 2007 and 2008–2012; abridged to 2011). The Gender equality; objectives of the ADR were to: Addressing gender-based violence; Support the UNDP Administrator’s account- ability function in reporting to the UNDP Support to crisis prevention and recovery in Executive Board. The ADR will be made Bougainville; available to Executive Board members Natural disaster vulnerability reduction; and when the new Papua New Guinea country programme is presented in September 2011; HIV and AIDS. Support greater UNDP accountability to national stakeholders and partners in the 1.2 METHODOLOGy programme country; and The ADR assessed UNDP contributions to Serve as a means of quality assurance for national efforts that addressed development UNDP interventions at the country level and challenges, encompassing the social, economic to contribute to learning at the corporate, and political spheres. It examined key results, regional and country levels. The evaluation specifically outcomes (anticipated and unantici- is intended to provide inputs to the 2012 pated, positive and negative) and covered UNDP UNDP country programme and its role in assistance funded from both core and non-core other United Nations programmes scheduled resources. The evaluation has two main compo- for the same year. nents: an analysis of UNDP contributions to development results through its programme This was the first ADR conducted in Papua outcomes, and the strategies UNDP has adopted New Guinea, taking place towards the end of (see Annex 1 for the ADR terms of reference). the current 2008–2011 UNDP programme For each component, the evaluation used a set of
1 See: United Nations, ‘United Nations Country Programme Papua New Guinea 2008–12: A Partnership for Nation Building’, Port Moresby, 2007; UNDP, ‘Country Programme Document 2009–2012: Papua New Guinea’, 2007a; and UNDP, ‘Country Programme Outline for Papua New Guinea (2003-07)’, discussion document for the Meeting of the Executive Board of UNDP and the United Nations Population Fund, Second Regular Session, New York, 2002.
C HAPTER 1. INTRODUCTION 1 evaluation criteria (see Box) and a set of questions rights, gender equality, capacity development, that are fundamental to assessing contributions to South-South cooperation, partnerships for devel- development results (see Annex 2 for questions opment and coordination of UN and other devel- used to address each criterion). opment assistance.
The analysis of UNDP contributions to Papua The ongoing programme is a component of the New Guinea development results was based on common UN country programme, and the UN UNDP programme activities, seeking results Country Team is preparing a similar one for indicators within programme and project design. the upcoming programme. The ADR therefore Project and outcome analysis was the basis for examined lessons of the ongoing joint UN evaluating contribution to results. The portfolio programme, implications for UNDP programming comprised 39 projects and a number of non- and contribution to national development results. project activities during the eight years being assessed. The positioning and strategies of UNDP DATA cOLLEcTiON were analysed both from the perspective of the organization’s mandate and the development and The ADR drew conclusions based on triangulation humanitarian needs and priorities in the country of evidence from different methods and sources as agreed and as they emerged. This entailed (secondary and primary). Sources included a desk systematic analyses of the UNDP place and review of available documentation, and informa- niche within the development and policy space tion and data collected during interviews with key in the country, and the strategies and approaches informants. While collecting evaluative evidence UNDP adopted to maximize its contributions. to identify UNDP contributions, the evaluation team applied the following approach: The ADR addressed significant cross-cutting factors important for UNDP contribution Understand the nature of UNDP interven- to development results, which include human tions (what did the interventions do exactly?)
box. Evaluation criteria
Relevance: How relevant is UNDP to national development challenges and priorities as identified by the government in line with best practices of development? What has been the degree of coherence of the UNDP programme to human development needs, the UNDP mandate, existing country strategies and policies, adequacy of financial/human resources, and according to standards and recognized good practices? Effectiveness: How effective has UNDP been in achieving its objectives, specifically the outcomes contained in its programming documents, and whether results, positive or negative, intended or unintended, were generated. Did it set in dynamic changes and processes that have potential to contribute to long-term outcomes? Efficiency: Has UNDP made good use of its financial and human resources? Were UNDP resources focused on the set of activities that were expected to produce significant results? Could it have achieved more with the same resources or made the same contributions with fewer resources? Were there any identified synergies between UNDP interventions that contributed to reducing costs while supporting results? Promotion of UN values: Did UNDP promote its work from a human development perspective? Did UNDP contribute to an improvement in people’s lives, especially among the poorest and most marginalized? Is UNDP in particular effectively supporting government efforts to promote Millennium Development Goals in developing countries? To what extent was the UNDP programme designed to appropriately incorporate into each outcome area contributions to the attainment of gender equality? Is UNDP considered capable of providing leadership and contributing to substantive and high-level policy dialogues on human development issues in the country, particu- larly on potentially sensitive issues? Sustainability: Have the results to which UNDP contributed been sustainable? Will the results and benefits generated continue with a lower level of support? What is the probability of continued long-term benefits?
2 CHAPTER 1. INTRODUCTION and document the nature of ‘value addition’ partners during the period under review and by UNDP interventions (e.g. technical skills documents prepared by UN system agencies; and expertise, conceptual frameworks and Project documents for completed, ongoing or methods that were not present before); proposed UNDP projects, including prepara- Apply the ‘before and after’ criterion (which tory phase documents; situation prevailed before the UNDP inter- The majority of available project progress vention and how has it since changed?) and reports; check through interviews and document evidence for alternative explanations; and The majority of project outputs, strategic plans, and policy and legislative proposals; and To the extent feasible, collect counterfac- tual evidence–the situation without UNDP Evaluations conducted by the country office intervention. and UNDP donors.
Because some UNDP projects that contrib- A full list of key documents reviewed (including uted to an outcome or long-term development decentralized evaluations) is provided in Annex 3. objective were at different stages of implementa- Evaluations in the area of post-conflict support, tion or concluded at different periods, it was not environment and energy and HIV and AIDS always possible to determine the projects’ contri- provided a basis for additional data collection. bution to results. The ADR, in such cases, docu- The evaluation evidence of the decentralized mented observable progress and tried to ascertain evaluations is not uniform; the evaluation team the possibility of achieving the outcome given triangulated with other primary and secondary the programme design and measures in place to data while using the evidence and conclusions of achieve the outcome. the decentralized evaluations.
Triangulation was used to ensure that empirical Field visits and people consulted evidence collected from one source was validated The ADR reviewed all 39 projects in the two by at least two other sources. For example, docu- country programmes reviewed. With consid- mentation in reports was validated by interviews eration for security issues and the difficulties in or surveys. Where information was only available transportation to field sites, field visits were made from consultations, the evaluation team sought to to Buka, Goroka and Madang. corroborate opinions expressed and information given by posing the same questions to more than The selection of the programme components for one interviewee. field visits was based on:
Secondary data Coverage of all programme outcomes as outlined in UNDP country programme documents. In preparation for the ADR, the Evaluation This also included the thematic areas of UNDP Office identified an initial list of background and programme support, such as governance, crisis programme-related documents and made them prevention and recovery (support to peace and available to the evaluation team in an ADR Web disaster risk management), gender equality, portal. During the main mission, the evaluation environment and energy; team collected additional and more country- specific documentation. The following secondary All programme components that involved data was reviewed: policy support and located in Port Moresby; A balance of upstream and downstream Background documents on the national projects; and context, including cross-cutting and sectoral plans and policies prepared by the govern- Implementation difficulties arising from ment, documents prepared by international security concerns.
C HAPTER 1. INTRODUCTION 3 Consultations were held with 153 stake- preparation of the inception report. This was holders (see Annex 4 for a list of persons met followed by selection of the evaluation team, and consulted with), primarily in Port Moresby which comprised three international profes- but also in Buka, Goroka and Madang. In the sionals and a national adviser. While efforts were UNDP country office in Port Moresby, consul- made to constitute a national evaluation reference tations ranged from a focus on specific projects group comprising government and other key to non-project interventions and a wide-range stakeholders, this could not be achieved due to of country-specific development topics. Consul- short time-frame of the evaluation. tations with government officials, non-govern- mental organizations and the private sector The second phase comprised data collection focused almost exclusively on specific interven- and analysis. Data collection was guided by the tions. Of the persons consulted, 17 were UNDP evaluation matrix. The assessment of programme staff, 15 were from other UN agencies, 29 were outcomes allowed the evaluation team to make from central government, 14 were from the linkages to the overall development context and Autonomous Bougainville Government, 11 were UNDP contributions to national development from other partners (e.g. embassies), 29 were from results. After a preliminary analysis of the data non-governmental organizations, 14 were project collected, the evaluation team provided initial personnel or otherwise associated with projects, 6 observations and findings to the country office. were community members, 17 were from national organizations, and 1 was from the private sector. The third phase comprised further analysis and preparation of the evaluation report. The evalu- At the provincial level, the evaluation team ation report was reviewed by Evaluation Office consulted with officials of the provincial admin- reviewers, and an external development profes- istration, women’s groups, non-governmental sional with considerable country and regional organizations and community members. The experience and evaluation expertise. The final team also visited beneficiaries of projects and report took into account comments received project sites to see and hear about the results from the government, the Regional Bureau for achieved through UNDP interventions. the Asia and the Pacific and the UNDP country office. The ADR will be presented to the UNDP Executive Board in September 2011. PROcESS
The UNDP programme in Papua New Guinea LiMiTATiONS AND DiFFicULTiES was abridged by one year in order to align with ENcOUNTERED the national development framework. Therefore, the new country programme is scheduled to be The evaluation would have benefited had the presented to the September 2011 Executive Board country office better organized meetings with instead of June 2012 Executive Board. This change key national stakeholders. Some meetings with in time-frame had consequences for the conduct national and provincial government officials of the ADR, and the ADR process was acceler- could not take place because UNDP could not ated to accommodate country office requirements make the necessary arrangements in time. to meet the advanced programming deadlines. Weak information systems, documentation and The evaluation process comprised three main lack of institutional memory posed challenges phases. The preparation phase included the in collecting programme information. For the development of the terms of reference and the ongoing country programme, the country office evaluation design. The Evaluation Office Task adopted the annual work plan approach without Manager carried out the scoping mission, which project documents, which posed difficulties to led to the outlining of the evaluation design and assess progress towards outcomes.
4 CHAPTER 1. INTRODUCTION Chapter 2 DEVELOPMENT cONTEXT AND cHALLENGES
2.1 GOVERNMENT POLiciES Programme. It aims to increase economic growth, spreading the benefits of growth to Papua New Guinea’s development progress overcome inequalities in opportunities in since gaining independence in 1975 has been Papua New Guinea. The Millennium Devel- interspersed with periods of economic progress opment Goals (MDGs) are integrated into and poor performance. In the past decade, the the current MTDP. A conducive environment government has made efforts to address critical (e.g. a stable political environment and produc- development challenges. The national strate- tive and proactive public service machineries) gies and policies being implemented are aimed is recognized as a necessary precondition for at social and economic progress at the national implementing the MTDP, and it incorporates and sub-national levels. These include Vision measures to ensure this. The priority areas for the 2050, Papua New Guinea Development Strategic 2011–2015 MTDP include: Plan 2010–2030, and five yearly Medium-Term Development Plans (MTDPs), Medium-Term Unlocking land for development; Development Strategy (MTDS). Vision 2050 Improving law, justice and order; maps out Papua New Guinea’s development initiatives for the next 40 years with priorities Establishing quality national transport underpinning economic growth and develop- corridors that connect rural populations to ment. The Papua New Guinea Development markets and services; Strategic Plan and the MTDPs translate Vision Promoting higher and technical education to 2050 into directions for economic policies, public redress severe skills shortages within Papua policies and sector interventions with clear objec- New Guinea’s labour force; tives, targets and indicators. Providing universal access to quality primary The 2005–2010 MTDS priority areas include: and secondary education; rehabilitation and maintenance of transport infra- structure, promotion of income earning oppor- Providing access to the key utilities of elec- tunities, basic education, development oriented tricity, clean water and sanitation, and informal adult education, primary health care, communications; and HIV and AIDS prevention and law and justice. Improving health outcomes.2 The 2005–2010 MTDS does not include gender equality, gender-based violence or environment While Papua New Guinea is poised to make as priority areas. economic progress, several development chal- lenges remain (e.g. issues related to governance The 2011–2015 MTDP, guided by the Papua and economic management, rule of law, and New Guinea Development Strategic Plan, citizen participation in development processes). outlines resource for development efforts in Papua New Guinea has established many insti- key policy areas under the Public Investment tutional arrangements for promoting good
2 See
CHAPTER 2. DEVELOPMENT CONTEXT AND CHALLENGES 5 governance, with key monitoring and account- consortium led by Exxon/Mobil signed a final ability structures in place. However, difficulties investment decision in December 2009 to begin remain in ensuring that many of the policies, laws the commercialization of the country’s estimated and regulations are implemented effectively. 22.5 trillion cubic feet of natural gas reserves through the construction of a liquefied natural gas production facility.6 2.2 ECONOMIC GROWTH Papua New Guinea recorded gross domestic product (GDP) growth of 3 percent annually 2.3 Poverty reduction from 2003 to 2005. While GDP growth was 2.3 Poverty in Papua New Guinea is defined in the percent in 2006, there was significant increase draft ‘Papua New Guinea Poverty Reduction in 2007 to 7.2 percent, tapering to 6.7 percent Strategy Paper’7 as a “lack of access to economic 3 and 5.5 percent in 2008 and 2009 respectively. and financial growth opportunities and inefficient Despite the global downturn, Papua New delivery of, and lack of access to, basic services.” Guinea’s economy continued to grow in 2009. It Between 1981 and 2005, extreme poverty ($1.25 is estimated that GDP will grow at 8.5 percent in per day) remained at 29 percent and vulnerability 2011 before moderating to 6.5 percent in 2012.4 ($2 per day) at about 51 percent.8 The 41 percent Papua New Guinea’s economy is highly poverty rate in rural areas was higher by 2.5 times dualistic. It includes a large-scale but isolated in urban areas (16 percent). In 2004, The World 9 natural resources-based export sector (minerals, Bank indicated that those below the poverty line petroleum, timber, fish, and plantation tree crops), (in both rural and urban areas), comprised 54 which provides revenue to support a small, urban percent of the population. formal sector and the public sector. However, the subsistence and semi-subsistence rural economy One of the key issues of urban poverty is the lack supports more than 80 percent of the popula- of access to land and adequate housing, services tion. There are signs that parts of the economy and infrastructure. Many workers in the formal may go through changes as a result of anticipated sector and government departments are living in increases in investments and spending, or factors settlements because there is a lack of adequate and such as bottlenecks in transport and construction.5 affordable housing and house prices are greater than the average person’s ability to afford. This The economy in Papua New Guinea is highly disparity in housing prices and average income is dependent on imports for manufactured goods. particularly acute in Port Moresby. Its industrial sector (exclusive of mining) accounts for only 9 percent of GDP and contrib- Lack of time-series data in Papua New Guinea utes little to exports. Papua New Guinea is richly makes it challenging to analyse development endowed with oil, natural gas, gold, copper and progress over time. For example, data on poverty other minerals. In 2006, minerals and oil export is outdated, unreliable, not disaggregated and receipts accounted for 82 percent of GDP. A fragmented. The last ‘Household Income and
3 Government of Papua New Guinea; International Monetary Fund, 2010. 4 Asian Development Bank, 2011. 5 Asian Development Bank, 2011. 6 Government of Papua New Guinea, ‘Liquefied Natural Gas in Papua New Guinea’, 2011. 7 Government of Papua New Guinea, ‘National Urbanization Policy 2010–2030,’ Office of Urbanization, Port Moresby, 2010c. 8 Asian Development Bank, 2008. 9 The World Bank, ‘Papua New Guinea Poverty Assessment’, June 2004.
6 CHAPTER 2. DEVELOPMENT CONTEXT AND CHALLENGES Expenditure Survey’ was conducted in 1996 and During the same period there have also been is the only accurate and official assessment of two progress reports on MDG achievement. poverty undertaken (the recent 2010 Expendi- The ‘Papua New Guinea MDG Report 2004’ ture Survey is currently being analysed). This will points to limited progress in certain areas, provide a basis for comparison with development MDG 2: Achieve Universal Primary Education indicators, as the same methodology for calcu- and MDG 4: Reduce Child Mortality. The lating poverty is used for both data sets. Report also noted a lack of progress and stagna- tion for MDG 3: Promote Gender Equality and In Papua New Guinea, approximately 87 percent Empower Women, MDG 5: Improve Maternal of the population (of which about 60 percent Health and MDG 7: Ensure Environmental are women), relies on the informal sector for Sustainability. For MDG 6: Combat HIV and their livelihood. This sector has flourished and is AIDS, Malaria and Other Diseases, the Report a feature of urban and rural life. An important recorded a deteriorating situation, as the national feature is subsistence activities, such as trading and prevalence for other diseases covered by this goal bartering, which are not based on cash incomes. increased substantially.12 These activities enable urban dwellers to survive the demands and socio-economic pressures of The government made specific efforts to improve life.10 There is also an informal social security progress in achieving the MDGs. In 2003 and network that relies heavily on wantoks, people 2004, the Department of National Planning and from the same ethnic group. This social security Monitoring established a committee to review the network supports relatives and wantoks to survive global MDG targets. The committee concluded within urban areas. Unfortunately, these networks that, “for practical purposes and especially for often lead to social problems within families as planning and monitoring in Papua New Guinea, budgets are stretched and the immediate family it would be more meaningful to develop a set of has difficulty making ends meet. national ‘tailored’ targets” adapted to the local context and addressing the national priorities Between 1980 and 2010, the Papua New Guinea’s laid down in the existing MTDS. The national Human Development Index rose by 1.3 percent MDG targets were adopted and incorporated annually, from 0.295 in 1980 to 0.431 in 2010. into the 2005–2010 MTDS in the form of a In 2010, Papua New Guinea ranked 137 out of table in the final chapter dedicated to evaluation 169 countries with comparable data. The Human and monitoring.13 The inclusion of the country- Development Index of East Asia and the Pacific specific targets and indicators for MDGs in as a region increased from 0.391 in 1980 to 0.650 the 2005–2010 MTDS is a significant response to in 2010, placing Papua New Guinea below the improve the likelihood of achieving the MDGs. regional average. However, further emphasis was found to be needed to address other MDG priorities, partic- 2.4 Millennium Development Goals ularly eradicating extreme poverty, improving maternal health, and promoting gender equality The Government of Papua New Guinea made and empowering women. Lack of accurate commitments to link its national development baselines or targets for the identified priorities strategies to the MDGs (in particular, the in the MTDS constrained informed budgetary 1997–2002 MTDS and the 2005–2010 MTDS.11 allocations. Further, the 2004 MDG Report
10 Government of Papua New Guinea, ‘National Urbanization Policy 2010–2030,’ Office of Urbanization, Port Moresby, 2010c. 11 Mission to support preparation of programme of support to achievement of the Millennium Development Goals in Papua New Guinea, 10–26 October 2005. 12 Government of Papua New Guinea and UNDP, ‘Millennium Development Goals: First National Progress Report 2004 for Papua New Guinea’, Department of National Planning and Monitoring, Port Moresby, 2004. 13 Government of Papua New Guinea and UNDP, ‘Millennium Development Goals: Second National Progress Summary Report 2009 for Papua New Guinea’, Department of National Planning and Monitoring, Port Moresby, 2009.
CHAPTER 2. DEVELOPMENT CONTEXT AND CHALLENGES 7 recognized that the lack of reliable statistical data Pacific region to declare a generalized HIV and constrained development planning and made AIDS epidemic. In 2009, 3,711 newly diagnosed monitoring MDG achievement progress difficult. HIV infections were reported, bringing the total cumulative HIV infections to 27,401 by the end In 2009, the government prepared a summary of December 2009.14 The national HIV and report on MDGs progress, the ‘Papua New AIDS Strategy for 2011–2015 estimated the Guinea MDG Report 2009’ (a comprehensive prevalence rate at 0.9 in 2010, a decrease from 1.6 MDG progress report has yet to be approved in 2005.15 More women (71 percent in 2008; 68 by the government). The report acknowledges that the pace of progress towards achieving the percent in 2009) than men (29 percent in 2008; MDGs has not been desirable and that Papua 32 percent in 2009) have been reported with New Guinea is not on track with regard to any HIV infection, which could be due to the greater of the global MDGs. While there was potential number of women being tested. Although the to achieve some of the country-specific MDG percentages are the same, the absolute number of targets, the international targets were less likely infected children (less than 15 years) continues to be achieved (see Annex 4). to increase from 112 (4.0 percent) in 2008 to 150 (4.0 percent) in 2009.16 Different reports vary in their estimation of the prevalence rate. The 2.5 HiV AND AiDS 2009 MDG Report pointed that the national In 2002, HIV prevalence surpassed 1 percent prevalence rate in 2009 is 0.95, and the National among antenatal clinic clients at the Port Department of Health and the National AIDS Moresby General Hospital. In 2004, Papua New Council Secretariat estimates for the same year Guinea became the fourth country in the Asia indicate 0.90, as illustrated in the Figure 1.
Figure 1. National HiV prevalence rate, through 2009
a) Papua New Guinea 2009 MDG Report b) Government of Papua New Guinea data 1.0 1.0 0.95 0.90
0.8 0.8
0.6 0.6
0.4 0.4
0.2 0.2
0.0 0.0 1985 1990 1995 2000 2005 2010 1985 1990 1995 2000 2005 2010
Sources: a) Government of Papua New Guinea and UNDP, ‘Millennium Development Goals: Second National Progress Summary Report 2009 for Papua New Guinea’, Department of National Planning and Monitoring, Port Moresby, 2009; b) National Department of Health and National AIDS Council Secretariat 2009 estimates.
14 Government of Papua New Guinea, ‘2009 STI, HIV/AIDS Annual Surveillance Report’, National Department of Health, 2010a. 15 Government of Papua New Guinea, ‘Papua New Guinea: National HIV and AIDS Strategy: 2011–2015’, National AIDS Council of Papua New Guinea, 2010f. 16 Ibid. See
8 CHAPTER 2. DEVELOPMENT CONTEXT AND CHALLENGES The MDG National Steering Committee declared Figure 2. Number of annual HiV infections the HIV and AIDS epidemic as the single most and cumulative number of HiV infections important impediment to achieving the MDGs. between 1987 and 2008 Since 2004, the impact of the epidemic has 30,000 increased (see Figure 2) and consequently, the 2009 Cumulative number of HIV infections: 28,294 MDG National Steering Committee decided that 25,000 the HIV and AIDS epidemic should once again be placed at the top of its list of cross-cutting chal- 20,000 17 lenges for achieving the MDGs. 15,000
The first national plan with regard to HIV 10,000 Number of annual infections: and AIDS was the National HIV and AIDS 5,084 5,000 Medium-Term Plan covering the period from 1998 to 2002. In 2003, the government adopted 0 the HIV and AIDS Management and Prevention 1990 1995 2000 2005 Act. The Act provides a formal legal framework for addressing discrimination, stigmatization Source: Government of Papua New Guinea and UNDP, 2009. and mandatory screening with respect to HIV. The national 2005–2010 MTDS recognized sensitization and skills training, the establishment the importance of addressing the epidemic, and of organizational infrastructure to ensure imple- HIV and AIDS prevention was included in the mentation of the gender strategies, the collection MTDS as a primary expenditure priority. of information disaggregated by sex and age, and the equitable involvement of both sexes as partic- In December 2005, the government endorsed ipants and beneficiaries. the National HIV and AIDS Strategic Plan (NSP) 2006–2011 as the country’s master plan for combating HIV and AIDS. The NSP 2.6 GENDER EqUALiTy AND 2006–2011 plans for a wide stakeholder response HUMAN RiGHTS to the epidemic in coordination with devel- The government of Papua New Guinea has opment partners. The Plan has seven focal ratified the Convention on the Elimination of areas: treatment, counselling, care and support; All Forms of Discrimination against Women education and prevention; epidemiology and (CEDAW) and three other international human surveillance; social and behavioural change rights conventions. The government has also research; leadership, partnership and coordina- made international commitments to gender tion; family and community support; and moni- equality in implementing both the Beijing toring and evaluation. Platform for Action, the Pacific Platform for Action, and the Commonwealth Plan of Action. In conjunction with NSP, the government Papua New Guinea is also a signatory to the produced a ‘National Gender Policy and Plan on Millennium Declaration. HIV and AIDS’, published in 2006. The Policy describes the gender issues affecting each focus According to the ‘2010 Human Development area and progress made, and identifies strategies Report’, Papua New Guinea is currently ranked to take gender considerations fully into account. 124 out of 157 on the gender-related develop- Recommendations include the need for gender ment index18 and 133 out of 138 on the gender
17 Government of Papua New Guinea and UNDP, ‘Millennium Development Goals: Second National Progress Summary Report 2009 for Papua New Guinea’, Department of National Planning and Monitoring, Port Moresby, 2009. 18 The gender-related development index shows the inequalities between men and women in the criteria of long and healthy life, knowledge, and a decent standard of living.
CHAPTER 2. DEVELOPMENT CONTEXT AND CHALLENGES 9 inequality index.19 Educational disparities are example, the Gender Equity in Education evident in literacy and rates of school enrolment Policy addresses areas of discrimination with and completion. The school completion rate for the aim “to improve the quality of life through girls in grade six is 33 percent compared to that general education for all.” In keeping with the for males at 43 percent. In 2010, only 12.4 percent constitutional goal of integral human develop- of females over 25 had completed their secondary ment for all, the law and justice sector developed education (compared to 24.4 percent of males).20 a gender strategy to promote gender equality for both employees and users of all law and justice One of the most nationally visible areas of inequality sector agencies. The revision and endorsement by is representation in the national parliament. There the National Executive Council of the National is only one woman representative out of a total of Policy for Women and Gender Equality (2011– 109 members—one of the lowest levels of gender 2015) will set the key policy direction for govern- representation in the world. While there are local- ment and partners in all areas of gender equality. level nominated positions for women enabling their participation, women elected to local govern- Despite the passage of targeted legislation, ments are minimal.21 Women’s bureaucratic partic- challenges remain in achieving gender equality ipation in different levels of government and their and reducing violence against women. As recog- ability to influence policy and planning, another nized in a recent ‘Law and Justice White Paper’, key issue, is similarly low. gender-based violence has reached epidemic proportions throughout Papua New Guinea.25 The rate of maternal mortality in Papua New There is currently no legislation that specifically Guinea, a key indicator of women’s status, is one criminalizes domestic violence (cases currently of the highest at 930 per 100,000 births22 and fall under the Criminal Code), and it is often 770 per 100,000 births according to the govern- treated as a private matter. There is reluctance ment figures.23 Furthermore, only 39 percent of to acknowledge domestic and other forms of births are attended by skilled health personnel.24 gender-based violence as public matters or to Community support for health services is poor. understand the dynamics and consequences of This is despite both the government’s 2004–2006 family and sexual violence. Health Medium-Term Expenditure Framework and the 2006–2008 Strategic Plan, which provide In enacting the Sexual Offences and Crimes a strong framework for gender equality interven- against Children Act (2002), the government tions, with priorities on safe motherhood and has taken a significant step towards protecting family planning. women from sexual violence. However, the Act faces severe shortcomings in implementation Papua New Guinea has implemented policies and enforcement. For example, in village courts to address gender inequality in key areas. For it is customary law, not the Constitution or
19 Gender inequality index is a composite measure reflecting inequality in achievements between women and men in three dimensions: reproductive health, empowerment, and the labour market. 20 UNDP, ‘Human Development Report 2010’, 2010b. 21 At the Local Level Governance (LLG), two women are appointed to be members of LLG Council in rural areas, one woman is appointed to be a member of LLG Councils in urban areas, and one woman is appointed to be a member of each provincial Assembly. However, this did not translate into women being elected to leadership positions, such as Council Chairs or heads. 22 UNDP, ‘Human Development Report 2010’, 2010b. 23 Ibid. 24 Ibid. 25 Government of Papua New Guinea, ‘A Just, Safe and Secure Society: A White Paper on Law and Justice in Papua New Guinea’, Office of the Secretary for Justice and Attorney General, Port Moresby, March 2007.
1 0 CHAPTER 2. DEVELOPMENT CONTEXT AND CHALLENGES statutory laws that are primarily applied—though women in conflict prevention, peace building and customary law is ostensibly subordinate to them.26 post-conflict reconstruction. In 2009, Papua New Guinea submitted its first report to the CEDAW The government agencies with specific responsi- Committee. A number of neglected areas, such bility to address gender and women-specific issues as the lack of a comprehensive legal framework include: the Family and Sexual Violence Action addressing violence against women, were still Committee; the Department for Community required to be addressed. Development focusing on gender equality; and the National Council of Women.27 The Family and Sexual Violence Action Committee is an inde- 2.7 Governance pendent body located outside the public service.28 Papua New Guinea is an emerging democracy, The Department for Community Development politically volatile with unstable governments has two distinct areas: the Gender and Devel- susceptible to frequent votes of no confidence. A opment Branch, which focuses on community 2003 report on the Papua New Guinea political development issues, and the Office for Develop- climate identified three main structural barriers ment of Women, which is tasked with developing to establishing sound principles of governance: an an integrated approach to international obliga- unstable political system with weak parties and 29 tions and gender equality mainstreaming. A key intense political competition; weak separation of impediment in the functioning of these agencies powers between the executive and the legislature is that they lack capacities to effectively promote (with the former dominating latter); and a high 30 gender equality within and outside government. level of corruption.31 One of the consequences Lack of budgetary and staff resources, institu- of a weak legislature is that the Parliament is tional constraints, overlapping responsibilities, often adjourned for months.32 Further, legisla- weak technical capacities and poor accountability tive committees do not hold regular meetings or and management diminished the effective func- public hearings. tioning of these agencies. In addition, tribal conflicts and ethnic clashes are The government has yet to develop a national frequent occurrences, which further undermine law strategy to implement Security Council resolution and order, as do rural/urban migration and youth 1325, Women, Peace and Security, which deals unemployment. The lack of capacity of the police with the special impact that war has on women to address law and order or deal comprehensively and children and stresses the necessity to involve with gender-based violence compounds the issue.
26 Committee on the Elimination of Discrimination Against Women, ‘Concluding observations of the Committee on the Elimination of Discrimination Against Women, Papua New Guinea’, CEDAW/C/PNG/CO/3, 30 July 2010, p. 4. 27 The National Council of Women’s primary role is to provide opportunities for mutual understanding among women, to represent women’s views at all levels, to publicize these views, to promote understanding and to exchange views with regional and international organizations in matters of common concern to women. 28 The Committee, also responsible for collecting data from service providers and commissioning research, has succeeded in establishing Family Support Centres in hospitals. It is one of the 12 sectoral committees of the Consultative Implementa- tion and Monitoring Council, chaired by the Minister for Planning and Implementation. 29 The major emphasis of the Gender and Development Branch is on improving women’s social mobilization, empowering rural women, involving them in community governance, and supporting economic empowerment projects and poverty alleviation programmes. The Office for Development of Women has the responsibility for: policy advice and implemen- tation; gender mainstreaming, research, monitoring and evaluation; and coordination and monitoring of Papua New Guinea’s commitments and implementation of its international obligations, conventions and treaties. 30 Committee on the Elimination of Discrimination Against Women, ‘Concluding observations of the Committee on the Elimination of Discrimination Against Women, Papua New Guinea’, CEDAW/C/PNG/CO/3, 30 July 2010, p. 5. 31 Narokobi, B., and Q. Clements, ‘Strengthening a Parliamentary Democracy for the 21st Century’, Legislative Needs and Assessment Report: National Parliament of Papua New Guinea, 2003. 32 Ibid.
CHAPTER 2. DEVELOPMENT CONTEXT AND CHALLENGES 1 1 In contrast to the comparatively lean structure opposed to the 44 parties in the 2002 elections), of the Parliament (109 seats; 89 filled from it is not yet certain that it is the cause of recent open electorates and 20 from provinces, with governments’ relative stability.35 representatives having no permanent offices or staff ), the government has an expansive bureau- cratic system. At the national level, there are 2.8 Environment, energy and 28 ministries and over 140 government depart- climate change ments and agencies. Furthermore, Papua New Guinea has 19 provincial governments and Though Papua New Guinea comprises less than 319 local level governments.33 Although decen- 1 percent of the world’s land mass, it harbours 36 tralized, the Papua New Guinea system of local over 5 percent of its biodiversity. Its ecosystems level government is extremely complicated range from lowland to montane forests, from and costly. This system severely affects service coastal vegetation to alpine flora, and contain delivery and development initiatives, because a some of the most extensive pristine mangrove large portion of the local budgets is being spent areas in the world. This wealth of natural for bureaucracy maintenance (e.g. public service resources is both an asset and a huge responsi- salaries). In the 2010 recurrent budget, $1,425 bility. The resources are an asset because it is million out of $1,766 million (80 percent) was estimated that for the 85 percent of the popu- spent on national departments and provincial lation that lives in rural areas, native biological governments (commercial statutory agencies, the resources provide social livelihoods and physical Autonomous Bougainville Government and debt and psychological sustenance. It is a responsibility servicing make up the remaining 20 percent).34 because as a member of the global community and Furthermore, the dual role of the provincial a signatory to many environmental international governors and government ministers as Members agreements,37 Papua New Guinea has accepted of Parliament and executive heads has concen- obligations to protect and sustainably manage its trated a significant amount of power in a relatively unique natural resources. small circle of politicians, providing opportunities for corruption. While Papua New Guinea has signed and ratified a number of multilateral environmental agree- The government has put forth legislation to ments, many lag in implementation. For example, simplify the structure of government and change the Papua New Guinea National Biodiversity policy-making procedures in order to create a Strategy and Action Plan,38 a commitment under more stable and efficient system of government. the Biodiversity Convention, was launched in For example, the 2001 Organic Law on Integrity 2007 with six goals expected to be reached within of Political Parties and Candidates is designed five years. This has not been implemented and to create order in terms of elections and political stakeholders, including the Department of Envi- party proliferation and to protect the government ronment and Conservation, are unclear as to the from frequent votes of no confidence. While status and progress achieved. While a majority of there has been some improvement (for example, the non-renewable mineral, petroleum and gas the 2007 elections were contested by 34 parties as resources are lucrative attractions for economic
33 United Nations, ‘The Millennium Development Goals Report’, 2009. 34 Budget speech; available at
1 2 CHAPTER 2. DEVELOPMENT CONTEXT AND CHALLENGES growth, a sustainable environment is also key to The establishment of the Office of Climate development goals. Change and Development (which replaced the Office of Climate Change and Environmental Environmental protection has not been a priority Sustainability) represents a new focus for the for the Government of Papua New Guinea. government. Though there is no broad climate Government plans and strategies since independ- change policy yet, the Papua New Guinea Forest ence in 1975 have paid little attention to the envi- Authority launched its Forest and Climate ronment, and the focus has been on economic Change Policy and Reduced Emissions from rather than sustainable development. Since the Deforestation and Forest Degradation (REDD) 1992 Earth Summit, Papua New Guinea has had Policy in 2010 as it prepared to participate in a National Sustainable Development Strategy UN-REDD initiatives in Papua New Guinea.42 but has not acted upon it. Only recently has the The Government of Japan is providing funds to National Strategic Plan Vision 2010–205039 help update the forest cover geographic and land included environment sustainability and climate information systems in order to allow correct change as pillars for development considera- estimates of forest density for REDD work. tion. The environmental impacts of development proposals are considered under the 2000 Envi- Another major environmental issue in Papua ronment Act (which replaced the 1978 Envi- New Guinea is land tenure—communities own ronment Planning Act), together with the 1978 97 percent of the land.43 While this makes Environmental Contaminants Act and the 1982 it difficult to take a national, comprehensive Water Resources Act. perspective for protected areas, in areas where there is a community-level commitment it In the energy sector, Papua New Guinea has produces the most effective protection. Many abundant oil and gas resources. Its long-term communities have a strong appreciation of the Vision 2050 revolves around a 40-year period value of the environment during which the first proceeds of liquefied natural gas development come on stream. Customary ownership of land is often the cause However, as with ecological resources, converting of protracted negotiations and litigation between energy resources into benefits for the 85 percent developers and land owners. One contentious of the population in rural areas has yet to happen. issue is a provision under the Mining and Oil Though some trials in rural electrification by the and Gas Act, which gives the state ownership of state-owned Papua New Guinea Power have been any minerals or petroleum deposits that are more carried out, the Department of Petroleum and than two metres underground. Energy and Papua New Guinea Power have only recently received The World Bank assistance to A major issue of concern is the rapid conversion develop a renewable energy policy and rural elec- of natural forest into plantation forests (e.g. cocoa trification policy.40 These initiatives will build on or oil palm). This is in addition to significant an earlier draft national energy policy statement environmental impacts from mining, agriculture with an accompanying guideline of 2001.41 and other consumptive land uses. The absence
39 Government of Papua New Guinea, ‘Papua New Guinea Vision 2050’, National Strategic Plan Task Force, Port Moresby, 2009. 40 The World Bank, ‘Draft Environmental and Social Management Framework for Papua New Guinea Energy Sector Development Project’, 2011, available at:
CHAPTER 2. DEVELOPMENT CONTEXT AND CHALLENGES 1 3 of a comprehensive national land use plan results and the Republic of Vanuatu in having the in these uses taking place without reference highest percentage of population exposed to to comparative soil values, potential economic severe volcanic risk—the recent volcanic eruption benefits or environmental costs. Plans, such as and subsequent heavy ash fall of Mount Tavurvur the National Forest Plan, have been produced by left many displaced. the Papua New Guinea Forests Authority, but this is in isolation and in conflict with other plans In Papua New Guinea, natural disasters have and uses for the same land—the forestry conces- consistently affected key sectors of the economy, sions overlap areas with conservation values, such as agriculture, infrastructure and community while mining exploration tenements overlap areas livelihoods.45 The social and economic ramifica- with high conservation value. Each government tions of these hazards are multiplied when overlaid department is focused on its goals and vision and with the high levels of vulnerability of people due there is no comprehensive view of the how all to the lack of infrastructure, low human devel- sectors can work collectively to achieve mutual opment indicators and a high population growth benefits for their departments and the people of rate.46 Over 80 percent of the population live in a Papua New Guinea. rural environment and are susceptible to extremes of climate (rains and drought) related to the El A recent positive development, however, is the Niño Southern Oscillation. Scientific evidence government’s new initiative, Environmentally suggests that the frequency and intensity of El Sustainable Economic Growth, which creates Niño events has increased over the last 50 years, a policy framework to strengthen the use of and a major El Niño event will likely result in economic instruments and strategies for assisting severe drought conditions in most parts of the industry and people to sustainably manage their country. Climate change is also likely to exacer- environment and maintain economic growth. bate natural hazards by increasing the frequency of extreme weather events and causing sea-level rise to magnify the impact of storm surges and 2.9 Disaster Risk Management waves on coastal areas. Papua New Guinea is prone to frequent natural disasters, including earthquakes, volcanic In 1984, the government enacted the Disaster eruptions, tsunamis, cyclones, river and coastal Management Act, recognizing the importance flooding, landslides, and droughts. It is also of disaster risk reduction and management. susceptible to monsoon rain-caused floods. The responsibility of disaster management was Papua New Guinea is ranked as one of the top located in the national disaster office in the six disaster-prone countries in the region, and it Department of Provincial and Local Govern- has the highest percentage of population exposed ment affairs. After Cyclone Guba in 2007, a to earthquake hazards. 44 Papua New Guinea also National Disaster Centre was created within the ranked close behind Indonesia, the Philippines Department of Provincial and Local Government
44 Government of Papua New Guinea, ‘Emergency and Disaster Management and Disaster Risk Reduction in Papua New Guinea, Country Report’, National Disaster Centre, 2010b. 45 Between 1997 and 2002, 4.1 million people were affected by 63 major reported calamities. Combined, these events resulted in damage and losses of approximately $57 million. Over the past 25 years, the country has had 508 earthquake- related fatalities, 9 deaths from volcanic eruptions, 3,210 from tsunami/wave surges, 47 from cyclones, 58 from flooding, 314 from landslides and 98 from drought. See Government of Papua New Guinea, ‘Papua New Guinea Development Strategic Plan 2010–2030’, Department of National Planning and Monitoring, Port Moresby, March 2010d. 46 The highlands, with 2.2 million inhabitants, are subject to weather extremes of heavy rainfall and drought. Increasingly, landslides are occurring from population pressures on uncontrolled land use. The coastal areas and many coral atolls are low-lying, and nearly 500,000 people in 2,000 coastal villages are vulnerable to weather extremes and inundation. See The World Bank, ‘Reducing the Risk of Disasters and Climate Variability in the Pacific Islands: Papua New Guinea Country Assessment’, 2010.
1 4 CHAPTER 2. DEVELOPMENT CONTEXT AND CHALLENGES Affairs. The National Disaster Centre provides Resolution Acoustic Measuring Equipment; tide the necessary and appropriate disaster manage- gauges provide feedback to a coordinating project ment services, manages natural disasters in Papua under the Secretariat of the Pacific Regional New Guinea and acts as a secretariat to the Environment Programme and the National National Disaster Committee. Institute of Water and Atmospheric Research in New Zealand. The US National Oceanic and The National Disaster Centre has two divisions, Atmospheric Administration has installed a the Risk Management Division and the natural disaster warning radar on Manus. Community Government Liaison. The Risk Management Division is expected to deal with proactive matters related to disaster risk through 2.10 The role of development research, analysis, awareness, education and cooperation training; the Community Government Liaison handles rapid response and operations. The Papua New Guinea is heavily reliant on external National Disaster Centre has important respon- aid, receiving over $2.3 billion (about a third of sibilities, but weak capacity, particularly in terms its total revenue) between 2003 and 2009. As of staffing. illustrated in Figure 3, this has been about $200 million per year, gradually increasing to a total of The ‘National Disaster Mitigation Policy’ (2004) over $300 million in 2009. and the ‘Papua New Guinea Disaster Risk 47 Reduction and Disaster Management National More recent estimates place the total Framework for Action 2005–2015’ are the key 2010–2011 Official Development Assistance at policy and planning frameworks for disaster risk $457.2 million, of which, $415 million is from reduction and management. The 2005–2010 the Australian Agency for International Devel- MTDS did not refer to disaster risk reduction opment (AusAID). Although it does not appear or disaster management. The ongoing MTDP in Table 1, engagement with China has been mentions disaster risk management, an approxi- particularly intense and fast-growing (China is mately 39,836,000 have been earmarked for now Papua New Guinea’s second largest trading disaster risk management between 2011 and 2015. partner behind Australia). In 2006, the Papua New Guinea budget estimate for China’s aid Papua New Guinea is active in a number of grant was $14.1 million, and in 2007 it was $10.7 regional initiatives. It is a member of the Hawaii million. More recently, China has coordinated Tsunami Warning Centre, and tsunami warnings with the other development partners in Papua are sent to the Department of Mineral Policy and New Guinea by signing the Kavieng Declara- Geohazard Management Geophysical Observa- tion in 2008, which is the localization of the Paris tory. After screening, the information is passed Declaration on Aid Effectiveness Agreement.48 on to the National Disaster Centre for dissemi- Over the last decade, Papua New Guinea has nation. Papua New Guinea reports daily climatic also consolidated links with Malaysia, the Phil- data through the National Weather Services to ippines, Republic of Korea, Japan and several the Tsunami Warning Centre for analysis and other countries.49 The government’s approach feedback on the El Niño Southern Oscillation, to official development assistance, evident in the Intertropical Convergence Zone and the the Vision 2050 document, is to significantly South Pacific Convergence Zone. Papua New reduce its reliance on it, mainly through resources Guinea is also a member of the Sea Land Frame generated by the liquefied natural gas project.
47
CHAPTER 2. DEVELOPMENT CONTEXT AND CHALLENGES 1 5 Figure 3. Official Development Assistance to Table 1. Top ten bilateral and multilateral Papua New Guinea, 2003–2009 development aid donors to Papua New Guinea, 2003–2009 Amount (US$ Millions) Donor Amount 350 (US$ Millions)
300 Australia 1,809
250 EU Institutions 141
200 Japan 95 150 New Zealand 83 100 Global Fund 61 50 United Nations Children’s Fund 20 0 2003 2004 2005 2006 2007 2008 2009 Germany 18
Source: OECD50 UNDP* 17
International Development 16 Association Papua New Guinea is a beneficiary of and contrib- utor to South-South cooperation. For example, Global Alliance for Vaccines 9 Papua New Guinea has learnt from best practices and Immunization and lessons from Uganda and the Solomon Islands *Note: The amount indicated for UNDP only includes core resources. Source: OECD51 on reserving seats in parliament for women.52 Papua New Guinea is also a member of the Melanesian Spearhead Group, which discusses trade and cooperation between the Melanesian Papua New Guinea has also benefited from the countries (Solomon Islands, Vanuatu, Fiji, FLNK Applied Geosciences and Technology Division of New Caledonia and Papua New Guinea). It is (known as SOPAC) and the Secretariat of the also a member of the South Pacific Forum and it Pacific Community, where agriculture and an has benefited through the South Pacific Regional energy framework ensure benefits to Papua New Environment Programme in environmental Guinea.53 Papua New Guinea has given over $0.5 matters. The National Capacity Self-Assessment million to Fiji to assist with the 2009 floods,54 project at the Department for Environment and is thought to have contributed to Samoa and Conservation held the Secretariat of the following the tsunami disaster (this could not be Pacific Regional Environment Programme input. confirmed by the evaluation team).
50 Organization for Economic Co-operation and Development, Query Wizard for International Development Statistics; available at:
16 CHAPTER 2. DEVELOPMENT CONTEXT AND CHALLENGES Chapter 3 UNDP RESPONSE
3.1 THE UN PROGRAMME most vulnerable groups of the citizenry, and this in a manner that ensures sustainability and environ- The UN Country Team in Papua New Guinea mental protection with equal opportunity for both comprises the Office for the Coordination of women and men.” It focused on three strategic Humanitarian Affairs, Joint United Nations areas for a common UN response: enhanced Programme on HIV/AIDS (UNAIDS), UNDP, leadership and partnership; improved access and United Nations Population Fund, United Nations quality of basic services; and improved integra- High Commissioner for Refugees (UNHCR), tion and coordination of Papua New Guinea in United Nations Children’s Fund (UNICEF), regional and global cooperation. World Health Organization, UNIFEM/UN Women, Food and Agriculture Organization, The UNDAF, which was countersigned by the International Labour Organization, United government, “embodies a collective effort of the Nations Environment Programme (UNEP) and [UN Country Team] with the government and The World Bank. Most UN agencies have offices a wide range of partners, who are associated in Port Moresby, with the exception of the Food with development cooperation with Papua New and Agriculture Organization, International Guinea.” Three interrelated issues were identi- Labour Organization, and the United Nations fied, which include: Environment Programme. Improving the quality of governance and The period spanned by this ADR, 2003–2011, human security, including the impor- covers two UN programme cycles that differ tance of reducing poverty and providing for significantly—one is based on the United Nations sustainable livelihoods while protecting and Development Assistance Framework (UNDAF) conserving the environment; approach; the other on the Base Document/ Enhancing the delivery and the quality of UN-CP model. basic services in areas such as education, In 2002, the UN Country Programme cycle for health, housing and water, job creation and Papua New Guinea started with the Common crime prevention; and 55 Country Assessment. The common country Maximizing the opportunities and experi- assessment was an assessment and analysis of ences of regional and global cooperation key challenges in meeting national development and integration. priorities and achieving the MDGs in Papua New Guinea. This led to the formulation of the For the next programme cycle, which started in 2003–2007 UNDAF,56 with the overarching goal 2008, the UN Country Team prepared a Base to “support the government in its long-term effort Document in place of the common country assess- to strengthen the nation’s human resources essential ment.57 The Base Document was the product of to achieve alleviation of poverty particularly in the an extensive consultation process between the
55 United Nations, ‘Papua New Guinea–Common Country Assessment’, United Nations Country Team, Port Moresby, 2001. 56 United Nations, ‘United Nations Development Assistance Framework (2003-07)’, Port Moresby, 2002. 57 Rufina, P. (ed.), ‘Base Document for the United Nations Country Programme 2008-2012’, Port Moresby, 2006.
CHAPTER 3. UNDP RESPONSE 17 United Nations, the government, communi- New Guinea is a self-starter in response to the ties, non-governmental organizations and other global reform process to enhance effectiveness development partners. It endorsed the priorities of development cooperation. It builds on the identified by the MDG Steering Committee in reform agenda set by UN Member States, and 2004 as still relevant and identified other chal- aims to increase the coherence, effectiveness and lenges not necessarily arising from the MDGs. relevance of UN programmes at the country level. The combined list of priority areas according to the Base Document included: The UN system in Papua New Guinea developed a single 2008–2012 (abridged to 2011) UN country Population and development; programme and subsequently one common country programme action plan, operationalized Lack of good governance; through a number of joint annual work plans. Deficient service delivery; Inter-agency task teams are mechanisms through which the annual work plans are designed and Poverty of opportunity; implemented. It is intended that the Executive HIV and AIDS epidemic; Committee of the United Nations Development Group (UNDP, the United Nations Population Effective and sustainable use of natural resources; Fund, UNICEF and the World Food Programme) and non-Executive Committee agencies involved Gender culture and gender disparity; and in the annual work plan work closely together Spatial disparity. during the design, implementation, monitoring and evaluation of the planned activities. These priority areas formed the foundation for the 2008–2012 (abridged to 2011) UN country In April 2007, the Executive Boards of the programme that replaced the UNDAF.58 The respective UN Agencies approved the sugges- UN reaffirmed its support to the goals of the tion to forego a United Nations Development Medium-Term Development Strategy, the attain- Assistance Framework and develop a common ment of the Millennium Development Goals, UN country programme. Despite endorsing the fulfilment of the country’s international human Delivering as One approach, the UN agencies rights obligations and committed to adopting a were required to develop their own country collaborative approach in continued support of programme documents. However, the agency- national priorities. specific country programme documents that were approved in 2007 were in alignment with the common UN country programme and the UN DELiVERiNG AS ONE— country programme action plan. iMPLicATiONS FOR UNDP Initiated in 2006, the main objective of the Deliv- The UN country programme management ering as One approach in Papua New Guinea is structure comprised the Steering Committee, maximizing the impact of UN agency interven- the UN Country Team (supported by the tions by building on achievements, enhancing Resident Coordinator’s Office) and various task government ownership and delivering more teams. The Papua New Guinea UN Country coordinated, effective and efficient assistance Programme Steering Committee is headed by to the country.59 Delivering as One in Papua the Secretary of the Department of National
58 United Nations, ‘United Nations Country Programme Papua New Guinea 2008–12: A Partnership for Nation Building’, Port Moresby, 2007. 59 United Nations, ‘Delivering as One: A Partnership for Nation Building’, 2008, available at:
18 CHAPTER 3. UNDP RESPONSE Planning and Monitoring and further comprises as cross-cutting issues. This is also evident in Senior Representatives of relevant government UNDP programmes (see Chapter 4). departments, the Resident Coordinator and heads of UN agencies. The Resident Coordinator The opportunities and challenges in imple- coordinates the UN country programme, and the menting the UN country programme offer Resident Coordinator’s Office is supported by important lessons. The transition from the staff members with responsibility for monitoring United Nations Development Assistance and human rights. Framework to the UN country programme is still an ongoing process. The UN country programme Although it is not within the purview of the has enhanced inter-agency cooperation and the ADR to assess the progress of the UN country coordination of funding partnerships, particularly programme, some aspects were examined in for the forthcoming programme. The task teams order to draw lessons and assess its implication approach has increased horizontal thematic for UNDP programming. It was evident that the engagement among UN agencies and contrib- UN in Papua New Guinea has made consider- uted to better sharing of information. However, able progress in taking forward the agenda of despite a common programme, it was constrained Delivering as One since its inception in 2006. by a lack of programmatic alignment. The country Despite some cynicism among UN agencies programme was weakest in joint programme about loosing space, identity, credit and financial implementation and at the sub-national level. resources, Delivering as One has been accepted as Although there has been limited duplication a model to further maximize UN contributions of programmes (essentially due UN agencies’ to development. Over the past five years, the UN differing mandates), lack of operational coor- Country Team has contributed, through various dination undermined effective contributions task teams, towards achieving the outcomes to results. There was limited evidence from the of the country programme. The Delivering as ongoing programme to suggest it contributed to One approach also contributed to improving coherence in contribution to development results the coherence of UN programmes in some areas or in working with the government. Further, (e.g. gender equality, MDG support and HIV though there is interest on the part of key govern- and AIDS). While there was joint design and ment stakeholders and donors, there is limited planning, delivering the programmes in terms clarity about consolidating joint programming of implementation remained separate within the opportunities. Efforts towards joint program- respective UN agencies. ming mechanisms (beyond task teams) and greater government counterpart participation The task teams were organized to maximize were not at desirable levels. knowledge and expertise in support of program- matic outcomes as defined in the UN country There were some positive joint programme initi- programme. UNDP assumed a leading role atives that provided opportunities to capitalize on within the UN system, participating in 9 out other agencies’ comparative strengths and avoid 60 of 13 task teams and chairing five. UN agencies duplication. For example: did not substantially participate in all tasks teams (in governance and environment, for example, In the Disaster Response through the where UNDP was the sole agency). While Office for the Coordination of Humani- gender and human rights are outcome areas tarian Affair’s partnership with the National with task teams, they received limited attention Disaster Centre on Human Rights;
60 UN Task Teams include: Bougainville (UNDP-chaired), Crisis Prevention/Disaster Management (UNDP-chaired), Environment and Sustainable Livelihoods (UNDP-chaired), Gender, HIV and AIDS, Human Rights, MDGs (UNDP- chaired), Provincial Planning and Management (UNDP-chaired).
CHAPTER 3. UNDP RESPONSE 19 The Office of the High Commissioner for accountability mechanisms to ensure that each Human Rights, the Office of the United agency delivers needs to be further strengthened. Nations High Commissioner for Refugees and UNDP collaborated on a gender-based Addressing cross-cutting issues and programme violence project with the Royal Papua New monitoring was the weakest aspect of the UN Guinea Constabulary; country programme. For the ongoing country programme, lack of sufficient information on The United Nations Development Fund programme outcomes makes it difficult to for Women (now part of UN Women), the evaluate the effectiveness of UNDP contribu- United Nations Population Fund and UNDP tions to the overall efficiency. While the Resident liaised and cooperated to promote 22 reserved Coordinators Office is overstretched, there are seats in the Parliament for women; and limited mechanisms to ensure that UN agencies UNICEF and United Nations Population have robust monitoring and evaluation systems. Fund collaborated in support to MDGs. This is a particularly weak area of UNDP.
An issue raised during consultations with UN agencies was the high transaction costs in terms 3.2 THE UNDP cOUNTRy PROGRAMME of financial and human resources. Though coor- AND iTS RELEVANcE dination has incremental costs, they should be The 2003–2007 UNDP country programme outweighed by the benefits in terms of maxi- reflected the stated development objectives of mizing contributions to overall development Papua New Guinea, the lessons learned from the 61 results. It was evident that more efforts were first country cooperation framework period and needed to reduce staff and financial transac- those of the broader UN programme as set down tion costs and to maximize staff functions in the in the 1997–2001 Country Strategy Note.62 It also Resident Coordinators Office, particularly for reflected the objectives of the 2003–2007 United monitoring and follow-up on the implementa- Nations Development Assistance Framework tion of cross-cutting issues. (e.g. enhanced leadership and participation; improved access, quality and delivery of basic To some degree, latent competition for financial services; and improved internal, regional and resources contributed to lack of enthusiasm global integration).63 The country programme in the Delivering as One approach among did this by focusing on good governance and UN agencies. A related issue that has been of poverty reduction as overarching goals and iden- concern to some agencies was the accountability tifying nine outcomes under the thematic areas of among UN agencies on timely delivery in joint poverty reduction, gender, human rights, sustain- outcomes. The Resident Coordinator’s Office able development, employment, HIV and AIDS, has been successful in ensuring consensus among MDGs and aid coordination. UN agencies, consensus with the government and donors, and effective functioning of the task UNDP outcomes in the poverty reduction area teams. Considering that the UN in Papua New focus on a range of issues, in particular: improving Guinea is moving towards one budget, resource coordination between the government and allocations among UN agencies appears to be an partners for the implementation and monitoring underlying issue. While there are mechanisms, of the MTDS/MDGs and gender issues, specifi- such as task teams to discuss fund sharing, the cally increasing the number of women holding
61 It was not possible to verify or examine some of these issues in detail. 62 UNDP, ‘Country Programme Outline for Papua New Guinea (2003-07)’, discussion document for the Meeting of the Executive Board of UNDP and the United Nations Population Fund, Second Regular Session, New York, 2002. 63 United Nations, ‘United Nations Development Assistance Framework (2003-07)’, Port Moresby, 2002.
20 CHAPTER 3. UNDP RESPONSE decision-making roles and reducing gender- has a more robust design in terms of outcomes based violence. Democratic governance represents and outputs. the greatest number of outcomes in the UNDP country programme, and it covers a wide scope of The UNDP country programme is closely issues pertaining to the efficiency and effectiveness aligned with the UN country programme; it of national, provincial, and local level functions of directly addresses 5 out of 12 government priori- governments including citizen participation; the ties in the MTDS. All outcome areas (even those protection of human rights by the government not directly related to the MTDS) were endorsed and the empowerment of its citizens; the appli- by the government. The ADR concludes that the cation of best practices by relevant institutions UNDP response, as formulated in the UNDP to enhance nation building; and community and country programme, is relevant to the needs of national support to HIV and AIDS prevention Papua New Guinea. and care. In the area of environment and sustain- able development, UNDP outcomes are aimed at: the Department of Environment and Conserva- 3.3 PROGRAMME DELiVERy tion working effectively with other government institutions for the sustainable use of natural FiNANciAL RESOURcES resources at national, provincial and local levels; In the two country programmes from 2003 to and communities in select provinces enhancing 2011, UNDP committed core funds $21 million their livelihoods through the sustainable use of (see Annex 7). Over the same period, UNDP natural resources. The key outcomes and inter- generated $18.6 million in non-core funding—a mediary outcomes for each programme area are co-funding ratio of just under 1:1. The disburse- presented in Annex 6. ments made by UNDP over the two country programmes from 2003 to 2011 for each thematic The 2008–2011 country programme64 is aligned area, in terms of core and non-core resources, are with the priorities of the UN country programme presented in Table 2. and the government’s Medium-Term Devel- opment Strategy. It outlines four broad areas Twenty-nine out of 39 projects have been of support, which are: democratic governance, completed and the rest are ongoing. The largest HIV and AIDS, poverty reduction, and environ- resource allocations were for projects in the areas ment and sustainable development. Out of the of governance, Bougainville and the environ- five UN country programme key outcomes and ment. According to the information provided by 20 intermediate outcomes, UNDP supports four the country office, $24,049,000 was allocated to outcomes and 10 intermediate outcomes (see projects between the two country programmes Annex 5). (see Annex 6). The finance portfolio shows issues in programme delivery, although it was difficult The 2003–2007 UNDP country programme to ascertain exact figures because the country design is not very robust. Many outputs are at office provided multiple financial data sets. the activity level, and a number of outcomes are at output level. For example, strategies, policies, Until the ongoing programme, UNDP Papua extension services and mechanisms are not New Guinea had a relatively good share of outcomes, although they may lead to outcomes core resources. However, it is possible that if they are part of a strategic, long-term thrust these resources may decrease in the forth- or vision. When compared with the previous coming programme. The country office may programme, the 2008–2011 country programme need to strengthen fund mobilization to ensure
64 Op. cit.
CHAPTER 3. UNDP RESPONSE 21 Table 2: Resources provided by UNDP to different thematic areas, 2004–2011 (US$ thousands)
Resources Environment, energy and sustainable livelihoods Governance HiV and AiDS crisis prevention and recovery Gender MDGs Aid coordination bougainville Human rights
UNDP core resources 2,856 6,038 1,336 2,512 1,280 1,229 977 4,193 573
Non-core resources 4,519 6,189 1,505 926 820 74 922 3,485 158
Total 7,375 12,227 2,841 3,438 2,100 1,303 1,899 7,678 731
Source: UNDP Papua New Guinea
is continuity in initiatives in key areas, such as three locations—a head office in Port Moresby MDGs, governance and gender equality. While and provincial offices in Buka (Bougainville) and the country office will explore cost-cutting Goroka (Eastern Highlands).65 The UNDP staff options, UNDP needs to be more focused in its capacity is 57 in total, which includes 21 project support, concentrating on fewer and strategic staff placed in different government departments. interventions for a longer period of time. For the forthcoming country programme, the country The office is led by the Resident Representa- office outlined possible areas for resource mobili- tive, who is supported by one Executive Assistant zation (e.g. expanding donor base), in alignment and the Deputy Resident Representative of with the UN Country Team. It has also developed Programme and Operations. The programme a Standard Operating Procedure for resource team is led by the Deputy Resident Representa- mobilization for UN Agencies. However, UNDP tive and supported by an Assistant Resident still needs more concerted efforts to forge cost- sharing and funding partnerships. Representative, Programme Specialist and a Programme Analyst to oversee the portfolio.66 The Operations Unit comprised an Operations HUMAN RESOURcES Manager, overseeing Human Resources, Finance, In responding to the needs of Papua New Information and Communications Technology Guinea, the UNDP country office was sited in and Common Services.
65 Both provincial offices were assisted by the UNDP Bureau for Crisis Prevention and Recovery positions and funds. As these have been reduced, the Goroka office, which never became fully functional, has been closed. This caused the failure of the conflict prevention and resolution provincial programme. Further cuts in the conflict prevention and resolution budget may lead to the closure of the Chief Technical Adviser post for gender-based violence in the country office. 66 There are two positions for the Governance Programme (one of which is vacant); six positions for the Environment and Energy Programme (one of which is placed within the government), including three for the Global Environment Facility Small Grants Programme; three for the Millennium Development Goals (one of which is vacant and others may well be project staff ); two for HIV and AIDS (one of which is vacant); one for Aid Coordination (which is vacant); two for Gender (with one vacant); one for Crisis Prevention and Recovery (possibly a project position); and 14 for the Bougain- ville Programme (13 national and a Chief Technical Adviser). The portfolio for Gender, Governance, and HIV and AIDS is headed by the Assistant Resident Representative. There are two positions for Gender, as well as a UN Volunteer Gender Technical Adviser, two positions for Governance (one of which is vacant); and two positions for HIV and AIDS (one of which is vacant). A Programme Specialist heads the portfolio of Millennium Development Goals, and a newly created (2011) project staff position is currently vacant. In Crisis Prevention and Recovery, there is one position for Disaster Risk Management and 14 for the Bougainville Programme (13 project staff and one Chief Technical Adviser), the Environ- ment and Energy portfolio (which includes the Global Environment Facility Small Grants Programme and Sustainable Livelihoods) is headed by a Programme Analyst and supported by a Junior Programme Officer. Four staff members under Sustainable Livelihoods are located in government offices.
22 CHAPTER 3. UNDP RESPONSE There is concern regarding vacancies in areas such former Chief Technical Adviser completed as governance, where one out of two positions is his contract in October 2009, and there was vacant, and in human rights,. The Aid Coordina- a year-long gap before the post was filled tion position has been vacant as the government (leaving the office without a manager). The decided to change the modality of operation, and senior consultant supporting the Autonomous is in the process of revising the terms of reference. Bougainville Government on the development of UNDP is seen as having a comparative advantage its Peace, Reconciliation, and Weapons Disposal in these areas, and there is an expectation that Policy completed his contract around the same staff capacities should be adequate for UNDP to time, thus leaving no experienced personnel take a leading role. in place. As observed by the Bureau for Crisis Prevention and Recovery Review team at the end The governance theme received over 50 percent of of 2009, in the absence of the Chief Technical the total country office budget, yet it was allocated Adviser it would appear that the programme was only two positions (one of which is vacant). In the not making much progress. A replacement for governance portfolio, UNDP has employed the the Bougainville crisis prevention and recovery harmonized approach to cash transfers67 for some programme was made in mid-2010. The situation time. As a result, the Provincial Capacity Building has much improved lately with better continuity, project to strengthen local provincial authorities methodical and strategic planning, and a more is administered and managed by the Department comprehensive approach adopted to determine of Finance and personnel are integrated into the the assistance needs of the new Bougainville departmental structure; hence the lighter level Government. of deployment apparent in the UNDP organi- gram. The governance portfolio also included The staffing situation in the environment area is the Parliamentary Support Project. According to also of concern. It is paradoxical that the Global an independent evaluation, there were numerous Environment Facility Small Grants Programme problems in the governance programme with is coordinated by a three-member team, whereas regard to project management from the very only a single staff member (with assistance from beginning,68 particularly a high turnover of staff a Junior Programme Officer) is assigned to the and key personnel (such as the Chief Technical environment and energy thematic area. One of Adviser). In the case of the Parliamentary the consequences of overstretching staff capaci- Support Project, evaluation findings indicate that ties is that project monitoring is poor. more expedient work in terms of annual work plan development and placement of the project While there are no staff positions for human manager could have produced better outcomes. rights, the country office explained that this is The Provincial Capacity Building Project is because under the Delivering as One model, the subject to similar problems—the Chief Technical human rights project with the Department of Adviser position has been vacant for two years, Justice is managed by the UN Human Rights affecting project delivery. Adviser, who is hired by Office of the High Commissioner for Human Rights. The country Human resource gaps were also evident in the office was also of the view that facets of human Autonomous Bougainville Programme. The rights are integrated into other aspects of country
67 The Harmonized Approach to Cash Transfers to Implementing Partners shifts the management of cash transfers from a system of rigid controls to a risk-management approach. It aims to: reduce transaction costs pertaining to the country programmes of the Executive Committee agencies by simplifying and harmonizing rules and procedures; strengthen the capacity of implementing partners to effectively manage resources; help manage risks related to the management of funds; and increase overall effectiveness. 68 Nakamura, R., N. Johnston and C. Rodrigues, ‘Independent evaluation of the UNDP Papua New Guinea Support to Parliament Project’, July 2007.
CHAPTER 3. UNDP RESPONSE 2 3 office programming in areas such as HIV and interventions. The country office provided a AIDS and gender, which have a rights-based focus variety of different lists of projects and inter- by default. ventions; the evaluation team could not obtain a definitive list. This appeared to be due to the lack Overall staff capacity is below the desirable of institutional memory, possibly resulting from level in numbers and competence. UNDP is the high level of staff turnover. The situation is losing good people because the salaries are not complicated further by the lack of recognition of comparable to those of the private sector. This is individual projects under the 2008–2011 country probably symptomatic of countries that are having programme,69 which relies on an annual work a resource boom, where it would typically take plan—there are no project documents. time to achieve symmetry in remuneration. There has been a huge growth in demand for personnel The ADR team understands that under the Deliv- in many areas, which has created a competing ering as One modality, the Country Programme demand where UNDP is no longer as attractive Action Plan and annual work plan are considered an employer as before. According to the country as substitutes for project documents and provide a office, International Civil Service Commission framework for implementation. Considering that will be conducting a comprehensive salary survey the UNDP programme continues to be project in Papua New Guinea in September 2011 in the based, project documents are key for outlining hope of addressing some of these issues. what is intended through specific interventions/ Government partners see UNDP programme projects—irrespective of modality followed. Lack staff as facilitators, and a few government repre- of project documents not only constrains better sentatives consulted during the evaluation process understanding of UNDP courses of action, roles held that when experts are brought in, they leave and responsibilities of various factors involved, little behind in terms of strengthening national but also complicates assessing progress. capacities. A larger challenge, as pointed out by Although this evaluation is not assessing indi- a government representative, was that capacity is an issue for both the UN and the government— vidual projects, the performance and progress one is unable to deliver, while the other is unable monitoring of project implementation was not to receive. robust at the project level, and there are few, if any, signs of adaptive management, baseline as a The number of staff positions and their levels, as departure point, or a formal plan on how adopted well as deployment to key thematic areas, would targets are going to be reached. There was neither benefit from an in-depth review. More specifically, dedicated staff nor resources for programme adequate staff resources need to be made available monitoring. This was seen as part of the task of to governance and human rights, poverty and the the programme officers, who were already over- MDGs, environment and disaster risk manage- stretched and not in a position to devote time for ment, and aid coordination—these are core systematic programme monitoring. commitments from the UNDP Strategic Plan. Finally, considering that most programmes were intended to strengthen national capacities, the PROGRAMME iMPLEMENTATiON UNDP programme lacked a capacity develop- Projects are the mechanisms through which ment strategy. Considering that monitoring and UNDP achieves its country programme, although documentation is weak, pilot initiatives provided there are also some very important non-project limited learning opportunities.
69 As noted elsewhere, the Delivering as One modality relies on annual work plans instead of project documents.
24 CHAPTER 3. UNDP RESPONSE Chapter 4 UNDP cONTRibUTiON TO DEVELOPMENT RESULTS
4.1 MiLLENNiUM DEVELOPMENT GOALS UNDP supported the Department of National Planning and Monitoring and other national The 2008–2011UNDP Country Programme bodies to develop clearly defined targets and included the following Intermediate Outcome indicators on the MDGs and to integrate them as directly related to the MDGs: the “Government outcome indicators into the Logical Framework of Papua New Guinea efficiently and transpar- Matrix of the 2011–2015 MTDP. As a result, ently coordinates international aid, donors and the MTDP showed significant improvement development partners to facilitate the implemen- tation and monitoring of the MTDS/MDGs.” over its predecessors in terms of MDG visibility. UNDP interventions have been highly relevant, However, the reliability of the data on which considering the slow progress in terms of MDG MTDP outcome indicators are based has not 70 achievement, weak governmental capacities for improved significantly. MDG-oriented planning, weak data systems and While UNDP contributions have been effective, overall lack of awareness regarding the MDGs. there were certain issues pertaining to achieving UNDP supported the 2004 and 2009 national outcomes and their sustainability. The UNDP MDG reports and the 2006 Human Devel- objective of strengthening the capacities of the opment Report for the autonomous province Department of National Planning and Moni- of Bougainville. Support to MDG-fortified toring (DNPM) could not be fully achieved by national planning documents represents signifi- substituting technical expertise. The objective cant UNDP contribution in its assistance to needed a more phased approach to building Papua New Guinea’s progress towards achieving the Department’s capacities in order to enable the MDGs. UNDP technical support to MDG it to function on its own.71 Currently, the small planning and monitoring has been largely budget supports a two-person team attached to through consultants based in the Department of the DNPM (a Chief Technical Adviser and an National Planning and Monitoring. The Chief assistant), which is not sufficient to systematically Technical Advisers provided critical support to build the Department’s capacities. the government in preparing important planning documents (the MTDP and MTDS). They also To a certain extent, data sources improved for provided the necessary expertise for the prepara- the 2009 and 2010 MDG reports, with primary tion of the 2004 and 2009 MDG reports. sources being the 1996 Demographic and Health
70 Most of the information used for the MTDP Logical Framework Matrix was already 10 years old, with certain surveys dating back to 1991 and 1992. See United Nations, 2009. 71 For example, between May 2008 and June 2009, the period between the resignation of one Chief Technical Adviser and the appointment of the next, MDG monitoring and reporting was halted completely at both DNPM and the UNDP office for one year. The 2009 arrival of the new Chief Technical Adviser heralded the resumption of regular project activities in time for the preparation of the latest Papua New Guinea development planning document, the ‘Medium- Term Development Plan 2011–2015’. This was a graphic illustration of the lack of depth at the government level, with programme implementation closely tied to the UNDP appointee.
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 25 Survey, the 2000 Census, the 2006 Demo- Given the significant constraints on MDG graphic and Health Survey, and administrative progress in Papua New Guinea, the current data. However, according to a number of local emphasis UNDP placed on the MDG experts interviewed, the data sources are not fully programme does not appear to be commensurate reliable for outlining national targets and objec- to the country’s needs and priority status, and the tives, and there is a critical need for a compre- thematic area is under-resourced in both financial hensive set of national statistics. The 2009–2010 and staffing terms. The initial MDG project had Household Income and Expenditure Survey a $428,000 budget. By 2008, when the second report, which is expected to be completed this project was extended, the budget had increased year, could provide recent data on several MDG to $1,229,000. The current scope of work and indicators. The nationally tailored MDG targets budgetary allocations to the Chief Technical Adviser are not sufficient for effective capacity- remain as estimates, even in the latest MTDP, building at DNPM, which, if made available, because reliable baseline data is lacking. This lack would result in achieving the planned outcome. of reliable statistical data represents an unan- In addition, the Chief Technical Adviser team at ticipated development challenge in Papua New DNPM is relatively isolated and unable to link Guinea, and highlights a missed opportunity with other UNDP portfolios and projects. Better for UNDP to improve data collection capacities support from the UNDP to the Chief Technical beyond just providing a Chief Technical Adviser. Adviser team would substantially contribute to UNDP, however, intends to address this gap in MDG monitoring and reporting efforts. the forthcoming programme for 2012-2015 by strengthening data collection and systems as well as capacities to use data for evidence-based 4.2 DEMOcRATic GOVERNANcE decision-making. With a budgetary allocation of $12,227,000 since The poor dissemination of the MDG report 2003, the UNDP Governance Programme is the among wider development stakeholders has been largest thematic area of the UNDP country office. a matter of concern considering the need for more Notwithstanding the widely held view among awareness of MDG-related progress.72 In addition, development partners and domestic stakeholders the Papua New Guinea MDG scorecard has that Papua New Guinea represents one of the most challenging environments in terms of assist- yet to be distributed to the relevant government ance to democratic governance, UNDP provided departments. Although UNDP made a significant support to the most important democratic govern- effort to familiarize the Papua New Guinea public ance institutions in Papua New Guinea. While a with the MDGs through radio shows and univer- few interventions supported by UNDP could not sity lectures, it is not evident that civil society be fully implemented, there were considerable and community organizations have access to the successes. This is particularly evident in terms of MDG Report conclusions. There was limited the UNDP partnership with the Department of information available to civil society organizations National Planning and Monitoring. on the progress toward the MDGs. Furthermore, lack of funding has led to the discontinuation of UNDP was more active in the governance area MDG awareness training for provincial govern- during the 2003–2007 programme period. ment officials in four pilot provinces. The Rapid Advisory Services support during
72 Only 600 hard copies of the MDG report were printed, and even if development partners could be promptly supplied with electronic copies, most domestic partners are known to rely on hard copies, given Papua New Guinea’s extremely poor computer availability and Internet access. The small print run may not have reached local development stakeholders, particularly members of civil society who are normally identified as the primary audience of the MDG report. Almost two years have passed since the 2009 MDG report was published, and its limited distribution can still be detected at the local level (e.g. the Autonomous Bougainville Government Planning Department was not aware of the indicators or data presented in the report).
26 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS programme was intended as a flexible support UNDP support to Papua New Guinea’s needs mechanism to respond to continuous develop- in the field of democratic governance has been ment challenges that the government encounters. highly relevant, particularly in terms of the Parlia- The overall goal and objective of Rapid Advisory ment’s capacity to maintain an effective legisla- Services was to facilitate the availability of high- tive role and to perform its oversight functions level advice to the government in most thematic through committee hearings and floor debates. areas covered by UNDP. The 2007 final evalu- This conclusion cannot be made with respect to ation was generally positive about the project, UNDP contributions to the cross-cutting areas noting that the “government and civil society of human rights and gender equality, particu- have received substantial benefits.”73 However, larly in terms of improving government institu- the evaluation also stated “over 80 percent of the tions’ capacities to monitor, promote and protect beneficiaries have yet to submit a report on the human rights in Papua New Guinea. Although funded activity, which makes it difficult for UNDP effective in achieving intended outputs, the to measure the outcome of an activity as well as UNDP financial management initiative was account for the funding spent on the activity.”74 designed as a foundational project aimed at estab- The evaluation does not list the specific activities lishing the principles of good governance in order that required reports, but evidently a number of to improve service delivery. The following three activities failed to provide a clear connection to sections analyse the key outcomes and interven- the overall outcome. tions under them. It was not feasible for the ADR to validate some of the Report’s observations, and a few LEGiSLATiVE SUPPORT interviews indicated that UNDP was unable to The first outcome/output was national and respond rapidly due to capacity constraints at selected provincial parliaments function more that time. UNDP also supported the promotion effectively to carry out their legislative and of human rights and civil and political freedoms oversight roles; three interventions carried out (e.g. voter education or corruption awareness). include Strategic Interventions Initiative, the However, patchy information and lack of insti- Support to Parliament project and Support to the tutional memory hindered the assessment of the Office of Legislative Counsel. 2003–2007 country programme. Strategic interventions initiative Information is somewhat better for the period from 2008 to the present. The UNDP outcome The Strategic Interventions Initiative is the contin- for this area in the ongoing programme is: uation of the Rapid Advisory Services project for “government develops and implements effective the 2008–2011 programme period. This initiative governance and crisis management policies and is the second largest expenditure project in the strategies based on the principles of good govern- democratic governance portfolio (with $1,960,000 ance.”75 This outcome includes four outcomes spent out of a budget of $2,071,000).76 This initia- and outputs aimed to: support the Parliament tive will enable UNDP to have a flexible approach and provincial governments; enhance financial and the ability to respond quickly to emerging management and service delivery; respect and priorities and needs that were not anticipated promotion of human rights; and promote best during the formulation processes of the country practices for conflict prevention and recovery. programme or the annual work plan.
73 UNDP, ‘Independent Evaluation of the Rapid Advisory Services Project (2004–2007)’, September 2008. 74 Ibid. 75 UNDP, ‘Country Programme Document 2009–2012: Papua New Guinea’, 2007a. 76 UNDP Papua New Guinea Programme Information, March 2011.
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 27 Under the initiative, seed funds were provided Support to Parliament to strategic interventions, such as support for The Support to Parliament Programme ran into more inclusive development and an improved difficulties early in the 2008–20112 implementa- standard of living for all Papua New Guineans, tion period: UNDP staff were asked to vacate the based on economic gains from liquefied natural gas projects; and support to the Papua New office established in the parliamentary premises, Guinea Forest Authority to raise awareness about which effectively ended the project. An earlier 78 sustainable forest management and the protec- evaluation of the project points to numerous tion of biodiversity and ecosystem services that problems with project management from its are critical for the sustenance of people’s liveli- beginning, in particular the high staff turnover hoods. The Strategic Interventions Initiative (e.g. the Chief Technical Adviser left before work has not yet undergone an external evaluation. had begun). Although managerial problems did Without an in-depth evaluation, it is difficult to not cause the project to fail, the ADR findings determine its overall relevance and effectiveness indicate that more expedient work in terms of for a number of reasons: annual work plan development and placement of the project manager could have resulted in There is no detailed project document that different results, or at least more outputs before offers the framework for the Strategic Interven- the project was terminated. tions Initiative and its relation to the country programme outputs and the overall outcomes; 77 Despite the difficulty in continuing the Support Although the output in the annual work plan to Parliament, the project evaluation, stake- refers to assisting the “Government of Papua holders and development partners consulted by New Guinea departments and non-govern- the ADR found the intervention was positive and mental organizations to have the capacity commendable because it was initiated in a very to respond to the MDGs with coordination volatile and difficult political climate.79 However, support from the UN,” it is not clear how and in past years UNDP made very few attempts to to what extent the initiative supports MDG re-establish cooperation with the parliamentary implementation, and more importantly, structures or to find alternative routes to address which MDGs are being targeted; and the planned country programme document Local beneficiaries, development partners and outputs. Some government officials indicated UNDP managers from other thematic areas that alternative routes that were available had covered by the Strategic Interventions Initia- not been explored (e.g. shadow parliamentary tive (e.g. HIV and AIDS, MDG support, committees or the Clerk’s Office). disaster risk reduction/management) are not aware of the project’s existence, which raises Support to the Office of Legislative counsel a number of important questions: Why did the project have such a low profile that so UNDP maintained a level of involvement in the few partners were aware of it? Why was the legislative branch of the government through Strategic Interventions Initiative available technical support (Web site development and to government partners as opposed to civil study tours) to the Office of Legislative Counsel society organizations or educational insti- project. There are opportunities for further tutions? Why did UNDP not use available engagement, particularly because the office repre- national expertise for providing support to sents a crucial technical link between the Prime the government? Minister’s department and the Parliament.
77 Strategic Interventions Initiative Annual Work Plan 2008, 2009. 78 Nakamura, R., N. Johnston and C. Rodrigues, ‘Independent evaluation of the UNDP Papua New Guinea Support to Parliament Project’, July 2007. 79 Ibid.
28 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS The project’s sustainability is not clear, although of procurement, claims and asset management; the initiative demonstrates potential for up-scaling and on strengthening reporting procedures at the and future development. The project’s staff district, provincial and central government levels. members are generally satisfied with the coop- The Department of Finance staff, which imple- eration, and have insights and promising ideas mented the project, reported positive impacts in on how to continue and upgrade the current level the education of provincial and district treasurers. of UNDP aid to the legislative drafting process. The project’s procedures have been emulated by This is particularly evident in their suggestions managers in other districts and provincial depart- on how to approach the Parliament and support ments outside the project. the legislative process without taking unneces- sary political risks (e.g. by providing technical The infrastructure support, training and mentoring support to the Parliament Service Office and/ of treasury staff in maintaining current bank or the Clerk). There were also suggestions that reconciliations and the preparation of financial the government needs to be supported for more reports in many ways contributed to addressing the effective policy coordination on an annual basis backlog of bank reconciliations in most provinces, in order to improve Papua New Guinea’s record and also improved relationships between adminis- in progressing towards achieving the MDGs trators and treasurers in some provinces.80 Though (e.g. supporting the Leader of the Government the programme is progressing well in terms of Business Office). achieving specific outputs, it is too early to make observations on its contributions to results in terms of improved service delivery at the sub- PROViNciAL cAPAciTy bUiLDiNG national level. The programme’s contributions will, The second outcome/output target was a demon- however, be critical because the release of addi- strable improvement in financial management tional funds to the provinces requires timely and and accountability leading to better service quality reporting by provincial treasuries. delivery. Human Development Reports were produced and published, and the initiative aimed The scope and reach of the project raised at improving provincial and district capacities questions regarding overall progress towards through the Provincial Capacity Building project, the planned outputs and outcomes. The project which had two phases running from 2004–2007 has been implemented in 6 (Central Province, and from 2008 to the present. The project is a joint East New Britain, Eastern Highlands, Milne programme of Department of Finance, UNDP Bay, Morobe Province and Western Province) and AusAID, focusing on capacity building in of 19 provinces, and despite requests from sub-national treasury functions. other provincial authorities for the project to be expanded, the number has not increased in the The first, foundational, phase of the Provincial second phase. There are also questions over the Capacity Building project focused on building planned outcomes that target improved service the capacities of provincial treasuries in terms delivery at the provincial and district level—it is of equipment and basic training. The project’s very difficult to measure the project’s impacts on second phase supported the Government of Papua service delivery in the provinces. Furthermore, New Guinea Financial Management Improve- the 2009 MDG progress report suggests that the ment Programme by developing capacities overall level of service delivery has not improved around Public Financial Management at the sub- and may have even stagnated in certain areas. national level and assisting with the implemen- tation of the Integrated Financial Management Integration with other sub-national initiatives System. The focus was on advanced development and government monitoring mechanisms that
80 Chapman, R., ‘Provincial Capacity Building Programme, Phase II, INH766, Mid-Term Review’, Government of Papua New Guinea and UNDP, October 2010.
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 29 are currently lacking is key to achieving strength- Rights Commission. Capacity developed in ened fiscal systems at the decentralized level. As relevant departments to mainstream human also pointed out by the mid-term review, to more rights considerations into their budgets, and holistically address service delivery and financial UNDP carried out two short-term interventions management bottlenecks at the provincial and in the 2003–2007 planning period—Human district levels, the programme should include Rights Advocacy (2005) and Strengthening of support to strengthening planning, budgeting and Human Rights (2007–2008). Since 2008, UNDP expenditure procedures in addition to continuing has been part of a joint UN effort through the to address financial reporting requirements.81 UN Human Rights Programme in Papua New Guinea. These efforts are ongoing. One of the most important components of the project, the production of the Human Develop- Most of the human rights outcome interven- ment Reports in targeted provinces, has not been tions were short in duration, focused mainly on initiated due to lack of capacity in the Depart- capacity-building for the Ombudsman Commis- ment of Finance. This failure results from the lack sion of Papua New Guinea. Progress towards of a needs assessment of the prospective project’s human rights outcomes is limited—the National executing agency and thinly spread country office Human Rights Commission has not been estab- human resources. In addition, UNDP missed an lished; and the parliamentary committees that opportunity to create synergies within their own were expected to work on human rights protec- thematic areas and projects in order to enable tion issues are either inactive or dormant (e.g. this project output. The MDG monitoring the HIV and AIDS committee) or have yet and support initiative could have significantly to be established. The National Ombudsman benefited from the Human Development Reports Commission does not have the necessary capacity in the pilot provinces, particularly because the to monitor and process human rights abuse MDG support project had an awareness-raising claims, particularly outside the capital and the component in some pilot provinces. national capital district. The Commission lacks While strengthening the bureaucracy’s capaci- the budgetary allocations necessary to conduct ties is critical, the Provincial Capacity Building basic human rights awareness-raising campaigns. project was not extended to inform decision- UNDP worked with Transparency International making or policy towards better service delivery on voter education and corruption awareness at the provincial and district levels. Also, if the projects, both of which were short term and project was intended to lay a foundation for limited in scope and reach (e.g. only 200 schools more efficient service delivery, it is not clear why were targeted in the education project).82 The it was not replicated in more than six provinces government was not involved as a partner in the (if phase one was successful), or what options projects, and there was no follow-up or plans for were available for up-scaling beyond the now- replication in the run-up to the 2012 elections. improved technical capacities of the provincial and district treasury staff. UNDP also supported the Department for Community Development in its efforts to increase women’s representation in Parliament; provided SUPPORT TO STRENGTHENiNG technical assistance to the drafting of the Equality HUMAN RiGHTS and Participation Bill; and supported awareness The third outcome/output sought by the country raising and advocacy for women’s political partici- programme was to establish a National Human pation and representation. UNDP provided
81 Ibid. 82 UNDP, ‘Good Governance and Anti-Corruption Education Project Document, 2007–2008’, 2007b., Annex 2.
30 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS assistance to address stigma and discrimination transparency in governance, free and fair elections, through legal reforms to decriminalize sex work, improving the country’s human rights record, and male-to-male sex and transgender issues so that stabilizing political parties. these groups can access treatment, care and support services on an equal basis as any other person. 4.3 ENViRONMENT AND ENERGy Currently, staff capacities in the country office Recognizing the value of the Papua New Guinea to support human rights related activities are not environment and the country’s international adequate. With only one Human Rights Adviser obligations, UNDP made the environment and working on behalf of the entire Country Team, energy thematic area its third largest (only the progress towards the human rights outcomes is governance and Bougainville areas are larger) in rather modest. There was no evidence of UNDP terms of financial resources (core and non-core) contributions to joint UN efforts or a system- allocated to it over the past eight years. UNDP atic approach to mainstreaming human rights responded to two of the key issues identified in concerns in UNDP programmes. UNDP also the governance section, viz., the weak governance needs to better use the services of the of the structure and the need to involve communities Office of the High Commissioner for Human as landowners. Overall, the UNDP programme Rights Adviser in the UN Country Team to is relevant to the environmental needs of Papua accomplish the envisaged outputs and outcomes New Guinea, and its environment and energy in the 2008–2011 country programme document. interventions are helping the government meet The positive aspects of interventions with Trans- its international commitments on environment, parency International and the Ombudsman biodiversity and climate change. Commission will fade completely if the country The country programme output for environment office does not raise its current low levels of and energy was the use of improved sustain- attention to human rights issues. able livelihood practices by rural communities in Although limited in scope and reach, and after select provinces by 2012. The country programme targeted three outputs: capacity building, having undergone a period of relative contraction, energy and climate change and rural commu- the UNDP governance programme has great nities’ sustainable livelihoods. In addressing potential for expansion. The UNDP reputation these outputs, UNDP developed a portfolio of as an impartial development partner is a great 14 projects83 over the eight-year period of the last advantage and strength. Government and donors two country programmes. interviewed by the ADR noted that the UNDP governance programme lost its momentum since the collapse of the Parliament Support project cAPAciTy bUiLDiNG and that as a key player, UNDP should provide Under capacity building, the output sought was the sustained support in key governance areas. In Department for Environment and Conservation the forthcoming programme, UNDP should (DEC) has the capacity to develop, implement consolidate the dispersed interventions related to and monitor policies and regulatory frameworks strengthening governance, and provide long-term to promote environmental sustainability. support in a few key interventions. Many stake- holders suggested that UNDP, as a key agency A long-term capacity building project to assist in the governance area, should be proactive in the DEC with some of its core functions is in engaging in complex governance issues such as its second phase. This project was based not on
83 The country office provided different tables listing different numbers of environmental projects. There were also incon- sistencies in budget amounts. This ADR is based on the finance information provided during the scoping mission, considering it representative of the portfolio (see Annex 7).
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 31 a formal capacity assessment, bur rather on ENERGy AND cLiMATE cHANGE observations and available reports. There is also Under energy and climate change, the output no overt baseline against which to monitor and assess performance, and as far as can be ascer- sought was to increase the Office of Climate tained, no evaluation has been carried out. Change and Development’s capacity to develop UNDP proposed a needs assessment but the climate change policy and coordinate activities to DEC declined, saying that the Global Environ- address initiatives on climate change. Of the two ment Facility National Capacity Self-Assessment national projects, the Second National Commu- project serves the purpose of a needs assessment. nication to UNFCCC has had serious delays, The evaluation team disagrees, since the latter and the Enhancing the Adaptive Capacity of focuses on the capacity for implementing the Communities in Papua New Guinea to Climate three Rio Conventions and does not address the Change and Disaster Risks in the Coastal and capacity needed to address other priority areas for Highlands Regions project is still in the formula- Papua New Guinea, such as land-use planning tion stages—there are no results yet. and controlling the impacts of mining and hydro- carbon extraction. Papua New Guinea participated in three regional/ global climate change projects: the Pacific Adap- UNDP support to the DEC has led to modest tation to Climate Change Project and the Pacific improvements in the level of mainstreaming of Islands Greenhouse Gas Abatement through environmental considerations; these considera- Renewable Energy Project, both of which are tions are now a critical element in national devel- underway, and the UN-REDD Project, which opment planning processes. For example, DEC has ensured that environment and conservation has yet to begin. The Pacific Adaptation to targets are captured in the 2011–2015 MTDP, Climate Change Project is progressing well (after and new strategies for conservation, such as the an initial, minor delay when the original Climate payment for ecosystem services model, are floated. Change Office was abolished). The government The Environmentally Sustainable Economic is co-funding its component, and the Depart- Growth Policy has been drafted and awaits the ment of Agriculture and Livestock is optimistic creation of the Conservation and Environment about achieving a sustainable outcome. Unfortu- Protection Authority before being finalized. In nately, the Greenhouse Gas Abatement Project addition, the Sustainable Indicators Branch was is not progressing as well. The Department of created in DEC to develop an integrated database Petroleum and Energy is unenthusiastic, and the for the environment, which will contribute to co-funding commitment has not been honoured. Papua New Guinea’s reports on progress towards Papua New Guinea is a pilot country for MDG 7. The Department for Environment and UN-REDD, with UNDP coordinating develop- Conservation capacity has improved, particu- ment partners to strengthen Papua New Guinea’s larly in its Policy Coordination and Evaluation agency capacity. A National Joint Programme has Wing, even though this is not always used to been sent to the UN-REDD Board for consid- its advantage. DEC divisions tend to work in a eration, and the project is expected to be imple- fragmented manner with little communication between them, making it challenging for it to mented this year. adopt a comprehensive programmatic approach, This output sought to develop the policy and such as the one proposed by UNDP. activity capacities of the Office of Climate A good foundation for promoting environmental Change and Development. Though new policy sustainability has been laid, though it is a work in remains elusive, some coordination of activities progress. Unfortunately, work under this output has begun. The output has been partly achieved, does not seem to contribute directly to the over- though it does not closely correspond to the over- arching outcome for environment and energy. arching outcome of the country programme.
32 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS RURAL cOMMUNiTiES’ initiative. It is expected to become operational SUSTAiNAbLE LiVELiHOODS in 2011. Under the rural communities sustainable live- Global Environment Facility lihoods, the output was that the communi- Small Grants Programme ties would have the awareness and mechanisms to apply innovative environmentally sustain- The Small Grants Programme, which started in able income earning opportunities, including Papua New Guinea in 1994, is targeted at non- community-based ecotourism, non-timber forest governmental organizations and communities. It products, sustainable agriculture and eco-forestry. comprises grants to a broad projects portfolio within There were four initiatives: the Milne Bay project the scope of Global Environment Facility thematic has been completed, the Community-Based areas. The programme faltered because of the Ecotourism Project stalled after completing security situation in Papua New Guinea, difficult its preparatory stages, the Community-Based geography and transport barriers. These factors Forest and Coastal Conservation and Resource were compounded by allegations of bad manage- Management project is in the final formulation ment practices following assessment missions in stages, and the Global Environment Facility 2001, 2004 and 2006. However, the Programme Small Grants Programme is ongoing. has recently been revitalized with new personnel and a functional National Steering Committee. Milne bay Project The scope of the now completed Milne Bay The Small Grants Programme should be more Project was broader than communities and liveli- proactive in seeking implementing partners hoods—it sought to strengthen marine protected rather than simply soliciting an array of proposals. areas, assist community organizations to manage Programme staff should identify needs at the these areas and provide curriculum development provincial level and seek recommendations from in schools. It was funded primarily by the Global key champions, thus adopting a strategic perspec- Environment Facility and executed by an inter- tive. The perception of Small Grants Programme national non-governmental organization. An partners was that it should have a more cohesive evaluation of the Milne project points out that approach, with grantees being brought together the project encountered significant operational to share experiences at the end of their projects. problems, but satisfactorily achieved its objective Further, UNDP should create a database of the 84 and outcomes. results obtained and lessons learned from past projects, thus encouraging improvements in subse- community-based Ecotourism project quent project execution. This will also facilitate The Community-Based Ecotourism Project is to UNDP partners’ learning from the pilot initiatives. produce a project document for a four to five-year pilot initiative in ecotourism in select communities. Donor partners, non-governmental organiza- It has completed its preliminary phase, but appears to tions and other stakeholders noted that with be stalled. No final evaluation or reports are available, its focus on upstream policy levels, UNDP nor is project or results documentation. was seen as having alienated itself from the community and grass-roots levels, except in the community-based Forest Small Grants Programme. The Small Grants and coastal conservation and Programme could be used more strategically as Resource Management Project a pathfinder for further, more substantial commu- The Community-Based Forest and Coastal nity-level projects. Conservation and Resource Management Project is in the final formulation stages and will bea While the Small Grants Programme aimed substantial Global Environment Facility-funded to enhance awareness among communities and
84 UNDP, ‘Final Evaluation of the Milne Bay Community-based Coastal and Marine Conservation’, Global Environment Facility, 2006.
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 33 to support innovative environmentally sustain- Bougainville, for example, UNDP has been instru- able income-earning opportunities, invest- mental in reviving the economy, primarily through ment in community projects has produced few the cocoa industry. However, native forests are tangible results. being cleared for cocoa and oil palm plantations without reference to comparative values and potential benefits—an analysis that depends on OTHER ENViRONMENT AND ENERGy PROjEcTS comprehensive land-use plans, soil maps and flora and fauna surveys. According to UNDP, it did not Three other projects in the environment and support surveys and analysis, as other develop- energy portfolio do not fit under any of the ment partners were assisting the government with targeted outputs and make no overt contribu- these tasks as part of other initiatives. However, tions to the overarching outcome. One of these this does not appear to be a valid reason for lack projects, the Remote Sensing Land Use Initiative, of UNDP engagement, as there were no other completed successfully and achieved its objective. agencies undertaking these activities. The initiative was funded by UNDP target for resource assignment from the core funds (along Inordinate delays and repeatedly deferred with partner support), and was implemented by deadlines are common features of environment the University of Papua New Guinea. Another and energy interventions. For example, according project is an ongoing sustainable land manage- to the ‘Quarterly Progress Report for the Third ment initiative funded by GEF that aims to Quarter 2010’, the delivery rate of the environ- strengthen human and institutional capacities. ment task team was about 35 percent, which is A third project was a local implementation of a well below the average of 59 percent achieved GEF/UNDP global initiative on the Programme by UN task teams in general. According to the of Work on Protected Areas. The implementa- same report, the environment task team had the tion was transferred to The Nature Conservancy. highest rate of delayed deliverables (40 percent), and the lowest rate of deliverables on track (53 UNDP has not been very effective in its environ- percent). This is generally the result of govern- ment and energy portfolio of projects. No output ment capacity being so weak that it is unable to has been fully achieved, and only slight progress absorb the full measure of support that UNDP has been made towards the overarching country is providing. Compounding this, UNDP support programme outcome. Although the UNDP is not as strong as it could or should be because response was relevant in general, it appears to be its capacity is also low. In addition, environment somewhat ad hoc and not proceeding according projects in Papua New Guinea face challenges to a well-founded strategic approach. The due to a lack of local expertise, security concerns country office explained that the government’s and problems relating to land ownership and commitment over the years has been inadequate corruption. to ensure a sustained approach in responding to environmental problems. According to interviewees, there is untapped capacity in the Papua New Guinea academic Some gaps, such as those for land-use planning, institutions. However, the Department of Envi- are foundational and could underpin the Protected ronment and Conservation does not have a good Areas Programme to identify and secure areas of working relationship with them. This is thought high ecological and biodiversity value. It could to be due to the different technical levels at which also provide a basis for decisions in the face of the two organizations operate. In these circum- liquefied natural gas developments, mining, stances, UNDP should leverage its credibility and other consumptive land-use developments, and contextual understanding to match needs or serve as the basis for thorough and effective with the best source of solutions and create the environmental impact assessment processes. In necessary linkages.
34 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS Strong partnerships, particularly with non- 4.4 HiV AND AiDS governmental and civil society organizations, is Papua New Guinea is a signatory to the United an area where there were limitations in UNDP support. UNDP has several implementing Nations General Assembly Special Session on partners for environment interventions in the HIV and AIDS (UNGASS) Declaration of government, such as the Department of Envi- 2001. The Declaration requires comprehensive, ronment and Conservation, the Department of international reporting on the HIV and AIDS Agriculture and Livestock, the Department of context. Papua New Guinea produced its first Petroleum and Energy, the National Forestry UNGASS Report in 2008 and its second in Authority, the Office of Climate Change and 2010. The first ‘2008 Country Progress Report’ Development, the Tourism Promotion Authority, provided information on 16 of the 24 UNGASS the Department of National Planning and Moni- indicators with regard to HIV and AIDS. toring, the National AIDS Research Institute According to the 2009 MDG report, which used and the National Research Institute. In addition, the 2008 UNGASS data, the published values of there are civil-society partners (e.g. Eco-Forestry the 16 UNGASS indicators in 2008 confirmed Forum and its member organizations), which are that Papua New Guinea was not on track with its 85 largely one-off partnerships. efforts to achieve MDG 6. In addition, in 2008 there was no alignment between the UNGASS Sustainability of programme outcomes was indicators and the national indicators included in largely related to programming arrangements the 2005–2010 MTDS or the proposed national and clarity in roles and responsibilities between indicators for the 2011–2015 MTDP (which are the government and UNDP. Lack of government also the same for the 2010 UNGASS report). ownership of programme interventions further contributed to poor sustainability. According to The 2010 UNGASS report was an improvement one of the ADR respondents, “sustainability is in terms of available data; it provided information assured only if the donor continues to have an for 20 of 25 UNGASS indicators. However, as input, or if a good non-governmental organi- in the first report, much of the UNGASS infor- zation is involved ... there is no depth and no mation provided was based on estimates or relied champions on the government side.” In addition, on small-scale surveys that were not necessarily lack of capacity and resources constrained sustain- representative of the country.86 For example, the ability—there was no organization to hand a data source provided for Indicator 16 (higher-risk project over to. Both UNDP and the government sex) is described as follows: “the data included in need to do more to ensure sustainability. the previous report is from a demographic health survey whereas the value included here is from Papua New Guinea presents a major conflict a survey conducted in one, urban/peri-urban between environment and development, with location—Kimbe.”87 To become more useful for the government and the private sector wanting policy-making, planning and monitoring, the to exploit its rich natural resources with the UNGASS indicators need to be localized and resultant impact on the country’s incomparable aligned with national policies and plans. ecological richness. As the only development agency providing support in the environment There have been significant increases in the area in Papua New Guinea, UNDP is faced with number of test sites for HIV and AIDS over a challenging position. the years, from 4 in 2004, to 201 in 2008, and
85 Government of Papua New Guinea and UNDP, ‘Millennium Development Goals: Second National Progress Summary Report 2009 for Papua New Guinea’, Department of National Planning and Monitoring, Port Moresby, 2009. 86 For many of the UNGASS indicators, the numerator cannot be measured precisely. Moreover, the denominator is often also unknown. 87 UNGASS, ’Country Progress Report Papua New Guinea’, 2010.
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 35 to 250 in 2009.88 The increase in the number of evaluation was particularly positive about the tests conducted has also been significant, from outcomes and achievements of the leadership 1,407 in 2004 to 120,607 in 2008.89 However, in programme in terms of institution building and spite of the large increase in the number of test the overall government response.91 A key evalu- sites and the number of tests conducted, inter- ation finding is that the UNDP HIV and AIDS views suggest that a significant portion of persons Leadership Development Programme served as infected with HIV are not tested or recorded. a catalyst and created the necessary political will Some indication of this may be that, according and government support for institutional and to 2009 government estimates, 93 percent of all legal reforms in the national response to HIV and HIV cases in 2008 were reported in only 8 of AIDS. The initiative also resulted in the endorse- the 19 provinces.90 Furthermore, testing is still ment by Parliament of a Special Parliamentary mainly restricted to women attending antenatal Committee on HIV and AIDS, and a related clinics, blood donors and high-risk groups. increase in budgetary funding from $301,000 in 2004 to $1.78 million for 2005.92 Furthermore, During the 2003–2007 country programme building on its work with the political leaders and planning period, the UNDP response comprised in collaboration with UNAIDS, UNDP success- two projects within its HIV and AIDS thematic fully launched the Parliamentarians Forum. area: the Support to National HIV and AIDS Programme ($484,000); and the Monitoring and Foundational UNDP projects clearly contributed Evaluation Enhancement Programme ($682,000). to establishing an institutional framework in Papua New Guinea, and facilitated government efforts These efforts represented a second cycle of towards an improved national response to the UNDP assistance to HIV and AIDS response growing epidemic. In terms of legislative reforms, in Papua New Guinea, which was primarily UNDP successfully supported the enactment of the focused on building the institutional capacity 2003 HIV and AIDS Management and Preven- of the National AIDS Council and its secre- tion Act, which formally provided a legal basis for tariat as the main executive body. In coordina- protection of basic human rights for people living tion with other development partners, mainly with HIV and AIDS. In order to promote the new AusAID, the initial capacity-building effort had legislation, UNDP is facilitating greater involve- four main objectives: establishing a parliamentary ment of people living with HIV and AIDS in the committee on HIV and AIDS; creating a Moni- response effort, some of them finding successful toring and Evaluation Unit as the National AIDS employment with development partners. Council; establishing a core group of leaders who were to become champions of the HIV and Recently, the support structures created in 2005 AIDS response; and improving the provincial have been struggling to provide the necessary level’s HIV and AIDS response. institutional support to the epidemic response. Although the Special Parliamentary Committee In 2005, an independent evaluation focused on HIV and AIDS is one of the most successful on the UNDP HIV and AIDS response. The outputs of the UNDP Leadership Development
88 Government of Papua New Guinea, ‘2009 STI, HIV/AIDS Annual Surveillance Report’, National Department of Health, 2010a. 89 Government of Papua New Guinea and UNDP, ‘Millennium Development Goals: Second National Progress Summary Report 2009 for Papua New Guinea’, Department of National Planning and Monitoring, Port Moresby, 2009. 90 According to the 2009 MDG Report (ibid.), these provinces are: NCD (40 percent), Western Highlands (17 percent), Eastern Highlands (15 percent), Enga (7 percent), Morobe (7 percent), Southern Highlands (5 percent), Chimbu (2.5 percent), Madang (2 percent). 91 UNDP, ‘Support to the National HIV and AIDS Response in Papua New Guinea: Evaluation Report’, 2005. 92 Ibid.
36 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS Programme, it has been relatively inactive in Developing 55 programme monitoring indi- performing its basic responsibilities. Interviews cators and guidelines through a participatory with national stakeholders indicate that the process and launching in September 2007; and Committee is constrained by poor funding and lacks the capacity to meet on a regular basis, Establishing a coordination mechanism at the conduct public hearings, or support the necessary provincial level through the introduction of and relevant legislative reforms. Lack of interest provincial monitoring and evaluation teams. from the Committee majority was also seen as a contributing factor. The most significant drawback of the project was that “after the roll-out process in November 2007, The absence of effective legislative oversight feedback, additional support and guidance as well of the HIV and AIDS response is preventing as quality control of data and data gathering has not the proper implementation of the 2003 HIV been carried out.”94 The evaluation was concerned and AIDS Management and Prevention Act. about the sustainability of the Monitoring and The 2003 Act should protect the human rights Evaluation Unit, which had neither carried out of high-risk groups such as the sex workers. significant data gathering at the time nor produced However, in some provinces they are commonly much in terms of programme monitoring. arrested and prosecuted if suspected of being HIV positive. At present, the Special Committee The 2008–2011 country programme document on HIV and AIDS is likely to be completely set the following two outcomes with respect to marginalized unless UNDP can re-engage it in support and assistance to the national response to the overall national response; particularly as such the HIV and AIDS epidemic: an initiative could be an important gateway in terms of the UNDP governance portfolio and its Halt or reduce the rate of HIV and AIDS relationship with the national parliament. infection by 2012, and ensure that the government provides services to those people Among the most important UNDP achieve- with and affected by HIV and AIDS; and ments between 2005 and 2008 were the estab- lishment of the Monitoring and Evaluation Unit National AIDS Council effectively and effi- and UNDP support to basic training. The Evalu- ciently fulfils its responsibilities in managing, ation and Monitoring Unit at the National AIDS coordinating, implementing, monitoring Council Secretariat underwent an independent and evaluating the national response to HIV evaluation,93 with findings focused on the major and AIDS. achievements and progress in establishing the evaluation and monitoring capacities at the These outcomes were created in coordination with National AIDS Council Secretariat. Achieve- the UN Country Team working group (the joint ments include: UN task group on HIV and AIDS), which sought to put the division of labour into the operational Establishing a Monitoring and Evaluation structure with the national 2006–2011 HIV and Unit in 2005 (at establishment, it had five AIDS Strategic Plan. Under the arrangement, staff members); the United Nations Population Fund supported Conducting basic monitoring and evaluation HIV-prevention efforts; UNICEF and the World training in 12 of 19 provinces. Each training Health Organization provided treatment and session averaged 30 participants with a multi- care; and UNDP and UNAIDS supported HIV sectoral backgrounds; and AIDS capacity development and system
93 Government of Papua New Guinea, ‘Evaluation Report of the Joint Monitoring & Evaluation Programme on HIV and AIDS, First Phase (September 2005 to March 2008)’, National AIDS Council Secretariat, June 2008. 94 Ibid.
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 37 strengthening. The UNDP-led capacity devel- changes and development partners’ inconsistent opment section sought to build upon the relative and sometimes parallel initiatives. In addition, successes of previous projects that were focused the various agencies working in the area of HIV on building national capacities of institutions in and AIDS lack coordination, and it was not charge of the non-treatment response. evident that UNDP played a role to enable a more coordinated approach. For example, a lead- Since 2008, UNDP has focused on the three core ership programme similar to the one supported priority areas: by UNDP was carried out by AusAID in 2008. The programme produced training materials that Strengthening civil society organizations’ differed significantly in content with the earlier capacity to implement the national HIV and training programme supported by UNDP, leading AIDS strategy; to confusion among the national stakeholders. Strengthening the now-established and func- The National AIDS Council Secretariat lacked tioning monitoring and evaluation system at the capacity to coordinate the different inputs it the national HIV and AIDS Council Secre- received. Eventually, AusAID discontinued its tariat; and programme with significant resources spent on the duplicated initiative, which could have been Strengthening leadership at various levels, used elsewhere. particularly at the provincial and district levels. The Monitoring and Evaluation Unit faces The initiative to strengthen the civil society organ- ization community and include it in the HIV numerous challenges in data gathering, primarily and AIDS response was a logical continuation due to weak capacities at the provincial and of activities focused on capacity building at the district levels. The interim monitoring solution in government agency level. However, civil society the form of the Provincial Monitoring and Eval- capacities in the field of HIV and AIDS and other uation Teams, which were originally designed social and political areas remain extremely weak. as dedicated groups of volunteer administrators, Further, the Papua New Guinea Alliance of Civil lacked capacity and failed to implement their Society Organizations, the non-governmental obligations—only a handful of provinces have umbrella organization established in 2007, is no reported limited amounts of data. A longer-term longer active. Though the capacities of certain solution attaching monitoring and evaluation member organizations have been strengthened (for officers to the Provincial AIDS Committees is example, Igat Hope, a leading civil society organi- also lagging behind—recruitment and education zation for HIV-positive individuals in Papua New problems have prevented the National AIDS Guinea), they are not strong enough to be consid- Council Secretariat from establishing a func- ered serious stakeholders in the national HIV and tioning network of monitoring and evaluation AIDS strategy implementation. officers. There is concern regarding the future role of the National AIDS Council Secretariat, The Monitoring and Evaluation Unit at the given its current capacities to monitor, evaluate National AIDS Council Secretariat was success- and coordinate the overall non-treatment-related fully established in the previous planning period. response to the HIV and AIDS epidemic.95 However, its full operation in terms of consistent data gathering has been marred by numerous The successful Leadership for Results Programme problems, primarily in the form of frequent staff continued into the latest programming cycle.96
95 Since the ADR field mission took place, the country office indicated that the staff positions have been filled. Orientation processes for new staff began in the second quarter of 2011. 96 The relative success of the first phase is estimated according to findings of the ‘Support to the National HIV and AIDS Response in Papua New Guinea: Evaluation Report’ (UNDP, 2005).
38 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS In this programme, local leaders receive nine Although effective in terms of achieving outputs, months of training to help them devise HIV the HIV and AIDS area appears to have lost and AIDS action plans for their commu- momentum, and the sustainability of achieved nities. Although originally a success story, outputs under HIV and AIDS support appears UNDP support to the HIV and AIDS area jeopardized. A number of development partners has recently stagnated. The Leadership for have expressed concern about the sustainability of Results Programme has introduced a new the National AIDS Council Secretariat, particu- component, the Community Conversations larly its monitoring and evaluation unit. In its Programme piloted in one province and six early days, the Unit made significant contribu- communities. This new component aims to tions in terms of the available data (e.g. the prev- engage the community in the HIV and AIDS alence rate). While periodic reports have been response through open conversations aimed at prepared subsequently, frequent staff turnover problem identification and behaviour changes. and chronic understaffing are undercutting the The programme’s recent initiation prevents Unit’s sustainability prospects. Since the last making an accurate assessment of its impact on Chief Technical Adviser left, data gathering has the established leadership programme. stopped and the number of reporting provinces has been significantly reduced. Furthermore, The joint UN task group on HIV and AIDS is Provincial Monitoring and Evaluation Teams are one of the better organized UN Country Team rarely functional, and Provincial AIDS Commit- working groups within the Delivering as One tees are not able to cope with the monitoring mechanism. UNDP, several other UN system tasks within their current capacity. agencies, and government partners have been Overall, the National AIDS Council Secre- holding regular meetings in order to formulate tariat requires urgent strategic-level assistance strategies and coordinate responses. In terms of that cannot be offered by a single development internal coordination, the joint UN Task Force partner—if the high managerial staff turnover on HIV and AIDS is creating joint work plans continues, the Secretariat will soon be unable with activities and outputs planned according to to implement the national strategy or coordi- the country programme outcomes for HIV and nate the donor-supported response. The civil AIDS. However, the implementation of activities society organization capacity-building initiative remains highly individual without much visibility needs strengthening, as Papua New Guinea non- within the Delivering as One modality. governmental organizations lack the capacity to become significant partners in the implementa- Efforts towards strengthening the National AIDS tion of the HIV and AIDS strategies or develop- Council Secretariat’s capacities to better coor- ment projects. Although the basic framework of dinate HIV and AIDS related activities in the the Papua New Guinea Alliance of Civil Society country were not evident. UNDP, along with joint Organizations still exists, it is not operational, UN Task Force on HIV and AIDS, is particularly and the remaining civil society organization well situated to support coordination efforts, as it community is too weak to perform its primary is part of key HIV and AIDS-related forums. For roles of monitoring government responses and example, UNDP is part of the Country Coordi- pressing for necessary changes and reforms. nating Mechanism represented in the National AIDS Council, UNDP supported the establish- Furthermore, development partners and UN ment of the Parliamentary Committee on HIV, agencies voiced concerns regarding the number of the National Coordination Mechanism and the country office staff members assigned by UNDP Development Partner’s Forum. UNDP should to support HIV and AIDS projects. A related leverage on its partnerships to further strengthen issue is the staff turnover, a concern in other coordination of HIV and AIDS activities. programme areas as well. Although extremely
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 3 9 satisfied with the hard work of the HIV and project documents. The disaster risk reduction/ AIDS portfolio staff member, a number of people management programme largely provides interviewed expressed concerns that UNDP technical support focused on building the capaci- progress in HIV and AIDS support over the past ties of national disaster management institutions. two years would be reversed should the manager “Under both programmes UNDP was aimed decide to leave. at providing technical support to strengthen National Disaster Centre’s disaster risk manage- ment capacities. According to UNDP, strategic 4.5 DiSASTER RiSK MANAGEMENT support is also provided to National Disaster Centre to strengthen its position within the wider UNDP has been actively engaged in disaster risk governance context of the country.”98 reduction and disaster risk management in Papua New Guinea since 2006 through its Nation Building Furthermore, the 2009 and 2010 Disaster Risk Support Programme (2006–2008), initially under Management annual work plans and the Disaster the Human Rights, Peace and Security thematic Risk Management Fact Sheet make no connec- portfolio. In 2008, the disaster risk reduction/ tion between nation-building efforts and the management intervention became part of the Crisis disaster risk reduction/management project. Prevention Programme with the more precise name The background of these documents provides a of Nation Building through Crisis Management description of Papua New Guinea’s exposure to and Prevention. Under the 2008–2011 country natural disasters and its lack of preparedness in programme, disaster risk reduction/management terms of early warning systems, response and falls under the general outcome of democratic disaster relief. The purpose of these interven- governance related to conflict prevention and tions is described as “improving capacity at the recovery: relevant institutions in Papua New Guinea National Disaster Centre ... the project is working research and apply best practices for conflict preven- to make the National Disaster Centre better at tion and recovery, and the associated gender dimen- preparing for and responding to natural disasters, sions to enhance nation-building, with a number of including better prediction tools, better strategies outputs being targeted. for providing emergency relief and better assess- ment of damage and injury.”99 The programme documents lack clarity in articu- lating outcomes and expected contributions. The UNDP interventions in support of disaster risk UNDP country programme document outcome management are highly relevant given the context framework for crisis prevention and recovery of Papua New Guinea. In terms of assistance to indicates that the disaster risk reduction/manage- national planning in the disaster risk reduction/ ment thematic area is related to general outcomes management area, the UNDP initiative recorded on crisis prevention and recovery to enhance important achievements in terms of escalating nation-building. The UN country programme is the disaster management agenda to higher more explicit. Intermediate Outcome 6 focuses levels of government development planning. In on disaster risk management policies: “National 2005, for example, the National Disaster Centre Disaster Centre and Provincial Government have produced a National Disaster Risk Manage- the capacity to prepare for and respond to natural ment Framework for Action, which lists expected disasters.”97 The apparent mismatch between the outcomes and main activities. However, it lacks UNDP and the UN country programmes creates crucial statistical and research-based baselines or certain difficulties for the proper evaluation of targets. UNDP is supporting the implementation the thematic area, particularly due to the lack of of the Papua New Guinea National Framework of
97 UNDP, ‘Country Programme Document 2009–2012: Papua New Guinea’, 2007a. 98 UNDP, ‘Disaster Risk Management Project Facts’, 2010a. 99 Ibid., UNDP, ‘Disaster Risk Reduction Work Plan’, 2009.
40 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS Action. An Applied Geosciences and Technology risk management policies and legislation initia- Division Report on Disaster Risk Manage- tives need reform and updating, there is no ment Mainstreaming in Papua New Guinea current strategic-level document that includes concluded that the “Papua New Guinea Disaster all the recommendations or provides an effective Risk Management Framework for Action 2005 implementation-oriented document that lists the represents a very high level strategic document, specific needs and activities necessary to achieve which provides some guidance for the creation of the Papua New Guinea Development Strategic more specific and targeted disaster risk manage- Plan and the MTDP targets. 101 ment interventions.”100 However, the 2005–2010 MTDS did not include disaster risk management UNDP recently initiated a programme to among its priorities and does not mention any integrate disaster risk management into the support to disaster response, relief or recovery. development planning and budgeting of three key departments: the Department of National In line with the National Framework, in 2010 Planning and Monitoring, the Department UNDP collaborated with the Applied Geosciences of Education and the Department of Physical and Technology Division and the National Planning. However, it is too early to assess the Disaster Centre to develop the Disaster Risk results of this disaster risk management institu- Management Mainstreaming Project for Papua tional coordination initiative. New Guinea (currently being implemented). The project implements different strategic elements Comprehensive disaster risk management work of the National Framework of Action. While it plans have been developed for the Autonomous cannot be entirely attributed to UNDP, UNDP Region of Bougainville and the provinces of advocacy efforts contributed to including disaster Oro and the Eastern Highlands. The activities risk management in the 2011–2015 MTDP and rolled out in these provinces in 2010 included: the government’s resource allocations. strengthening provincial disaster management offices; establishing fully operational provincial Since 2008, UNDP has helped push disaster risk disaster committees; training district and provin- reduction/management to the forefront of the cial staff on disaster risk management issues; and government’s planning agenda through a number developing preparedness and response plans and of activities. For example, the UN Disaster Assess- awareness-generation programmes. ment and Coordination team conducted a mission in May 2009 to provide guidance and recommen- Basic training on disaster risk management and dations on improving the government’s prepar- damage needs assessment was completed in edness for natural disasters. The draft disaster two provinces, Bougainville and Morobe. Two risk management protocols included appropriate workshops, one on landslide management and arrangements for coordinated preparedness and the second on flood risk management have also response activities. been carried out in Eastern Highlands and Oro provinces. The Office for the Coordination of UNDP activities and advocacy contributed Humanitarian Affairs and UNDP, together with to including disaster risk management in the the UN Refugee Agency, supported the National 2010–2030 Development Strategic Plan and as Disaster Centre to develop contingency planning a cross-cutting issue in the 2011–2015 MTDP, capacities. As a result of these interventions, four although these plans have yet to be implemented. high-risk provinces in Papua New Guinea have While these documents indicate which disaster functional, staffed disaster management offices
100 UNDP and Secretariat of the Pacific Community, ’Disaster Risk Management Mainstreaming in Papua New Guinea: A Way Forward’, 2010. 101 Government of Papua New Guinea, ‘Papua New Guinea Medium Term Development Plan: 2011–2015’, Department of National Planning and Monitoring, Port Moresby, October 2010e.
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 41 with formally established provincial Disaster integrated—if not forming a single agency. In Management Committees. The Committees that respect, there are also missed opportuni- are expected to include representatives from key ties in establishing linkages between the Office sectors, such as non-governmental organizations, of Climate Change and Development and the women, youth and church groups. However, due Disaster Risk Management Centre. Most of the to lack of provincial support, the sustainability linkages between the two agencies are project of the committees and contingency planning related and institutional linkages need to be remains a challenge. further strengthened. The weak relationship between the national and provincial govern- The government and the UN system established ments in relation to disaster risk management has a disaster management team, which comprises all hindered risk management efforts at the provin- key agencies working on disaster risk manage- cial level—provinces do not allocate resources for ment. It is chaired by the UN Resident Coor- disaster risk management. The National Disaster dinator; the United Nations Office for the Centre is understaffed (only eight permanent Coordination of Humanitarian Affairs provides officers work at the centre), and it is dependent on secretarial support. Activities of the team include: UNDP to implement its annual work plan. These following up on the implementation of the United factors are signs of weak national ownership and Nations Disaster Assessment and Coordina- sustainability of the intervention. tion Team mission recommendations; ensuring that the existing national contingency plan is The reliance of the country office on annual work still understood and relevant; and ensuring that plans instead of full project documents for the coordination mechanisms are in place. While the disaster risk reduction/management programme disaster management team has been effective and makes it difficult to ascertain the scope of UNDP provided necessary technical assistance to the activities and contributions to national develop- National Disaster Centre in times of emergen- ment results. Annual work plans provide little cies, it is still in its early stages and therefore it is explanation or connection between the stated actions too early to make observations on contributions and the country office or country programme to results. document outputs and overall outcomes.
Two provincial governments (Morobe and Northern Province) have allocated resources 4.6 cRiSiS PREVENTiON AND for disaster risk management. In Morobe, a REcOVERy iN bOUGAiNViLLE high-risk province, a multi-sectoral disaster risk The objectives of the Nation Building through management action plan has been developed Crisis Prevention theme in the 2008–2011 country that identifies gaps and opportunities for invest- programme were to strengthen national and ment in relation to disaster risk management. In provincial capacities in dealing with community the Northern Province, a contingency plan has security, disaster risk management and gender- been developed that addresses the major natural based violence. These were reflected in the hazard risks the province is prone to (flooding conflict prevention and resolution programme’s and volcanic eruption). upstream focus on Bougainville and policy devel- opment with the national government. There are areas in disaster risk management that need further attention. There is a lack The objectives of the Bougainville Programme of inter-connectivity among the major early were to complement and follow-up from the warning institutions and governmental depart- UN Observer Mission in Bougainville following ments. For example, the National Disaster its 2005 post-election withdrawal. UNDP was the Centre, the Geophysical Observatory and the leading UN presence in Bougainville and took National Weather Service could be more closely over the responsibility of implementing the 2001
42 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS Comprehensive Peace Agreement, particularly Autonomous Bougainville Government capacity in the areas of weapons disposal, peace building, development, and local level government support reconciliation, livelihoods, and building capaci- through the Council of Elders and civil society ties for sustainable peace. According to the organizations. This reflected both an upstream United Nations Security Council, UNDP will and a bottom-up approach, which was the most “deal with planning and community support ... effective way to bring the government and the [addressing] local governance and leadership community together in post-conflict reconcilia- issues by working with the Councils of Elders, tion and reconstruction. young people, women and other local institutions. Emphasis will be placed on the sustainability of A capacity needs assessment was not carried out local institutions and their integration with the for the first Autonomous Bougainville Govern- administration. Direct support will also be given ment Programme (2005–2010). The three main to key community institutions that are respon- pillars of the 2008–2011 country programme sible for maintaining law and order. UNDP will for conflict prevention and resolution were to assist small farmers with organization, extension, provide support for peace reconciliation, weapons market access and policy formulation.” 102 disposal technical advisory and capacity develop- ment. In parallel, the Bureau for Crisis Preven- The absence of a formal transitional/exit tion and Recovery’s ‘Papua New Guinea Strategic mechanism at the end of the United Nations Partnership Framework’ was developed to Observer Mission in Bougainville mandate trans- guide the Bureau’s 2008–2011 Nation Building ferred the challenges related to the programme through Crisis Prevention programme. The to UNDP. In the transitional phase, the unfin- programme aimed to strengthen national and ished tasks also stretched UNDP capacities, as provincial capacities to deal with community it had to respond to additional tasks, such as the security, disaster risk management and gender- preparation and conduct of subsequent elections based violence. These areas of programme focus in Bougainville. It was not possible to assess the reflected the needs of Papua New Guinea where nature of the transfer or the consequences for national security is a key issue and were in keeping UNDP, as there was limited institutional memory. with the 2005–2010 MTDS.
The UNDP Bougainville Programme primarily In order to analyse factors that contribute to focused on developing a national strategy to national security and to ensure the relevance of address nation-building issues, supporting conflict prevention and resolution policy and institutions’ efforts to research and apply best programming, the Bureau for Crisis Prevention practices for conflict prevention and recovery, and Recovery funded an Integrated Development and engaging civil society in conflict preven- Assessment of provincial-level quantitative and tion and the recovery policy.103 In response to qualitative data. This was intended as a baseline the rehabilitation and recovery challenges facing research study of police and selected communi- the Autonomous Bougainville Government, ties, with a focus on attitudes and practices that UNDP supported capacity-development efforts prevent and respond to gender-based violence. of the Autonomous Bougainville Government Planning Division, the Division of Community At the national level, the Office of Security Development and local level governments. The Coordination and Assessment and the National approaches adopted focused on government and Security Advisory Committee requested UNDP community involvement as part of reconcilia- collaborative support to initiate and process tion efforts, technical advisory support for the a national security policy. UNDP assistance
102 United Nations Security Council, ‘5222nd meeting’, S/PV.5222, 6 July 2005. 103 UNDP, ‘Country Programme Document 2009–2012: Papua New Guinea’, 2007a.
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 43 led to the Department of the Prime Minister Mediation and arbitration to reduce crisis and committing to establish an Inter-Departmental violence in communities is a key area of UNDP Committee on Small Arms Control. UNDP also support in Bougainville. The initial focus was supported the development of the Autonomous on the Bougainville Rehabilitation, Reconstruc- Bougainville Government weapons disposal tion, and Development Project, which supported policy, recently endorsed by the Bougainville 17,000 families’ return to cocoa production. The Executive Council. Bougainville Planning and Community Support Project contributed to reinforcing peace processes Intermediate Outcome 5 of the 2008–2011 country by supporting community-based income genera- programme states that the Government of Papua tion and livelihood activities. This project was New Guinea is committed to nation-building completed in 2007, and although lack of financial through effective crisis-management and preven- sponsorship prevented it from delivering on all of tion. This is to be achieved by two outcomes: its intended economic activities, it did produce the first Bougainville Human Development Report. Nation building strategy is in place enabling the government to address issues of crisis In 2007, UNDP and the Autonomous Bougain- prevention; and ville Government organized the first Sports for Reconciliation event, which developed into the Selected Communities are able to effectively Peace Fairs, followed in 2010 by the Bougainville apply mediation and arbitration to reduce Games (the Autonomous Bougainville Govern- the level of crisis and violence in their ment fully owns and leads this initiative). The communities and are linked to national and Games, celebrated in the southern district of regional networks. Buin (a location that for many years was inacces- sible and insecure due to former fighting groups’ Overall, the conflict prevention and resolu- activities), turned out to be the most transforma- tion programme has been partially effective in tive event since the 2001 signing of the peace achieving both outcome areas, although national- agreement. Teams, supporters, and more impor- level achievements and achievements in provinces tantly, chiefs and faction leaders from all districts outside Bougainville have been limited. UNDP participated in the competition. For the first time, contributions have been important in incorpo- women of these ‘no-go’ areas mobilized them- rating the Bougainville chapter into the MTDS selves to participate in an event. The inclusive in order to reflect the needs of the region, and participation culminated in a massive popular the formulation of the 20005–2010 Bougain- movement towards reconciliation and the ville Corporate Plan. The UNDP programme breaking of the long silence between the factions; complemented government efforts by facilitating it can be regarded as one of the more effective the implementation of national development UNDP-supported initiatives. strategies and policies. UNDP assistance to Peace and Reconciliation Technical support was provided to the Prime in Arawa in 2009 for families of victims who Minister’s Department for the National Security had died during the conflict is considered as an Policy for the establishment of an Inter-Depart- important contribution by some government and mental Committee on Small Arms Control community stakeholders in Bougainville. UNDP and for collecting and analysing armed violence prioritized the reconciliations and funding based reduction data. UNDP also provided assistance on a mapping of conflicts done jointly by UNDP for formulating the Autonomous Bougainville and local communities through their Peace Government’s Peace, Reconciliation and Weapons Committees. UNDP made efforts to empower Disposal Policy and for establishing the Autono- government and local leaders to drive the process. mous Bougainville Government Peace Division. Managing the diverse expectations and ensuring
44 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS national ownership has been challenging for Women who were directly involved in projects UNDP, as for most agencies working in Papua funded by UNDP actively participated by going New Guinea. into the conflict zones to bring about peace. It was evident that UNDP played an important role UNDP work concentrated on reconciliation, in facilitating the women leaders to successfully weapons disposal, human rights, support to the design and implement these initiatives. These Council of Elders and technical assistance to the were significant initiatives in a complex environ- Autonomous Bougainville Government. The ment, although it is too early to make observa- early period of weapons disposal was not fully tion on their contributions to outcomes and successful, considering the associated complexi- results. Although not an intended outcome of the ties. The programme’s strength, however, has UNDP country programme, these initiatives can been the support given to local-level peace and be directly linked to Security Council resolution reconciliation initiatives. The programme’s main 1325 on Women, Peace and Security and to the weakness stemmed from UNDP taking on a high- Bureau for Crisis Prevention and Recovery’s ‘8 profile weapons disposal programme that UNDP Point Agenda’. and its Autonomous Bougainville Government counterpart were ill-equipped to implement. Initiatives to address gender-based violence were started in 2010. The main activity under- Support to rehabilitation efforts such as taken was a baseline research study focusing on Community Trauma Programme and peace fairs the attitudes and practices of police and select through Nazareth Centre for Rehabilitation communities in order to prevent and respond made positive contributions. The Community to gender-based violence. The recommenda- Trauma Programme, which also received the tions are intended to serve as a foundation for a support of the national government, aimed to capacity building package for the Royal Papua meet the need to up-skill trauma counsellors, New Guinea Constabulary. The draft was still build the capacities of mediators and counsel- awaiting finalization; both the Law and Justice lors, and rehabilitate 230 former combatants of Sector of the Constabulary and the Division for north-west of Buka. The Programme received Community Development in Bougainville have very positive feedback; the group is weapons-free yet to hold follow-up consultations regarding the and holds changed attitudes towards violence. A report’s recommendations and outcomes. direct outcome is a proposed national govern- ment programme by for men and boys to engage The ownership and active engagement of the in building non-violent peace. government and civil society stakeholders were key factors of programme continuation in a UNDP funded women’s participation in Peace few instances. For example, the Autonomous and Reconciliation Committees at the district Bougainville Government assumed continued level and in the Peace Fairs. The Fairs, which responsibility for the Bougainville Games. One brought in youth, women and communi- of the key outcomes of the Games was the ties, entailed traditional cleansing ceremonies, Meekamui factions (traditionally excluded from reconciliations, dialogue processes with former the peace agreement) settling internal differ- combatants, awareness-raising of women’s and ences and opening a dialogue with the Auton- children’s rights, and skills-building. In 2008, omous Bougainville Government—thereby UNDP funded leadership training and resource strengthening the shift to development and mapping for the Bougainville Women’s Federa- local ownership. In many areas, however, low tion, the Bougainville Women Leader’s Recon- stakeholder and implementing partner capacity ciliation, and workshops for women in local-level constrained programme implementation and will government leadership. pose challenges to sustainability.
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 4 5 Lack of continuity, decreasing financial resources, Incorporate gender equality into MDG-based poor monitoring, time-consuming recruit- planning and monitoring and apply gender- ment, and the insufficient technical capacity of sensitive budgeting techniques; staff were some of the constraints on achieving Reduce violence against women, the vulner- intended outcomes. In areas where there was ability of women and girls to HIV infection, considerable progress, collaborative partnerships and the burden of care that falls on them; with the government, Bougainville community groups and civil society were a key factor. While Expand women’s participation in govern- Security Council resolution 1325 was not used ance and decision-making processes and by the United Nations Observer Mission to strengthen women’s property and inheritance Bougainville or the country office as a guiding rights; and framework for support for conflict prevention and Reduce time burdens on women and girls by recovery programme, the initiatives undertaken mainstreaming gender into environment and by UNDP to involve women representatives in energy policies. formal meetings and as key implementers in the reconciliation process did address some of the The main outcome sought was that by 2011, resolution’s recommendations. UNDP could have women and girls would experience fewer gender paid more attention to engaging the Division for inequalities in Papua New Guinea. Based on Community Development and Women regarding an analysis of the status of gender relations and women’s formal involvement in establishing the women’s empowerment in Papua New Guinea, Autonomous Bougainville Government Peace the 2008–2011 UN country programme identi- Division. A weak area of the UNDP programme fied three key entry points for addressing gender is the lack of a holistic approach to addressing inequalities: women in leadership; gender- gender-related issues, which contributed to an ad based violence; and girls’ education. The United hoc approach to gender and women’s issues in the Nations Population Fund chairs the gender- Bougainville Programme. based violence task team (the key UN mechanism addressing this issue), and is the lead agency for the UN-wide gender-based violence programme. 4.7 GENDER EqUALiTy UNICEF is the lead agency for girls’ education. UNDP focused its interventions on women in The UN Gender task team, chaired by UNDP, leadership and gender-based violence. serves as the gender equality coordinating mechanism for the Delivering as One modality. Despite the complex nature of the issues involved The task team is responsible for ensuring and the challenging political context in Papua the outcome that women and girls experience New Guinea, UNDP consistently extended fewer gender inequalities. The tasks carried out support to gender equality and women’s empow- by the team include developing the ‘Five Year erment in both country programmes. There Strategic Plan’, delivering quarterly strategic was considerable evidence that UNDP was reports, and contributing to the UN Country committed to addressing gender inequality in Team’s monitoring and evaluation. public and political spaces and was consistently on the forefront in supporting policy formula- The 2008–2011 country programme addressed tion and in facilitating policy discussions. UNDP gender equality and women’s empowerment also actively participated in joint UN initiatives by committing UNDP to working across that addressed gender-related issues. However, practices and to partnering with other UN organ- it would be premature to make observations on izations on initiatives aimed at helping national contributions to results on this challenging devel- partners to: opment issue in Papua New Guinea.
46 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS WOMEN iN LEADERSHiP A notable achievement is that the first reading of the bill was achieved and the Parliamentary The Women in Leadership programme addressed Committee on Constitutional Laws and Acts. the under-representation of women in Parlia- While subordinate legislations were in the process ment and the leadership roles of the key national of gauging the public’s views for presentation to gender equality mechanisms (the National Parliament in August 2011 prior to the second Council of Women, the Office for Development and third readings, recent changes in government of Women and the Department for Community may delay debate on the bill. Development Gender Branch). Despite strong momentum and networking In order to ensure the relevance of the National Council of Women, UNDP funded a review and on the bill, national political instability and the revision of the 1979 National Council of Women threat of a parliamentary no confidence motion law, recommending repeal of the existing legis- led to the bill’s deferral into 2011. Interviews with lation, and replacement with a new bill that stakeholders did not provide sufficient indication would provide clear, transparent administra- if the law will be adopted for implementation in tive structure, power and function, a system of the 2012 national elections. One of the outcomes checks and balances, and clear linkages between of this process, however, was that a National the National Council of Women and the govern- Executive Council policy decision created two- ment. UNDP has been a lead actor in facilitating member provincial electorates, with one seat the development of the new National Policy for reserved for the member who will be the Provin- Women and Gender Equality. cial Governor and the other to be exclusively reserved for a female member. In 2009, UNDP was instrumental in an initia- tive by the Minister for Community Develop- Government and civil society stakeholders regard ment and Women. The Minister used Sections UNDP as important to moving the agenda for 101 and 102 of the Papua New Guinea National women’s parliamentary representation forward. Constitution to endorse the nomination of three UNDP provided key momentum for the sensi- women members to Parliament. The Resident tization process on increasing women’s political Coordinator co-chaired the UN Joint Technical participation and promoting the Equality and Working Group along with the Minister, and Participation Law. UNDP provided the necessary funding and technical advice for legal drafting. The efforts to In 2010, the country office invited the UNDP ensure the nomination of three women to parlia- Regional Office in Bangkok to identify the key ment were not successful. development issues and challenges faced by the three Women’s Machineries104 and to explore Subsequent UNDP interventions focused on the key technical and functional capacity gaps support to efforts towards reserved seats for that influenced these development issues. UNDP women. The process adopted by UNDP was conducted a capacity assessment and applied inclusive and nationally driven, and included the Gender Assessment Toolkit developed by building the capacities of government and the UNDP Asia/Pacific Regional Centre. The partners and potential women candidates. UNDP study focused on mapping the capacity constraints provided technical assistance for the drafting of experienced by the machineries advancing gender the legal documentations and extensive consulta- mainstreaming in the country. The Office of tions that resulted in the women’s bill now before Development of Women is making progress Parliament (the Equality and Participation bill). and already taking measures to address capacity
104 The Office for Development of Women; the National Council of Women, Gender and Development; and a Branch of the Department for Community Development.
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 47 constraints. However, further efforts are needed GENDER-bASED ViOLENcE to supporta more coherent functioning of the The Preamble to the ‘Constitution of the Inde- three agencies towards a common goal. pendent State of Papua New Guinea’ specifically provides that “the people reject violence and seek In order to build the Office for the Development consensus as a means of solving our common of Women’s capacity as the lead government problems.” Further, the 2009 Pacific Forum agency for gender equality, UNDP supported its Leaders’ Communiqué acknowledged that sexual development of a five-year Communication and and gender-based violence was a risk to human Advocacy Strategy. The Strategy features sub- security and a potential destabilizing factor for national workshops and one-to-one consulta- both communities and societies. tions, and will serve as a mechanism for increasing women’s participation in leadership roles. Imple- Responding to national priorities, UNDP mented in 2010, it is too early to assess the Strat- supported initiatives to address gender-based egy’s results. violence as part of the overall UN programme. The 2008–2011 country programme recognized The National Road Show on the Women’s Bill gender-based violence as the biggest threat to on Equality and Participation, a short-term individual human security in Papua New Guinea. advocacy effort supported by the UN gender The UNDP programme emphasized gender team, sent teams to all provinces with messages equality and the prevention of gender-based supporting the importance of reserving seats for violence among women, girls, men and boys as women, informing and involving local women, essential features of nation-building. and encouraging the public to urge their Members of Parliament to vote for the Bill. The perceptions UNDP pursued several activities towards the of and responses received from communities were outcome of communities in one province in provided to the government. Communities were each region reducing gender-based violence by 25 percent by 2012. UNDP supported the responsive and expressed their desire to see more Masculinity Desk under the National Council of government policies and programmes delivered Women. The Masculinity Desk has been liaising in this manner. with organizations that can support the campaign against gender-based violence from a male The Women in Leadership programme included perspective. UNDP advocacy support in this area effective consultative mechanisms and capacity- included weekly radio programmes. As part of the building processes. A recent partnership with ongoing efforts of the UN country programme, the Australian National University’s Centre the United Nations Population Fund’s focus 105 for Democratic Institutions bolstered the has been on building the National Council of programme’s capacities; the Centre provided the Women’s capacity to undertake a mentoring programme with technical assistance to develop a programme and on providing financial assist- 2012 election strategy (this support will continue ance to the Department for Community Devel- throughout the implementation phase). At opment to complete the CEDAW Report. The the government level, the Office for Develop- UNDP component was to conduct a Community ment of Women, on behalf of the Department Capacity Enhancement programme for local- for Community Development, took the lead in level government and the National Council of developing the election strategy and will be the Women representatives. The progress of UNDP key implementing agency. efforts has been minimal.
105 CDI is funded by the Australian Government to support the strengthening of democratic institutions in Papua New Guinea, Solomon Islands, Vanuatu, Indonesia and East Timor. CDI works with parliaments and political parties in these countries and has a strong gender focus in its work. CDI is based at the Australian National University and, in recent years, has provided training for women candidates in the Solomon Islands and in the Autonomous Region of Bougainville.
48 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS In 2009, UNDP conducted a number of aware- In addressing gender inequality, UNDP did not ness-raising and targeted training events for service follow a multi-pronged approach, and a large providers and front-line workers responsible for proportion of human and financial resources were training their communities’ leaders. UNDP and allocated for the issue of women’s representa- UNICEF are also making a concerted training tion. Considering weak capacities of women in effort to help Village Courts understand what they bureaucracy, UNDP contributions could have can and cannot do in the context of family violence. been better if it also supported strengthening The Village Court Secretariats also manage human the capacities of women bureaucrats in main- rights projects to increase women’s involvement streaming gender issues into development policy as community leaders, to encourage women to and planning. seek nomination as Village Court officials, and to address violence against women, girls and children. MAiNSTREAMiNG GENDER iSSUES The training contributed to improving the capacity of Village Court Secretariats. The 2008–2011country programme states that UNDP will promote cross-cutting issues During the ongoing programme period, UNDP and inter-sectoral links in areas such as gender established a network of civil society organiza- equality and human rights. Promoting human tions focused on collaborative efforts to enhance rights was intended by identifying areas where linkages between civil society organizations and duty bearers (normally different levels of govern- police institutions. UNDP undertook a research ment, but also communities and families) facili- study on police and community attitudes and tate the establishment of an environment that practices to prevent and respond to gender-based promotes human rights, allows claim holders violence; UNDP finalized a gender-based violence (normally citizens) to secure their human rights, assessment report. Its recommendations, which and protects the dignity and integrity of every entail developing a police training package, are individual without distinction. Closely linked to currently pending consultations with key govern- this is gender mainstreaming —to be achieved ment and civil society counterparts, particularly through the protection of women’s rights, their the Royal Papua New Guinea Constabulary’s Law economic and political empowerment, and the and Justice Sector. While support was provided promotion of opportunities for women in deci- for members of the Constabulary to participate sion-making roles in all socio-economic sectors. in gender-based violence training in 2010, the outcomes in terms of its effectiveness are unclear. Various government planning documents make references to gender mainstreaming as a cross- Another key actor and potential partner is the cutting issue (e.g. Vision 2050 and the Depart- Family and Sexual Violence Action Committee, ment of National Planning and Monitoring’s which developed the national strategy of ‘Ending 2010–2030 Papua New Guinea Development Family and Sexual Violence’. However, in order to Strategic Plan). The government’s MDG reports prevent gender-based violence and provide services are gender-sensitive and provide data on MDG to victims, the Committee will need assistance to 3 and the underlying relationship between address the lack of competency-based trainers, MDG 3 and the achievement of the other mentors, and professional service providers. MDGs. Though a UN-wide and UNDP-specific programming requirement, current and previous The progress of UNDP initiatives to support UNDP programmes have not fully incorpo- the government in reducing gender-based rated gender equality mainstreaming. Though a violence has been slow. Though gender-based gender task team has been operating for the past violence is an extraordinarily complex issue, three years, its role is not to mainstream gender UNDP efforts lacked the required urgency to into UNDP programmatic areas, but rather to address this problem. coordinate planning and implementation of
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 49 approaches to gender equality issues. UNDP has as identified by the government and as identi- not conducted a gender analysis or developed a fied through the country programme formula- gender action plan to integrate gender equality tion process (and endorsed by the government). as a cross-cutting issue in either the present or Most interventions in the area of governance, previous country programme. crisis prevention and recovery, HIV and AIDS and women in leadership were responsive to There have been many missed opportunities to government requests. Interventions in other areas mainstream gender into key programme areas. (gender equality and gender-based violence, envi- The Nation-Building Through Crisis Prevention ronment and energy, human rights and disaster and Recovery Programme makes no reference risk management) arose more from a UNDP- to integrating gender equality, nor does gender specific organizational mandate. Though these differentiation factor into climate change or envi- areas were not government priorities, they were ronment programmes. In general, the programme still mostly welcomed by the government. lacked gender analytical frameworks to determine While UNDP interventions were relevant, differential outcomes and to develop gender- the approach has not always been focused or sensitive outputs. Support for capacity develop- strategic. Support was provided to a wide range ment in the Department of National Planning of interventions with resources that were spread and Monitoring has not included staff training too thinly to make sustainable contributions to on development of gender-sensitive indicators. development results—UNDP has been criticized Similarly, strengthening national, regional, and “because it cannot say no.” The interventions local-level capacity to mainstream human rights do not form a cohesive portfolio—there were should have been broader than the national Stop no linkages between projects, the interventions Violence against Women campaign. were not mutually supportive, and there was no long-term vision. Although some of the interven- There was a lack of adequate understanding tions yielded positive outputs (e.g. support to the among the programme staff of what is required by Monitoring and Evaluation Unit in the National UNDP in the cross-programmatic mainstreaming AIDS Council Secretariat, the Women in Lead- of gender equality. UNDP country office staff has ership Project and the Remote Sensing Land Use not undergone gender mainstreaming capacity Initiative), contribution to overall development development, with the last training in this area results has not been effective. for UNDP being conducted by UNIFEM/UN Women at the end of the second quarter of 2008. In some cases (e.g. the environment sector), Lack of capacity has led to confusion regarding UNDP developed programmes in response to what constitutes programmatic mainstreaming of the availability of donor funds. While welcomed gender equality. by the government, these interventions were not part of a strategic approach and were not based on identified critical gaps in key areas. 4.8 UNDP STRATEGic POSiTiONiNG UNDP is seen as an international organization UNDP STRATEGic RELEVANcE with a high reputation but with limited contact AND RESPONSiVENESS at the local level. Its focus on upstream policy has left UNDP with no direct involvement at the Overall perception of UNDP is positive and it is community level, apart from the recently revived respected for its efforts—particularly in helping Small Grants Programme within the environment with stability processes. Contributing to devel- area. While the programme profile of UNDP at opment results has been challenging for UNDP, the national level needs further enhancement, as with most agencies working in Papua New there was also a need for a strategic thrust at the Guinea. UNDP strove to respond to the chal- provincial, district and community levels in terms lenges and needs of Papua New Guinea, both of programme investment. Partnerships with
50 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS non-governmental organizations and the private The UNDP relationship with civil society is not sector were not at desirable levels. very well developed—it works well with a small number of non-governmental organizations UNDP should adopt a more strategic approach, (e.g. in the Global Environment Facility Small one that is based on identified gaps and needs Grants Programme and with women’s groups in and aims for a balance between upstream policy Bougainville). Its partnership relationships with support and downstream community engage- the private sector and community groups are ment. UNDP can be even more relevant by extremely limited. Overall, UNDP has positioned tackling each task through an approach at both itself to benefit from its relationships, but because upstream (policy, capacity) and downstream levels rural communities comprise 85 percent of the (community empowerment). Papua New Guinea population, UNDP would gain more if it were to cultivate relationships with MAKiNG THE MOST OF cOMPARATiVE the private sector and at community level. ADVANTAGE AND STRENGTHS An aspect the UNDP comparative advantage is UNDP neutrality and impartiality are widely its level of access and influence with key decision recognized, and UNDP is valued more for its makers. However, UNDP activities did not impartial advice and support than for its modest reveal any examples of such access or influence, financial resources. This is the result of its broad and UNDP engagement with the government mandate and the longevity and stability of its appeared tenuous. Barriers appeared to be both presence in Papua New Guinea. UNDP has a on sides: UNDP efforts to identify champions, unique perspective on the country’s strengths and the government lacked sustained leadership. and weaknesses, and the government and other The exception has been in the area of gender national stakeholders acknowledge it as a neutral equality, where UNDP has identified a champion partner. UNDP is also valued for its flexibility within the government and has strategically used of response in times of emergency or transition this to achieve good results. and its ability to tap international networks of expertise. UNDP has capitalized on its accepted In terms of its field presence and infrastructure, neutrality and impartiality and has positioned UNDP focused on Port Moresby. This is primarily itself to strategic advantage, particularly at the due to security, transportation and communi- policy level (e.g. facilitating the peace process in cation factors, and because of the UNDP focus Bougainville and advocating for human rights on upstream policy and capacity interventions. and gender equality). While this positioning served UNDP well in its upstream delivery, its comparative absence in Relationships with key partners offer a good downstream and community levels within the illustration of comparative advantage; UNDP in provincial and district context has limited UNDP Papua New Guinea has a mixed set. For example, contributions to development results. its relationships with central and local govern- ments are primarily project-based (though this is Technical resources and expertise can also be used taken further with the Department of National as a measure of comparative advantage. UNDP Planning and Monitoring, which serves as the has a very high staff turnover and experiences gateway for UNDP to the government system). difficulties filling positions in a competitive envi- UNDP has also collaborated at the project level ronment for persons with appropriate skills. As with, for example, AusAID on Bougainville, and a result, resident expertise is modest and there with Conservation International on Milne Bay. is no build-up of experience. Internal capacity is The international development agencies present not only weak in terms of numbers, but also in in Papua New Guinea recognize UNDP as an know-how. However, UNDP has the advantage agency with substantial potential, some of it yet of calling on its global network to provide to be realized. policy advice and share best practices with the
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 51 government. It has done this successfully in areas Another important role for UNDP in its such as conflict prevention and recovery, disaster promotion of UN values is, according to the risk management, and gender. 2008–2011 UNDP Strategic Plan, its country- level support and promotion of coordina- tion, efficiency and effectiveness of the United PROMOTiNG UN VALUES Nations system as a whole. This role was At the highest level, the UN aims to contribute to reinforced by resolution 59/250 by the General attaining the goals embodied in the Millennium Assembly, which reiterated that the management Declaration, which highlights “six fundamental of the resident coordinator system “continue[d] values necessary for sustainable human develop- to be firmly anchored in the United Nations ment: equality, solidarity, freedom, shared respon- Development Programme.” UNDP has strongly sibility, tolerance and respect for nature.”106 In positioned itself as a leader of the UN mission Papua New Guinea, UNDP has fostered equality in Papua New Guinea, and as one UN agency (e.g. gender equality efforts), advocated for soli- respondent remarked, “UNDP is seen as the darity (e.g. parliament and other governance UN; whatever it does reflects on all of us.” interventions), promoted freedom (e.g. human UNDP support to the Resident Coordinator rights interventions), supported shared respon- has been important in establishing the Delivering sibility (e.g. capacity building of the provincial as One modality, which, in Papua New Guinea, government), brought about tolerance (e.g. HIV was a self-starter. However, much progress still and AIDS projects) and respected the environ- needs to be made in terms of programme-level ment (e.g. through capacity building of the collaboration, and further UNDP leadership is Department of Environment and Conservation). required.
However, despite the efforts of UNDP, other UN UNDP has also been actively engaged in a donor agencies and multilateral and bilateral develop- forum in Papua New Guinea, convening the ment partners, the low level of progress towards Development Donors Round-table, which it achieving the MDGs in Papua New Guinea is co-chairs with AusAID. While this was necessary alarming. UNDP has supported the government for donors to share information, there was a to recognize the MDGs in national strategic widespread acknowledgement of the UNDP role; instruments and to develop its own plan of action some saw it as not very effective. It was perceived towards the MDGs. The most direct assistance that while there was much information sharing, by UNDP comprised support for the production strategic engagement among international devel- and publication of the first and second MDGs opment agencies was found to be lacking. National Progress Summary Reports in 2004 and 2009. These two publications are acknowledged as 4.9 SUMMARy OF RESULTS AcHiEVED having raised awareness of the MDGs, but stake- holders consulted note that the Medium-term Of the 10 intermediate outcomes targeted through Development Plan does not adequately reflect the 2008–2011 UNDP country programme, the MDGs because “there are essential elements eight have not been achieved and two have been missing,” and that UNDP needs to sell the MDGs partly achieved. The country programme was message harder and coordinate better because “the planned to run until 2012, it is being abridged government is not interested in the MDGs as to harmonize with the government’s planning much as in liquified natural gas, economic corridors cycle. This in many ways curtailed the progress in and the like.” achieving outcomes.
106 UNDP, ‘UNDP Strategic Plan 2008-2011 – Accelerating Global Progress on Human Development,’ Executive Board of UNDP and of the United Nations Population Fund, Second Regular Session, September, New York, 2007d, available at:
52 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS Table 3. Achievement of the UNDP country programme outcomes
UNDP country ADR Assessment Programme Outcomes
1 Parliament and legislative UNDP had ambitious intentions to assist the most important democratic processes. Parliament and other institutions in Papua New Guinea, particularly the Parliament. Despite the legislative drafting institutions failure to fulfil some of them, there were also considerable successes. This is draft, debate and pass legisla- especially evident in terms of the UNDP partnership with the Department of tion that is MDG-compliant and Planning and Monitoring, which is the main portal for MDG-oriented work promotes nation-building. in terms of promotion, monitoring and donor coordination. Also, the UNDP partnership with the Office of Legislative Counsel significantly affects the technical aspects of legislation drafting processes. However, cooperation with Parliament and its normal functioning as the main democratic legislative and oversight institution remains a challenge, and in that respect the outcome has not been achieved.
2 Medium-Term Development Production of the two national MDG Reports and continued support for Strategy and the MDGs. The national planning documents represent significant achievements of UNDP Government of Papua New assistance to Papua New Guinea’s progress towards achieving the MDGs. Guinea efficiently, effectively However, Papua New Guinea’s overall progress towards achieving MDG and transparently coordinates targets, even those nationally tailored, remains worrying if not alarming. international aid; donors and Donor coordination is still very weak from the government side. A continued development partners support effort is required from UNDP in order to change the current status quo and nation building and facilitate the achieve the MDGs. The outcome has not been achieved. implementation and monitoring of the MTDS/ MDGs.
3 Provincial planning and The provincial capacity-building initiative had very positive impacts in terms management. Provincial of improving financial management. However, the scope and reach of the and local governments plan project puts in question the overall progress toward the planned outputs and manage their finances and outcomes—provincial capacity building has been rolled out in only 6 and support services delivery of 18 provinces. There are questions regarding the planned outcomes that effectively and efficiently with target improved service delivery at the provincial and district level; it is very increased partnership and difficult to measure the impact of provincial capacity building on service participation of civil society and delivery in the provinces, because the project remains oriented toward limited private sector. capacity building (province and district treasurers) and does not inform policy making. The outcome has been only partially achieved and needs a review and expansion of the current outputs—particularly in terms of the support to effective service delivery.
4 Human rights. Rights holders Because the draft bill on the establishment of the National Human Rights for the first time exercise their Commission was prepared in 2008 and has yet to go through the parlia- right to access a National Human mentary process, there exists no access mechanism for rights holders—the Rights Commission. outcome has not yet been achieved.
5 crisis prevention. National The main UNDP contribution to the national government in this area has and provincial level govern- been assisting the Prime Minister’s department to draft a National Security ments apply effective crisis Policy, which is still awaiting approval. In the area of conflict prevention and management and preven- resolution there are no policies, strategies or techniques in place at either the tion policies, strategies and national or provincial level. At the provincial level, the Community Security techniques. programme was terminated without outcomes. Technical assistance provided to the Autonomous Bougainville Government has provided support for key divisions of the Peace Division and Veterans’ Affairs to develop Autonomous Bougainville Government’s weapons disposal strategy, which has yet to be applied. These outcomes have yet to be achieved.
CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 53 UNDP country ADR Assessment Programme Outcomes
6 Disaster management. Disaster risk management is a relatively recent area of intervention for UNDP, National- and provincial-level and results are still forthcoming. Disaster risk management has been included institutions effectively coordi- in important government development planning documents, although these nate disaster risk management plans (and specifically the MTDP) have yet to begin implementation. There policies and programmes to is inadequate connectedness between the national and provincial govern- ensure better preparedness and ments, particularly in relation to disaster risk management, which has been response to impact of natural detrimental for the effective management of disaster risks at the provincial disasters on communities. level (provinces do not allocate resources to disaster risk management). The National Disaster Centre still needs significant capacity development. The outcome has yet to be achieved.
7 Environment and sustain- Targeted national policies and regulatory frameworks are not in place; they able livelihoods. Communities are not available for communities to implement. A preparatory project on apply national policies and ecotourism was carried out, but with no up-scaling or follow-up. A project that regulatory frameworks to could address non-timber forest products is under formulation. There are no implement environmentally initiatives on sustainable agriculture or ecoforestry. The outcome has not been sustainable livelihood opportuni- achieved. ties, including community based ecotourism, non-timber forest products, sustainable agriculture and ecoforestry.
8 Women in Leadership. The stated programme objective was to increase women’s parliamentary Women access decision-making representation. The main deliverable is the Equality and Participation bill to be roles and make use of existing tabled for upcoming parliamentary debates. No other leadership programmes mechanisms, including legisla- for women have been implemented. This programme established technical tion and policies that promote support mechanisms and advocacy strategies to address women’s parliamen- or hold concrete provisions for tary leadership through constitutional and legal avenues. To complement this, women to take up leadership UNDP supported an external capacity assessment of the key leadership national roles in the Papua New Guinean machineries for gender equality, and facilitated the review and revision of the society. National Policy for Women and Gender Equality (2011–2015). This outcome has been partially achieved with mechanisms, policies and legislation, but has not increased the number of women in national leadership roles.
9 Gender-based violence. The gender-based violence programme has not contributed to establish- Women, men, girls and boys ing protective mechanisms, as they are not yet in place. There were minimal access formal and non-formal deliverables during the 2008–2011 period, with the main focus on building protective mechanisms to National Council of Women’s capacity to undertake mentoring programmes reduce gender-based violence. and provide financial assistance to the Department for Community Development to complete the CEDAW Report. UNDP Gender-Based Violence Senior Adviser’s research study on gender-based violence has yet to be finalized, and its recommendations have not been implemented with police, the Law and Justice Sector, or the Family and Sexual Violence Action Committee. As of yet, no support is being provided to the Bougainville women’s non-governmental organizations working on trauma counselling or gender-based violence. The country programme has not delivered formal or non-formal mechanisms to reduce gender-based violence accessible to women, men, girls and boys. The Outcome has not been achieved.
10 HiV and AiDS. By 2012, a A successful UNDP leadership programme and support to the National AIDS coordinated effective national Council Secretariat over the last two planning periods have greatly contributed response leads to a decrease to the improved national response and levelling out of the HIV prevalence curve. in transmission of HIV and However, the momentum of the political will and government support to create AIDS and provides services to important HIV and AIDS-related initiatives is slowly waning. The Parliamentary decrease the impact of HIV and committee and the National AIDS Council Secretariat are stagnating and need a AIDS on individuals, families new boost in order to sustain the achieved results. At present, it is unlikely that and communities living with or the current national response will lead to a decrease in transmission by 2012. affected by HIV and AIDS. The outcome is unlikely to be achieved.
54 CHAPTER 4. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS Chapter 5 cONcLUSiONS AND REcOMMENDATiONS
UNDP in Papua New Guinea has, over the past strong commitment to MDG-fortified planning, two programming cycles, provided technical reducing the risk of HIV and AIDS, increasing support to the government in order to strengthen women’s representation in parliament, supporting institutional development and enhance policy efforts in Bougainville reconciliation and recovery, formulation. Although some areas were not key strengthening provincial governance, and government priorities, UNDP interventions in enhancing disaster risk management. However, the areas of MDG planning and monitoring, the lack of a systematic approach to programming governance, HIV and AIDS, conflict preven- and poor synergies between various interventions tion and recovery, environment and energy and hampered contributions to results. There were disaster risk management responded to key missed opportunities in the area of governance national needs and priorities. and environment, where identification of critical gaps for long-term support was lacking. UNDP contributions across programme areas varied. While factors such as complex develop- conclusion 2. UNDP support to MDG ment issues and a challenging political environ- planning and preparation of MDG reports ment constrained meaningful results contribu- has been important. The emphasis given in tions, the UNDP country programme lacked a the programme to these issues, however, is systematic and deliberate approach to addressing not commensurate with the needs in the key development needs—particularly in the areas country and does not reflect the complexity of MDG planning, environment, gender and of issues. UNDP was not successful in using reconciliation and recovery. The following are the its programme interventions in the area of main conclusions and recommendations. gender, environment and governance to further MDG planning and reporting. UNDP supported the preparation of two national 5.1 cONcLUSiONS MDG reports and continued its support to conclusion 1. UNDP contributions have defining MDGs indicators in national planning been important in terms of responding to documents. This is a significant contribution national priorities and government needs. given the lack of orientation to MDGs in national During the two country programmes cycles planning and poor data availability in Papua under review, UNDP support was critical New Guinea. The progress in achieving national in providing technical support to key MDG targets, which are less modest than the government departments. Although many global MDG targets, has been challenging for outputs were achieved, contributions to Papua New Guinea—only recently has there been long-term development, the achievement some momentum to have an MDGs-oriented of outcomes and results were limited. MTDP. The support of UNDP to achieving the UNDP interventions over the past seven years MDGs does not reflect the national priorities and responded to institutional challenges in Papua needs in Papua New Guinea, and poor synergies New Guinea amidst a complex political context. within the UNDP programme further weakened UNDP is valued for its objective and impartial the attention the MDGs should have received. support, and maintained its relevance in key Lack of reliable and timely data reduced the development areas. UNDP technical support quality of UNDP-supported national planning has been critical in filling human resource gaps documents (e.g. MTDS) in terms of realistic in the government. UNDP demonstrated a baselines and targets.
CHAPTER 5. CONCLUSIONS AND RECOMMENDATIONS 55 Support to MDGs at the sub-national level has government with the capacity to formulate been weak. Continued assistance to provincial policies and legislation for enhancing women’s and local governments in MDG-based planning, access to decision-making positions, this has yet budgeting, and monitoring and strengthening to be translated into women’s improved parlia- sub-national MDG data systems are areas that mentary representation. Concentrating all efforts did not receive sufficient attention. There was a and resources in the area of women’s parliamen- missed opportunity in supporting the National tary leadership, while neglecting other key lead- Statistics Office to strengthen data collec- ership areas in the public and private sectors, tion mechanisms, which are critical for MDG is a programmatic weakness that needs to be reporting. While UNDP is engaged in MDG addressed. awareness-raising advocacy, more efforts are needed at both the national and sub-national The progress of UNDP support to gender- levels in order to integrate MDGs in planning. based violence had been minimal and has been constrained by weak UNDP staff capacities. Conclusion 3. In the face of strong cultural Violence against women is common and is exac- and traditional resistance, UNDP has erbated by socio-economic and cultural pressures supported efforts to address gender as traditional society adapts to change. Achieving inequality and gender-based violence in the programme outcome related to gender-based Papua New Guinea; UNDP has contributed violence will require adequate effort in the UNDP to taking forward the national discussion programme and a coordinated approach from the on the subject. United Nations country programme and partners.
While it is too soon to expect concrete Conclusion 4. UNDP has responded results related to gender equality, the UNDP to a number of Papua New Guinea’s approach was not holistic and was too environmental needs and is supporting narrowly focused on a single issue (women government efforts to meet interna- in parliament), losing the opportunity of tional commitments on the environment, more tangible gender equality outcomes. biodiversity and climate change. However, The UNDP programme is committed to the UNDP response has neither been furthering gender equality in the social, economic cohesive nor strategic. and political spheres and to reducing gender- Papua New Guinea is endowed with an abundance based violence. While the Constitution of Papua of natural and energy resources. As is the case New Guinea provides equal rights to all citizens, in other areas of the government in Papua New and legislation that promotes equal opportunities Guinea, weak capacity is a major issue in environ- for men and women is being introduced, gender mental management. While UNDP responded inequality and violence against women are wide- with a number of capacity-development initia- spread. Despite programmatic commitment, tives, the current interventions are not based on UNDP support lacked a systematic approach to a formal capacity assessment. As a result, the addressing complex gender issues in Papua New basis for environment programme planning and Guinea. A key limitation of UNDP efforts has management is not strategic but ad hoc and influ- been that the various interventions related to enced by funds availability. A larger issue is the furthering gender equality and women’s empow- lack of a comprehensive capacity development erment have remained disjointed, lacking a strategy, which also contributed to the lack of a more holistic approach to addressing the issue at long-term strategy. There are minimal linkages national and sub-national levels. between various ongoing efforts in the area of environment and climate change. UNDP supported upstream policy development, particularly women’s parliamentary repre- Although it is still too early to assess contribu- sentation. While it successfully provided the tions to results for the ongoing programme, unless
5 6 CHAPTER 5. CONCLUSIONS AND RECOMMENDATIONS measures are taken to strengthen programme and analysis has been significant in progressing design and management UNDP contributions in towards peace and reconciliation. In addition, the environment sector appear to be less promising. UNDP assistance to the formulation of the Peace, While the lack of a more coordinated approach Reconciliation and Weapons Disposal Policy for between government departments and UNDP in the Autonomous Bougainville Government, the programme planning and management affected establishment of the Autonomous Bougainville the sustainability of interventions and outcomes, Government Peace Division and collaborations more specific measures are needed ensure sustain- with local women’s non-governmental organi- ability of policy and technical support. zations in reconciliation are key initiatives in creating an enabling environment. The UNDP UNDP has successfully mobilized the Global programme played a complementary role to the Environment Facility and UNDP TRAC funds government by facilitating the implementation of for the environment programme. There is need national development strategies and policies. for better consolidation of various interventions for a more systematic support to environment Despite such contributions to the reconciliation and climate change programmes in the country. and recovery, the programme was undermined by a lack of a programmatic approach and effective A major concern in Papua New Guinea is the programme management. UNDP was ineffec- rapid conversion of natural forest into planta- tive in enhancing linkages between the national tion forests (e.g. cocoa and oil palm). This is in and the Autonomous Bougainville Government addition to significant impacts from mining, agri- programmes and between reconciliation, recovery, culture and other consumptive land uses. UNDP and longer-term development in the Autono- support did not pay adequate attention to formu- mous Bougainville Government. In addition, a lating a comprehensive national land use plan to lack of linkages with other UNDP programmes, inform decisions on the best comparative uses of particularly in the area of gender, environment land, potential economic benefits and environ- mental costs. Land-related issues and environ- and governance, weakened UNDP contribution. ment degradation have the potential to escalate Conclusion 6. UNDP put significant effort conflict, an issue which did not receive adequate into addressing the HIV and AIDS epidemic. attention in the UNDP programme. The UNDP Leadership Development Conclusion 5. UNDP contributions to Programme served as a catalyst and created reconciliation and recovery in Bougainville the necessary political will to support had mixed outcomes. While demobilization important HIV and AIDS-related initiatives. was challenging given the complexity UNDP needs to maintain the momentum of issues, UNDP support to the national generated by refocusing its support to government in policy formulation, strengthening the capacity of the Special strengthening the Autonomous Parliamentary Committee and the National Bougainville Government’s capacities, AIDS Council Secretariat. and to the reconciliation process has HIV and AIDS prevention efforts have been created a more enabling environment. supported by UNDP and various UN agencies Lack of an integrated approach to addressing (e.g. the World Health Organization, UNICEF, multidimensional issues in reconciliation UNAIDS). UNDP addressed HIV and AIDS and fragmented interventions constrained capacity development and strengthening national UNDP contribution. systems. UNDP support to capacity development UNDP support to the preparation of the National of the National AIDS Council Secretariat and Security Policy, the establishment of an Inter- strengthening institutional capacities for moni- Departmental Committee on Small Arms Control toring and evaluation needs to be continued, and to armed violence reduction data collection particularly monitoring at the provincial level.
CHAPTER 5. CONCLUSIONS AND RECOMMENDATIONS 5 7 Monitoring and evaluation of HIV and AIDS ulterior or political motives. UNDP should further is facing numerous challenges in terms of their leverage its corporate advantage in this area and primary task of data gathering. This is due to its political acceptability to address some of the not only weak capacities of the National AIDS key governance issues, such as fair elections, trans- Council Secretariat, but more importantly due parency in governance, human rights, stability of to lack of operational institutions at the provin- political parties and the development of effective cial and district levels. The provincial monitoring civil society structures. teams are not functioning due to lack of staff, and this is an area where UNDP should strengthen its The absence of follow-ups to the pilot initiatives support to the National AIDS Council Secretariat. is one of the major weaknesses of the governance programme. This is especially evident in the case Non-governmental organizations in Papua New of voter education, civic education, corruption Guinea lack the capacity to become significant awareness and human rights initiatives. With the partners in implementing the HIV and AIDS exception of the Provincial Capacity Building strategies or development projects. Strength- Project, most UNDP interventions in the field ening the capacities of civil society organizations of democratic governance are centrally located. is currently the weakest area of the programme, UNDP should expand its initiatives to the local as more efforts are needed to build the capacities level and support democratic governance initia- of non-governmental and civil society organiza- tives beyond financial management interventions. tions. UNDP should continue strengthening and involving civil society organizations in the HIV Conclusion 8. In disaster risk management, and AIDS response, particularly in data gathering UNDP technical support contributed and community participation. The Community to building institutional systems and Conversations Project is very encouraging in that developing policies. UNDP needs a more respect, but it needs to be scaled up beyond the coherent programme to enable better coor- current pilot province. dination among government agencies at the national level, and to strengthen disaster Conclusion 7. UNDP has yet to utilize fully risk management at the local level. its comparative advantage in the area of governance. While UNDP activities in this The UNDP role in strengthening coordina- area largely complement the government’s tion among government agencies dealing with work, the sustainability (and scaling up) environment, climate change and disaster risk of some UNDP support activities would management has been minimal. There is a lack have been further enhanced with better of connectedness among the major early warning partnerships with government and other institutions and related departments in the development partners. government (e.g. the National Disaster Centre, Through its support to democratic governance and Geophysical Observatory, and National Weather provincial-level institutions in Papua New Guinea, Service), and further efforts are needed by UNDP UNDP has created positive and useful relation- for a more systematic approach to strengthening ships with the Department of National Planning disaster risk management in Papua New Guinea. and Monitoring as well as with the Office of The work done in the initial four provinces is Legislative Counsel. These institutions are invalu- encouraging, but its good practices should be able partners for future interventions in demo- replicated in other high-risk provinces. cratic governance. Although the content of the UNDP governance programme is limited in scope Conclusion 9. One of the weak areas of the and reach, it has a great potential for expansion. UNDP programme is the lack of attention, in both design and implementation, to UNDP is not only a key agency in the areas of addressing cross-cutting issues such as governance, but also it has high levels of cred- the MDGs, gender equality, human rights, ibility and is seen as an impartial agency without capacity development and HIV and AIDS. Lack
5 8 CHAPTER 5. CONCLUSIONS AND RECOMMENDATIONS of synergies between different programme In Papua New Guinea, 85 percent of the popula- areas further undermines addressing cross- tion is rural, isolated and without access to services; cutting issues. 97 percent of land is owned by communities who Considering the importance of cross-cutting hold the key to 5 percent of the global biodiver- issues in Papua New Guinea, the effective- sity. While community-level programmes were ness of contribution to results was undermined constrained by security concerns, UNDP efforts by the lack of attention paid to them. For lacked partnerships to carry out programmes at example, mainstreaming gender issues in UNDP the sub-national and community level. Similarly, programmes was minimal, which has negatively UNDP could have been more effective in lever- impacted programme contribution in furthering aging its upstream support to further strengthen the MDGs, addressing gender-based violence its interventions at the sub-national level. and gender inequality in the public space. The UNDP created some positive and useful working disconnect between various interventions aimed relationships with government institutions. The at promoting gender equality further undermined good working relationships created by UNDP are UNDP contributions to results in this key area. very valuable. One good example is the UNDP Likewise, support to the MDGs and HIV and involvement in government planning processes AIDS was seen as different activities and not (MTDS, MTDP), which is based on a mutual mainstreamed across programme areas, reducing understanding with the Department of National contributions to results in these areas. Similar Planning and Monitoring. There is, however, neglect of mainstreaming was also evident in a need for more strategic partnerships with climate change. For better contributions to results key departments both at the national and sub- and to maximize contributions in each thematic national levels. area, UNDP should go beyond the compart- One of the constraints in programming at the mentalized approach to programming. While community level in Papua New Guinea is the capacity development is a programming principle security situation. UNDP should strengthen its of UNDP, the lack of a coherent approach under- partnerships with non-governmental organiza- mined systematically addressing capacity issues tions and civil society organizations in order to across programme areas. complement government efforts to increase the Lack of indicators to monitor cross-cutting issues community’s participation in development. made it difficult to track and report progress. Conclusion 11. Lack of a long-term approach There is also a need for better coordination with to capacity development is an area of UN agencies in addressing cross-cutting issues concern in Papua New Guinea. Although in the UN country programme. More efforts are UNDP has addressed capacity development needed to strengthen the monitoring of cross- in various government institutions through cutting issue at the UN country programme and a number of interventions, the approach at UNDP. has not been strategic. Lack of needs Conclusion 10. UNDP programme assessments and no time-frame made contributions would have further benefited capacity development initiatives mere from a balanced approach to upstream substitutions of capacity gaps. and downstream support. The Papua New UNDP in Papua New Guinea has several initia- Guinea context requires sub-national and tives to strengthen technical and staff capacities community-level support to augment in government institutions. The technical support UNDP upstream support. UNDP needs provided by UNDP is not sustainable because strategic partnerships to further strengthen of the lack of a long-term strategy, and capacity programmes at the sub-national and gaps remained when the technical support ended. community levels. Lack of a country-specific strategy to address the
CHAPTER 5. CONCLUSIONS AND RECOMMENDATIONS 5 9 long-term capacity needs in Papua New Guinea, of its financial management; however, operations which entails national ownership, clear targets, and programme delivery are still agency-based. and gradual take over by the government and There is need for a more meaningful formulation nationals, is a major challenge to UNDP contribu- of task teams. UNDP participates in several task tions. There is also no articulation of a common teams. In some of them (e.g. governance, environ- approach to capacity development in the UN ment), UNDP is the only agency. Lack of system- country programme. While there is commitment in atic planning and implementation of cross-cutting the country programme to strengthening national themes, such as gender equality and human rights, institutions and developing capacities, it lacked a across programme areas and a more strategic clear vision as to what must be achieved. This is an approach to capacity development has reduced the area that needs to be addressed on a priority basis effectiveness of UNDP contributions. by the UN Country Team and UNDP. The Delivering as One programme has impli- Papua New Guinea receives large and contin- cations for the UNDP programme, particularly uous support from a few donors to strengthen joint interventions with other UN agencies. In government institutions’ capacities. One concern the forthcoming programming cycle, the UN is that capacity is substituted but not developed. has moved towards one budget. While resource UNDP contributions have been minimal to the mobilization may be easier and more trans- overall discussion of capacity development in the parent, and key donors in the country are able country. While better governance, strengthening to make contributions in a holistic way, account- the capacities of the institutions and leadership, ability among UN agencies in contributing to and enhancing transparency and accountability programme outcomes needs to be clarified. A have been central to UNDP support, very little common resource mobilization strategy is needed was done to support the government in devel- for more coherent joint programme funding. This oping a capacity-development strategy. is important for UNDP and other agencies that have joint programme outcomes and interven- Conclusion 12. As a self-starter, the UN tions. Also, further efforts are needed to ensure country programme in Papua New Guinea greater harmony among UN agencies, particu- has made considerable progress in moving larly where more than one UN agency is working towards Delivering as One, and UNDP contri- in a particular area. butions have been important towards this. While the UN country programme Conclusion 13. Efficiency of UNDP support responded to the need for more effective was undermined by weak programme development cooperation, there is further design, lack of synergies between thematic need for consolidating cooperation areas and between complementary between agencies and taking forward the themes. UNDP also had difficulties in timely momentum gained in Papua New Guinea. funds disbursement. More importantly, there is need for greater engagement with the government and for In the previous programme, most outcomes were a more strategic UN country programme. at the output level, making it difficult to ascertain contributions to results. The annual work plan The UN system in general, and UNDP in in the ongoing programme has discontinued particular, needs to further strengthen preparation of Project Documents and Logical the engagement of government agencies. Framework Matrices. Results are difficult to While the government is positive about assess and it is not possible to measure the contri- the Delivering as One United Nations bution of individual interventions to overall programme, lack of clarity on what it outcomes. Annual work plans do not substitute entails undermines managing results. for project documents that can guide imple- The common UN country programme has unified menters and provide a measure against which to UN Country Team planning processes and aspects monitor progress towards targets.
6 0 CHAPTER 5. CONCLUSIONS AND RECOMMENDATIONS There are many delays in starting initiatives be strategic in its resource use and should reduce and in their closure. Programme delivery is not the number of small and short-term interventions strong, and country office staff function as coor- that do not have substantial relevance in terms dinators and not as advisers; there is little resident of contribution to development results. Instead, expertise. Staffing levels are stretched and appear UNDP should focus on fewer interventions over incapable of good support, robust monitoring, a longer period, aimed at addressing capacity, analysis, reporting and adaptive management. policy and advocacy issues. UNDP faces strong competition from the private sector in recruiting and retaining good staff, An integrated approach to programming is and there is concern about vacancies in areas of crucial to achieving results in each thematic area comparative advantage such as aid coordination, as well as for the UNDP programme as a whole. governance and human rights. There is an expec- UNDP should pay specific attention to improving tation that UNDP will take a leading role in these synergies between complementary programme areas, but staff resources were not adequate to do areas. UNDP programme strategy should also this. During the past two country programmes, address programme implementation challenges the country office was able to mobilize non-core in Papua New Guinea. resources on a slightly less than 1:1 ratio. If there is reduction in available financial resources, the Recommendation 2. UNDP should strive for repercussions for staff positions can be signifi- a balance between its upstream and down- cant, affecting programme management. stream work and further increase its support at the provincial and community level. Human and financial resources in the country The UNDP programme should focus on office are spread too thinly. It would seem that the strengthening capacities at the sub-national number of staff positions, the levels, and deploy- and local levels. The security situation in Papua ment to key thematic areas would benefit from New Guinea should not be prohibitive to an in-depth review. Specifically, adequate staff achieving these ends. Upstream activities must be resources need to be made available to governance, augmented with visible and tangible outcomes at gender equality, human rights, poverty and MDGs, the community level. For example, having been environment, disaster risk management and aid involved at the central level with the National coordination. UNDP needs to narrow its scope and allocate more resources to fewer interventions. Disaster Centre for almost six years, UNDP should move to the provincial level in terms of improving the early warning and other disaster 5.2 RECOMMENDATIONS risk reduction/management-related infrastruc- ture. Likewise, in the area of environment and These recommendations consolidate the findings MDGs, more sub-national thrust should be and conclusions of the evaluation and are given in the forthcoming programme. UNDP primarily focused on UNDP priority issues. should pay specific attention to developing strong programme partnerships at the provincial and Recommendation 1. For more sustainable local level. contributions to development results, UNDP should define clearly the strategic Recommendation 3. UNDP should put more focus of its programme under each emphasis on supporting MDG planning and thematic area and narrow the range of monitoring. UNDP support should specifi- activities accordingly. cally include localized MDG planning in To maximize results in areas central to the UNDP order to accelerate progress towards MDGs. mandate and build on its comparative advan- UNDP should leverage on its ongoing efforts tages, UNDP should take necessary measures to in the area of gender equality, HIV and AIDS be more focused in its support, with long-term and environment to better contribute to engagement in a few select areas. UNDP should MDG planning.
CHAPTER 5. CONCLUSIONS AND RECOMMENDATIONS 6 1 The progress in achieving less ambitious national some of this work, UNDP will need to comple- targets in MDGs has been challenging for Papua ment Global Environment Facility resources with New Guinea, and more concerted efforts are additional resources in order to address other needed in order to achieve global MDG targets. national priorities in the environment sector. While UNDP should continue its support to MDG planning and monitoring, there is a need UNDP should support an institutional analysis for more programme investment to strengthen and capacity assessment of the Department national data systems for accurate and reliable of Environment and Conservation in order to data on MDG progress and to inform govern- facilitate establishing indicators for capacity ment policy and planning. In Bougainville, development. Considering the inadequate UNDP should opt for programming models, attention paid to the environment in the MTDS, such as area-based development, for a more specific attention is required in the forthcoming holistic approach to reducing crisis and enabling programme in order to integrate environmental a MDG-oriented recovery. issues into national policy and planning.
Recommendation 4. UNDP should have a Recommendation 6. UNDP should play sustained, long-term and multi-pronged a more proactive role in strengthening approach to addressing gender issues at governance capacities at different levels. It should clearly define areas of support all levels. for long-term engagement. In coordination with the UN Country Team, UNDP is one of the key agencies supporting UNDP should adopt a holistic approach to governance issues in Papua New Guinea. UNDP integrating gender equality into all areas of support is seen as credible and objective, and MDG implementation. The issue of gender- has a stronger role to play in the forthcoming based violence needs to be addressed through a country programme. While there are many areas comprehensive and inclusive public education and opportunities to choose from, UNDP should and awareness programme, enhanced by strong strategically engage in a combination of long- and partnerships at the community level. medium-term governance issues. UNDP involve- ment may focus on local governance (service Unlike in the ongoing programme, UNDP should delivery, strengthening finance management) and not put all its resources into a single issue such as at the national level in public sector reforms, and representation of women in parliament. While on strengthening data and monitoring systems. pursuing such macro issues, UNDP should also support immediate capacity development needs In the area of environment, HIV and AIDS (e.g. women in bureaucracy or strengthening and disaster risk management, UNDP is the capacities of the various departments for already engaged in developing the capacities of more gender-sensitive development planning). its partner agencies in the government. UNDP Support to gender equality should include a should consolidate all governance-related activi- strong advocacy component. ties under a more coherent programme. Specifi- cally, this may mean developing their capacity to Recommendation 5. Given the importance of plan, budget and allocate resources. linkages between sustainable environment, land use and livelihoods in Papua New Recommendation 7. UNDP needs to establish Guinea, UNDP should refocus its work in and nurture strategic partnerships to the environment sector. complement its expertise and supplement UNDP should revisit its activities in the environ- its resources. ment sector and prioritize interventions at the The coordination of the UN Country Team in community level on land use, protected areas and Delivering as One should be used to maximize climate change activities. Although the Small UNDP contributions to development results. Grants Programme can be extended to carry out Partnerships within the UN should be used to
6 2 CHAPTER 5. CONCLUSIONS AND RECOMMENDATIONS work out programme arrangements for more should be taken to strengthen programme efficient implementation, particularly at the sub- monitoring and reporting systems. national level. Specific attention needs to be paid to strength- ening results-based management, which includes There is need to further strengthen the nature of partnerships and partnership arrangements with systematic monitoring of outcome indicators, government departments. In particular, UNDP effective systems for monitoring output and should ensure greater clarity in its partnership outcome indicators and reporting. Indicators at with the Department of National Planning and the project level should be linked to indicators at Monitoring, as this is critical to building partner- the outcome level, and baseline information should ships with other government departments. be prepared for all outputs and outcomes. Even if relying exclusively on annual work plans, all inter- UNDP needs to strengthen its partnerships and ventions should have a Results Framework. For collaborations with non-governmental and civil better sustainability, UNDP interventions must society organizations. UNDP should, where have an agreed framework for exit. required, support capacity development of the non- governmental and civil society organizations, as UNDP has several capacity development projects they can serve as entry points to communities. Civil and components. Such projects must be preceded society organizations in Papua New Guinea lack the by a needs assessment, and baselines must be iden- capacity to serve as an alternative voice to govern- tified. Projects should have a realistic time-frame ment, and some are reliant on government funding. and plan for disengagement and handing over. UNDP and UN partners need to undertake a non- governmental/civil society organization review Programme planning should also ensure better in order to determine strengths, weaknesses and synergies among programme areas and projects capacity development requirements. within a programme area, and there should be specific monitoring indicators for this. UNDP Recommendation 8. UNDP is strategically should strengthen gender analysis and gender- positioned to promote UN values and should disaggregated data for all interventions and take make a stronger commitment to address sufficient measures to ensure that gender analysis cross-cutting issues such as gender equality, informs programme design and implementation. and human rights in programme planning Adequate human resources and funds should be and implementation. allocated for monitoring and evaluation of the Irrespective of specific projects related to gender programme. Effort needs to be made to improve equality, a more systematic approach is required the monitoring skills of programme staff and for incorporating gender and human rights they should receive training in monitoring and dimensions into the UNDP programme. UNDP periodic orientation. should commit adequate financial and human resources to implementing cross-cutting issues. UNDP should take sufficient measures to improve programme delivery. The substantial UNDP needs to pay sufficient attention to main- underspending of project funds in the previous streaming gender equality across its programmes, programme needs to be reviewed in order to irrespective of specific interventions related draw lessons to correct it in the forthcoming to women’s empowerment or gender equality. There is need for specific resource allocation in programme. Staff turnover and retaining national programme planning and implementation for staff, particularly programme staff, has been an addressing cross-cutting issues. issue for UNDP in Papua New Guinea. While it may not be feasible to match private-sector salary Recommendation 9. UNDP should strengthen packages, UNDP should create more awareness programme planning and management in the in the universities to attract young professionals forthcoming programme. Urgent measures to work for the UN.
CHAPTER 5. CONCLUSIONS AND RECOMMENDATIONS 6 3
Annex 1 TERMS OF REFERENcE
1 iNTRODUcTiON 2 cONTEXT The Evaluation Office (EO) of the United Nations The development of Papua New Guinea since Development Programme (UNDP) conducts attaining independence in 1975 has been inter- country evaluations called Assessments of Devel- spersed with periods of economic progress and poor opment Results (ADRs) to capture and demon- performance. In the past decade, there have been strate evaluative evidence of UNDP contributions government efforts to address critical development to development results at the country level, as well challenges. The national strategies and policies as the effectiveness of UNDP strategy in facili- under implementation are aimed at social and tating and leveraging national efforts for achieving economic progress at the national and sub-national development results. ADRs are independent eval- levels. These include Vision 2050, Papua New uations carried out within the overall provisions Guinea Development Strategic Plan (DSP) 2010– contained in the UNDP Evaluation Policy.107 2030, and five yearly Medium-Term Development Based on the principle of national ownership, Plans (MTDPs). Vision 2050 maps out Papua EO seeks to conduct ADRs in collaboration with New Guinea’s development initiatives for the next the national government whenever agreed and 40 years, with priorities underpinning economic possible. The purpose of an ADR is to: growth and development. The DSP and MTDPs translate Vision 2050 into directions for economic Provide substantive support to the UNDP policies, public policies and sector interventions Administrator’s accountability function in with clear objectives, targets and indicators. reporting to the UNDP Executive Board; Support greater UNDP accountability to Guided by the DSP, MTDP for 2011–2015 national stakeholders and partners in the outlines resources for development efforts in programme country; key policy areas under the Public Investment Programme. It aims to increase economic growth Serve as a means of quality assurance for and spread the benefits of growth to overcome UNDP interventions at the country level; and opportunity inequalities in Papua New Guinea. Contribute to learning at the corporate, The Millennium Development Goals (MDGs) regional and country levels. are integrated in the ongoing MTDP. A conducive environment—a stable political environment The ADR in Papua New Guinea will be combined with a productive and proactive public conducted in 2011, towards the end of the service machinery—is recognized as a prerequi- current UNDP programme cycle of 2008–2011, site for implementing MTDP and measures are with a view to contributing to the preparation of incorporated to ensure this. the new UNDP country programme starting in 2012 and the forthcoming United National While Papua New Guinea is poised to make Development Assistance Framework scheduled economic progress, development challenges to start in the same year. remain. Issues related to governance, economic
107
ANNEX 1. TERMS OF REFERENCE 65 management and citizen participation in the is common and is exacerbated by socio-economic development process remain a challenge. Papua and cultural pressures as traditional society adapts New Guinea has established many institutional to change. While the constitution provides equal arrangements for promoting good governance, rights to all citizens, legislation that promotes with key monitoring and accountability structures equal opportunity for men and women is in the in place. However, difficulties remain in ensuring early stages. that many of the policies, laws and regulations are implemented effectively. Peace and stability in Although Papua New Guinea is rich in natural the island of Bougainville, increasing prevalence resources, poor resources management and failure of law and order problems and significant human to apply good environmental practices, particu- security issues that place women and children larly in forestry and mining sectors, has led to most at risk are priority areas for a more sustain- over-exploitation and environmental degrada- able development. tion, affecting long-term sustainability of vital resources. The potential negative impact on the Despite government measures to integrate livelihoods of people dependent on such resources the MDGs into development planning, chal- is also high. The study of linkages between lenges remain in achieving the MDGs. Papua the impact of climate change, natural resource New Guinea is unlikely to achieve many MDG management and increased disasters risk is an targets. During the past 30 years, the country’s area that is still emerging. Papua New Guinea Human Development Index has risen by 1.3 is also in the ring of fire and has experienced a percent annually, from 0.295 in 1980 to 0.431 number of natural disasters that have resulted in in 2010, which ranks Papua New Guinea at 137 losses of human lives and property. out of 169 countries with comparable data. The Human Development Index of East Asia and the Pacific as a region increased from 0.391 in 1980 3 UNDP programme to 0.650 in 2010, placing Papua New Guinea United Nations and UNDP support in Papua below the regional average. To enable progress New Guinea is guided by a common country towards the MDGs, Papua New Guinea needs assessment of the development needs and to maintain recent economic stability and use priorities in the country, the United Nations the opportunities of faster economic growth to Development Assistance Framework (UNDAF) ensure effective service delivery. Basic service and the United Nations country programme delivery at the subregional level and ensuring that (UNCP). UNDP has been assisting the Govern- government expenditures are targeted towards ment of Papua New Guinea since 1991. In the priority development needs remain issues. There past decade, UNDP implemented two country is considerable government and external support programmes. For the period 2003–2007, the for reducing HIV and AIDS risk. However, UNDP country programme was guided by the Papua New Guinea still faces serious limitations UNDAF for the same period. In the subsequent in implementation capacity and enabling func- 2008–2012 programme (abridged to 2011), the tional institutions at different government levels United Nations Country Team in Papua New to respond to HIV and AIDS risk. Guinea prepared a UNCP intended as an inte- grated approach to United Nations’ support to Gender inequality is widespread in Papua New the government. The UNCP is conceived as a Guinea, in public and private spaces. Women rolling framework, to be reviewed and validated have considerably less access to education and on an annual basis when preparing annual work employment opportunities than men. Women plans. In 2009, a Joint United Nations Operation are also vastly underrepresented at all government Strategy for 2009–2012 (abridged to 2011) was levels, limiting their power to influence govern- prepared. The Regional Coordinator’s Office has ance and public policy. Violence against women the responsibility of coordination and monitoring
6 6 ANNEX 1. TERMS OF REFERENCE the UNCP. As part of the management arrange- basic services; and improving internal, regional ments at the United Nations Country Team, the and global integration. This was in alignment with Country Programme Coordination Committee, the UNDAF for the same period. The programme technical working groups/task teams and lead interventions, with the exception of programmes agency for each of them were established. in the area of environment and energy and There are 11 taskforces; UNDP is a member of democratic governance, have been largely at the 9 and leads 2 of them. national level. Some of the programmes initiated during the 2003–2007 country programme have In addition to the UNCP, UNDP also prepared continued during the ongoing programme. See a country programme for 2008–2012, which was Annex 7 for further details. approved by the UNDP Executive Board. The UNCP and joint UN annual plans are operational frameworks for cooperation with the govern- 4 ScOPE OF THE EVALUATiON ment. Both the UNCP and the UNDP country Since this is the first ADR in Papua New Guinea, programme have been abridged by one year to the period covered by the evaluation will include align with the 2011–2015 national MTDP. the ongoing country programme (2008–2011) and the previous country programme (2002– The 2008–2011 UNCP aimed to support devel- 2007). While the emphasis will be on the ongoing opment and peace efforts in Papua New Guinea. programme, the ADR will cover projects that Drawing from the UNCP, the 2008–2011 started in the previous programme cycle, and UNDP country programme outlines four broad the analysis may take a longer-term perspective areas of support, including democratic govern- where appropriate. ance, HIV and AIDS, poverty reduction, and environment and sustainable development. Out The ADR will assess UNDP contributions to of 5 key and 20 intermediary UNCP outcomes, the national effort in addressing development UNDP supports 4 and 11, respectively. UNCP challenges, encompassing social, economic and outcomes supported by UNDP and UNDP political spheres. It will assess key results, specifi- cally outcomes—anticipated and unanticipated, country programme outcomes are presented in positive and negative—cover UNDP assistance Annex 6. Programme information for ongoing funded from both core and non-core resources, projects and those that were concluded during and address all UNDP activities in the country, the period under review are presented in Annex 7. including non-project activities and engagement through regional and global initiatives. The cross-cutting themes outlined in the UNDP country programme include gender equality and The evaluation has two main components: crisis prevention and recovery (which are also analysis of UNDP contributions to development outcomes), support to achieving the MDGs, results through its programme outcomes, and and capacity development (individual, institu- analysis of the strategy it has adopted. For each tional and societal levels). It is also intended that component, the ADR will present its findings the programme follow a human rights-based and assessment according to set criteria elabo- approach, aim to provide upstream policy support, rated here. Further elaboration of the criteria will and support advocacy and awareness-raising be found in ADR Manual 2010. in UNDP programme areas. These themes are closely aligned with those identified in the UNCP. UNDP’S cONTRibUTiON by THEMATic/ PROGRAMMATic AREAS In the previous country programme for 2003– 2007, UNDP supported the Government of Papua Analysis of UNDP contributions to development New Guinea in enhancing leadership and partici- results of Papua New Guinea will be conducted pation; improving access, quality and delivery of through a review of its programme activities. The
ANNEX 1. TERMS OF REFERENCE 67 analysis will be presented by thematic/programme Was there any identified synergy between areas and according to the following criteria: UNDP interventions that contributed to reducing costs while supporting results? Relevance of UNDP projects, outputs Have programmes been implemented within and outcomes; deadlines and cost estimates? Have UNDP Effectiveness of UNDP interventions in and its partners taken prompt actions to achieving stated goals; resolve implementation issues? Efficiency of UNDP interventions in the use Were interventions designed to have sustain- of human and financial resources; and able results? Given the identifiable risks, did they include an exit strategy? Sustainability of the results to which UNDP contributes. To what extent do the lessons learned from the interventions integrate or advance Key questions available knowledge and local capacities and inform the design of new interventions? Did UNDP respond appropriately to the evolving country situation and national prior- Has national capacity been developed so that ities by adapting its role and approaches? UNDP may realistically plan progressive disengagement? Did the UNDP programme accomplish its intended objectives and planned results? If there was testing of pilot initiatives, was a What is the UNDP contribution to strength- plan for upscaling successful initiatives being ening national capacities in the areas of prepared? Has the programme been catalytic in the development of other programmes? democratic governance, national institutions (e.g. strengthening MDG-based planning, supporting monitoring and evaluation UNDP’S cONTRibUTiON THROUGH iTS systems), effective environment and energy POSiTiONiNG AND STRATEGiES management, and disaster management? The positioning and strategies of UNDP are What is the UNDP contribution to enabling analysed both from the perspective of the organi- peace, reconciliation and reconstruction in zation’s mandate108 and the development and the island of Bougainville? humanitarian needs and priorities in the country Did UNDP appropriately respond to as agreed and as they emerged. This would entail capacity needs (institutional and human) at systematic analyses of the UNDP place and niche the national and sub-national levels? within the development and policy space in the country, as well as strategies used by UNDP to Did UNDP respond to national priorities in maximize its contribution through adopting promoting gender equality in development relevant strategies and approaches. and peace-building? The following criteria will be applied: What were the strengths and weaknesses of the programme? Were there any unanticipated Relevance and responsiveness of the county results? What other factors operated at the programme as a whole; national level to affect the results/achievements? Enhancing comparative strengths; and How well did UNDP use its resources (human Promoting United Nations values from the and financial) in achieving its contribution? human development perspective.
108 UNDP, ‘UNDP Strategic Plan 2008-2011 – Accelerating Global Progress on Human Development,’ Executive Board of UNDP and of the United Nations Population Fund, Second Regular Session, September, New York, 2007d, available at:
68 ANNEX 1. TERMS OF REFERENCE Key questions Did UNDP use its network to bring about Did the UNDP programme facilitate the opportunities for South-South exchanges implementation of national development and cooperation? strategies and policies and play a comple- mentary role to the government? The ongoing programme is a component of one UNCP, and the United Nations Country Team Did UNDP apply the right strategy within is preparing a similar one for the forthcoming the specific political, economic and social programme. context of the region? Key questions What are the long-term strategic UNDP objectives in the priority area vs. short-term What are the implications for UNDP in programmes? To what extent are long-term forthcoming programme planning and in development needs likely to be met across Delivering as One? practice areas? What were the critical gaps in Considering that UNDP is the largest United UNDP programming? Nations agency in Papua New Guinea, Did UNDP have an adequate mechanism what are the lessons for more consolidated to respond to significant changes in the programming of United Nations agencies at country situation, in particular in peace- the sub-national level? keeping and governance? What are the lessons Papua New Guinea can Were there any missed opportunities in offer in Delivering as One? UNDP programming? Although a judgement is made using the criteria What factors guided UNDP selection of above, the ADR process will also identify how intervention locations? How did UNDP various factors have influenced UNDP perform- position itself to respond to capacity needs at the sub-national level? Was there a balance ance. Evaluation criteria form the basis of the between interventions at the national and ADR methodological process. Evaluators generate sub-national levels? findings within the scope of the evaluation and use the criteria to make assessments. In turn, How has UNDP leveraged partnerships with the findings and assessments are used to identify other United Nations bodies and the national evaluation conclusions and draw recommenda- government, civil society and private sector? tions. The process is illustrated in Figure A1 (see following page). Key questions will be further The ADR will address significant cross-cutting elaborated in the inception report. factors important to UNDP contribution to development results. Such factors include human rights, gender equality, capacity development, 5 EVALUATiON PROcESS South-South cooperation, partnerships for devel- opment and coordination of United Nations’ and The ADR process is set out in four phases, repre- other development assistance. senting a specific set of achievements and activi- ties that should be normally completed before the Key questions next phase can begin: Did the UNDP programme take into account the plight and needs of the vulnerable or 1. Preparation; disadvantaged to promote social equity? 2. Main evaluation; To what extent did the UNDP programme 3. Report writing; and incorporate contirbuting to the attainment of gender equality in each outcome area? 4. Dissemination and follow-up.
ANNEX 1. TERMS OF REFERENCE 69 Figure A1. From findings to recommendationd
Findings: factual statements about the programme based on empirical evidence gathered through evaluation activities
Assessment: judgement in relation to specific evaluation criteria, sub-criteria or question
Conclusions: exploration of broader characteristics of the programme and the causes for reaching the assessments
Recommendations: proposals for action to be taken, including the parties responsible for that action
PHASE 1: PREPARATiON Selection of projects/activities to be examined in depth; The EO has carried out preliminary research to prepare for the evaluation and has uploaded Possible visits to project/field activity sites; relevant document in a special Web site for the Outline of the evaluation’s approach to quali- evaluation team. The EO task manager has tative data analysis, specifying concrete tools undertaken a scoping mission and held discus- to be used; and sion with key stakeholders prior to the prepa- ration of the terms of reference for the evalua- Profiles of other evaluation team members. tion and outline of the evaluation design. The scoping mission also analysed the possibility of Team members carrying out evaluations in the area conducting decentralized outcome evaluations of environment and energy and gender equality jointly with the ADR. will prepare an outcome evaluation report and provide inputs to the ADR. inception report. Based on the preliminary research and scoping mission, the EO task PHASE 2: DATA cOLLEcTiON manager will develop an inception report, which AND ANALySiS should include: Data collection. Based on the inception Brief overview of key development chal- report, the team will carry out the evaluation by lenges, national strategies and the United collecting data. The evaluation team will analyse, Nations and UNDP response to contextu- inter alia, national documents and documents alize evaluation questions; related to UNDP programmes and projects over the period being examined. With the preliminary Evaluation questions for each evaluation research and data review, the evaluation team is criteria (as defined in the ADR Manual); expected to develop a good understanding of the Methods to be used and sources of informa- challenges that the country has been facing and tion to be consulted in addressing each set of UNDP responses and the achievements through evaluation questions; its country programme and other activities.
70 ANNEX 1. TERMS OF REFERENCE The evaluation team will also request and hold emerging recommendations to the evaluation briefing sessions with country office programme reference group and other key stakeholders, staff to deepen the understanding of the local and to obtain their feedback to be incorporated work portfolio and activities. in the early drafts of the report. The validation workshop will also include the feedback from Field visits and observations should normally outcome evaluations. be arranged through the country office.
The team will collect data according to PHASE 3: DRAFTiNG AND REViEWS the principles set out in Section 6 of this document and as further defined in the First draft and the quality assurance. The inception report. team leader will submit a complete draft of the report to the EO within three weeks of the All interviews will be conducted based on feedback workshop. The EO will accept the indicative interview protocols, and [elec- report as a first draft when it is in compliance tronic, Microsoft Word] summaries of each with the terms of reference, the ADR Manual interview will be prepared based on an agreed and other established guidelines, and satisfies structure to be define in the inception report’s basic quality standards. The draft is also subject qualitative data analysis approach. to a quality assurance process through an external Data analysis. The evaluation team will analyse review. The outcome evaluations will be jointly the data collected to reach preliminary assess- reviewed by the country office team and the EO. ments, conclusions and recommendations. Second draft and the verification and stake- Once the data is collected, the evaluation holder comments. The first draft will be revised team should dedicate some time (up to one by the team leader to incorporate the feedback week) to its analysis. The task manager will from the external review process. Once satisfac- join the team during this phase to assist in tory revisions to the draft are made, it becomes analysis and validation. the second draft. The EO will forward the second draft to the UNDP country office and the Regional Where possible, the evaluation team should Bureau for Asia and the Pacific for factual verifi- develop data displays to illustrate key findings. cation and identification of any errors of omission The outcome of the data analysis will be and/or interpretation. The draft evaluation report preliminary assessments for each evalu- will also be forwarded to the evaluation reference ation criterion and question, general group for comments and inputs. The team leader conclusions, and strategic and operational will revise the second draft accordingly, preparing recommendations. an audit trail that indicates changes that are made Once the preliminary assessments, conclu- to the draft, and submit it as the final draft. The sions and recommendations are thus formu- EO may request further revisions if it considers lated, the evaluation team will debrief the it necessary. Ministry of Planning and Economic Affairs and the UNDP country office to obtain PHASE 4: DiSSEMiNATiON feedback so as to avoid factual inaccuracies AND FOLLOW-UP and gross misinterpretation. Management response. UNDP Papua New Feedback workshop. A validation workshop Guinea will prepare a management response to will be organized at the end of the data collec- the ADR under the oversight of the the Regional tion and analysis phase to present preliminary Bureau for Asia and the Pacific, which will be findings, assessments, conclusions and, possibly, responsible for monitoring and overseeing the
ANNEX 1. TERMS OF REFERENCE 71 implementation of follow-up actions in the GOVERNMENT cOUNTERPART Evaluation Resource Centre.109 iN PAPUA NEW GUiNEA The Department of National Planning and communication. The ADR report and brief will be widely distributed in both hard and electronic Monitoring is the government counterpart of versions. The evaluation report will be made UNDP in Papua New Guinea. The department available to the UNDP Executive Board before will facilitate the conduct of ADR by the evalu- the time of approving a new country programme ation team by providing access to information document. The report will be widely distributed sources within the government, safeguarding by the EO and at UNDP headquarters, to evalu- the independence of the evaluation and organ- ation outfits of other international organizations, izing the stakeholder meeting jointly with EO. It and to evaluation societies and research institu- will also be the government department respon- tions in the region. UNDP Papua New Guinea sible for the use and dissemination of the final and the Ministry of Planning and Economic outcomes of the ADR. Affairs will disseminate the report to local stake- holders. The report and the management response In order to ensure a more active engagement of will be published on the UNDP Web site110 as the Government of Papua New Guinea and other well as in the Evaluation Resource Centre. stakeholders, an Evaluation Review Group will be constituted. The group will include:
6 EVALUATiON MANAGEMENT Government: Department of National ARRANGEMENTS Planning and Monitoring (chair); Civil society: Representative of a women’s UNDP EVALUATiON OFFicE non-governmental organization; The EO will conduct the ADR in collabora- United Nations: United Nations Resident tion with the Department of National Planning Coordinator; and Monitoring of the Government of Papua New Guinea. The EO task manager will handle International agencies/donors: Clinton Foun- overall management of and technical backstop- dation, AusAid; and ping to the evaluation. The task manager will set the terms of reference for the evaluation, prepare United Nations agency: UN Women. the inception report, select the evaluation team, The Department of National Planning and Moni- provide guidance to the conduct of the evalua- tion, organize feedback sessions and a stakeholder toring will invite the members of the Evaluation meeting, receive the first draft of the report and Review Group and coordinate the inputs of other decide on its acceptability, and manage the review government agencies and departments—such as and follow-up processes. The task manager will Department of Communication, Department also support the evaluation team in understanding of Rural Development, Department of Finance, the ADR scope, process, approach and meth- National Council of Women, National AIDS odology, provide ongoing advice and feedback Council, Department of Environment, Depart- to the team for quality assurance, and assist the ment of Disaster Management, Office of Legis- team leader in finalizing the report. The EO will lative Council, Parliament Office and others— meet all costs directly related to the conduct of pertaining to UNDP programme throughout the the ADR. ADR process.
109
72 ANNEX 1. TERMS OF REFERENCE The Evaluation Review Group will provide inputs report; conducting data collection; structured data to the terms of reference and inception report, documentation and analysis; presenting prelimi- particularly on key evaluation questions, and to nary findings, conclusions and recommendations the preliminary findings, conclusions and recom- at debriefings and the stakeholder workshop; and mendations to be made by the team. The group preparing the first, second and final drafts of the will participate in the stakeholders workshop ADR report as well as a draft Evaluation Brief. organized at the end of the main mission and generally provide feedback to the ADR team as The EO will establish an evaluation team to deemed appropriate during the evaluation process. undertake the ADR. The team will constitute the following members: UNDP cOUNTRy OFFicE iN PAPUA NEW GUiNEA Team leader, with overall responsibility for providing guidance and leadership for The country office will support the evaluation conducting the ADR and for preparing and team in liaising with key partners and other revising draft and final reports. The team stakeholders; making available to the team leader will have significant experience across all necessary information regarding UNDP’s a broad range of humanitarian and devel- programmes, projects and activities in the country; and providing factual verifications of the opment issues, and good understanding of draft report. The country office will provide the UNDP and United Nations programming evaluation team support in kind (e.g. arranging in a post-conflict context. It is estimated that meetings with project staff and beneficiaries or workload of the team leader would be 55 days. assistance with project site visits). However, to Two evaluation specialists (international ensure the independence of the views expressed and national consultants) will support data in interviews and stakeholder meetings held for collection and analysis. Team specialists will data collection purposes, the country office will support the team leader, provide expertise in not participate in them. specific subject areas of the evaluation and be During the entire evaluation process and particu- responsible for drafting relevant parts of the larly during the main mission, the country office report. Specialists will be contracted to cover will cooperate with the ADR team and respect the following areas: governance, pro-poor its independence and need to freely access data, economic development and gender. It is information and people that are relevant to the estimated that workload of the team special- exercise. The country office will ensure timely ists would be approximately 35 days each. dispatch of written comments on the draft evalu- The EO task manager will act as a member ation report. From its side, the ADR team will act in a transparent manner and will interact regularly of the team, prepare the design of the evalua- with the UNDP country office and national tion and support the process of analysis. government counterparts at critical junctures. 8 TiME-FRAME
7 THE EVALUATiON TEAM The time-frame and responsibilities for the evalu- The evaluation team will be responsible for ation process are detailed in Table A1. The time- conducting the evaluation as described in the frame is indicative of the process and deadlines, preceding Section 5 on the evaluation process. and does not imply full-time engagement of the This will entail, inter alia, preparing the inception evaluation team during the period.
ANNEX 1. TERMS OF REFERENCE 73 Table A1. ADR Papua New Guinea: Evaluation time-frame and responsibilities
Activity Responsible party Estimated time-frame
ADR initiation and preparatory work EO November 2010
Scoping mission EO February 2011
Inception report EO March
Selection of the team leader and the rest of EO, team leader March the evaluation team
Data collection – main mission Evaluation team April
Data analysis Evaluation team, EO April
Validation workshop EO, Government of Papua New Guinea April Department of Planning and Monitoring, evaluation team
Submission of the first draft Team leader, evaluation team Mid-May
EO review, external review and revisions EO June
Submission of the second draft Team leader, evaluation team June
Review by UNDP country office, Regional EO, Evaluation Reference Group July Bureau for Asia and the Pacific and Evaluation Review Group
Submission of the final draft Team leader, evaluation team July
Editing and formatting EO August
Issuance of the final report and EO September Evaluation Brief
Dissemination of the final report and EO, Department of Planning and September Evaluation Brief Monitoring, UNDP country office
9 EXPEcTED OUTPUTS equality (approximately 35 pages for the main text for each report); The expected outputs from the evaluation team are: Draft of the Evaluation Brief (2 pages); and The first, second and final drafts of the report ’Assessment of Development Results – Papua Presentations at the feedback and stake- New Guinea’ (approximately 55 pages for the holder meetings. main text); The final report of the ADR will follow the Outcome evaluation reports for the thematic standard structure outlined in the ADR Manual areas of environment and energy and gender 2011, and all drafts will be provided in English.
74 ANNEX 1. TERMS OF REFERENCE Annex 2 KEy EVALUATiON cRiTERiA AND qUESTiONS
criteria/Sub-criteria Main questions that guided Specific questions brought up in interviews the ADR
PART A: DEVELOPMENT RESULTS
A.1 RELEVANcE
Relevance of the Are UNDP activities aligned Did proper analysis of the context and priories inform objectives with national strategies? programme/project design? Are they consistent with human development needs How did UNDP-supported activities align with national strategies in that area? (in each thematic area)? Did UNDP respond appropriately to the evolving country situation and national priorities by adapting its role and approaches? How did UNDP-supported activities address the human develop- ment priorities of the country and needs of the beneficiaries?
A.2 EFFEcTiVENESS
Did the UNDP Did the programme/project What outputs/outcomes has the project achieved? programme accomplish implementation contribute its intended objectives toward the stated outcome? Which were the outcome areas where there was limited or and planned results? no progress? Did the UNDP programme What was the UNDP set in dynamic changes and What changes could be observed as a result of these outcomes? contribution to strength- processes that have the Did UNDP interventions strengthen institutional and ening national capacities? potential to contribute to human capacities? long-term outcomes? In addition to UNDP interventions, what other factors may have Were UNDP approaches, affected or contributed to results? resources, models and conceptual framework What were the unintended results (positive and negative) of relevant to achieving planned UNDP interventions? outcomes? To what extent were national stakeholders involved in programme design? Were the resources allocated sufficient to achieve the objectives of the project?
Scope of coverage How broad were the Were project results intended to reach local community, district, outcomes (e.g. local regional or national level? community, district, regional, national)?
Addressing gender and Considering the pervasive How were gender issues addressed in UNDP programmes? other equity issues gender inequality in Papua New Guinea, how Who were the target beneficiaries, and to what extent have they did the UNDP programme been reached by the project? address this? How have the particular needs of disadvantaged groups been Who were the main taken into account during project design and implementation? beneficiaries (poor, non-poor, disadvantaged groups)?
ANNEX 2. KEy EVALUATION CRITERIA AND QUESTIONS 75 criteria/Sub-criteria Main questions that guided Specific questions brought up in interviews the ADR
A.3 EFFiciENcy
Managerial efficiency Has the programme/project Have there been time extensions on the project? What were the been implemented within circumstances giving rise to the need for extensions? deadline and cost estimates? Has there been over-expenditure or under-expenditure on Have UNDP and its partners the project? taken prompt actions to solve implementation issues? What were the implications of the security situation in Papua New Guinea for programme management and efficient use of resources? Did the One United Nations programme improve the What mechanisms did UNDP have in place to monitor financial efficiency of the programme implementation? Were these working? UNDP programme? How was UNDP’s timeliness perceived by programme partners, particularly in the transfer of funds and procurement? What were the management implications of the One United Nations programme? How is UNDP addressing the issue of core resource cuts for the forthcoming programme?
Programmatic efficiency Were UNDP resources What were the factors that guided distribution of funds in each focused on the set of activi- programme area? ties that were expected to produce significant results? Had UNDP allocated sufficient funds for priority programme areas? Were resources spread thinly across interventions? Were any synergies identified among UNDP interventions What were the measures taken in the new United Nations that contributed to reducing country programme by UNDP to maximize use of resources and costs while supporting results? programme outcome? Were these measures sufficient to for better programme management? Did the One United Nations programme improve planning of programme interventions in terms of contributing to development results?
A.4 SUSTAiNAbiLiTy
Programme design to Did UNDP appropriately Does/did the project have an exit strategy? enhance sustainability respond to capacity needs (institutional and human) To what extent does the exit strategy take into account political at the national and factors (support from national authorities), financial factors sub-national levels? (available budgets), technical factors (skills and expertise needed) and environmental factors (environmental appraisal)? Were interventions designed to have long-lasting outcomes/results given the identifiable risks?
Issues for sustainability at What issues emerged during What unanticipated sustainability threats emerged during the implementation level implementation as a threat to programme implementation? sustainability? What corrective measures did UNDP take? To what extent did the lessons learned from the interventions integrate or advance available knowledge and local capacities, and inform the design of new interventions?
Scaling up of pilot Is/was there a plan for What actions have been taken to scale up the project if it was a initiatives and catalytic scaling up pilot initiatives if pilot initiative? interventions successful?
76 ANNEX 2. KE y EVALUATION CRITERIA AND QUESTIONS criteria/Sub-criteria Main questions that guided Specific questions brought up in interviews the ADR
PART b: STRATEGic POSiTiON
b1. STRATEGic RELEVANcE AND RESPONSiVENESS
Supporting key national Did the United Nations system Which national strategies did the programme address? How did priorities as a whole, and UNDP in partic- UNDP address national strategies in this thematic area? ular, address the development challenges and priorities and Were any important areas of the UNDP programme not part of support the national strategies the government strategy? How did these activities contribute to and priorities? national capacities and overall development results?
Leveraging the Did the UNDP programme Provide an example of how the UNDP programme comple- implementation of facilitate the implementa- mented government efforts. What role did UNDP play – provide national strategies tion of national development technical advice; facilitate dialogue, operations and access to and policies strategies and policies and knowledge; or build institutional and human capacity? play a complementary role to the government?
UNDP approaches Was there a balance between What were the perceptions about the UNDP programme approach? national and sub-national initiatives? Between policy Was there a balance between national and sub-national initiatives? and conceptual models and What was the proportion of programmes at national and implementation support? sub-national levels and was this justified? Was there balance between programmes in richer/developed/ less developed regions? How did UNDP mediate tension between short-term demands and long-term goals?
Programme evolution Was UNDP responsive to How has UNDP responded to the context and changes in Papua and responding to the evolution over time of New Guinea? Examples include: the political dynamics and lack of the context development challenges stability; the impact of economic growth as a result of Liquefied and the priorities in national Petroleum Gas resources; assertiveness of government to lead its strategies or shifts in external own development; weak administrative systems. conditions? How did UNDP respond to the lack of diversity in the donor Did UNDP have adequate environment? Provide examples to illustrate. mechanisms to respond to significant changes in the How strategic was UNDP response to the internal crisis country situation, in particular in Bougainville? in crises and emergencies?
b2. USiNG cOMPARATiVE STRENGTHS
Corporate and compara- Was the UNDP strategy Give examples of UNDP using its networks and expertise in tive strengths designed to maximize the use contributing to national results. of its corporate and compara- tive strengths? Expertise, networks and contacts?
One United Nations What was the contribution How was joint programming with other United Nations agencies programme and coordi- of the One United Nations organized, and what was its impact on overall achieving of results? nation among United programme to the overall Nations agencies result of UNDP programme? How did UNDP deal with actual or potential overlaps with other agencies? What are the lessons for UNDP in the ongoing One What are the perceptions of the national stakeholders and donors United Nations programme? about the One United Nations programme and the role of UNDP? What were the implications for partnerships for UNDP (funding as well as programme) in the One United Nations context? What are the lessons for UNDP in the forthcoming One United Nations programme?
Assisting government Did UNDP use its network to Provide example(s) where UNDP has assisted the government in to use external partner- bring about opportunities for participating in South-South exchanges (sub-regional, regional ships and South-South South-South exchanges and and global), using UNDP’s own networks and experiences in cooperation cooperation? other countries. What were the results?
ANNEX 2. KEy EVALUATION CRITERIA AND QUESTIONS 77 criteria/Sub-criteria Main questions that guided Specific questions brought up in interviews the ADR
b3. PROMOTiON OF UNiTED NATiONS VALUES FROM A HUMAN DEVELOPMENT PERSPEcTiVE
Support to achieving Did the United Nations What assistance has UNDP provided to support the government the MDGs system, and UNDP in particu- in monitoring the MDGs? lar, effectively support the government in monitor- How effective was this support? ing progress towards the achievement of the MDGs?
Contribution to What was the extent to Provide example(s) of how the programme contributed to gender equality which the UNDP programme gender equality. was designed to appropri- ately incorporate in each Can results of the programme be disaggregated by gender? outcome area contributions to the attainment of gender equality? Extent to which UNDP supported positive changes in terms of gender equality? Were there any unintended effects?
Addressing equity issues Did the UNDP programme Provide example(s) of how the programme takes into account take into account the plight the needs of vulnerable and disadvantaged groups. and needs of the vulner- able and disadvantaged to promote social equity?
Reducing HIV and Did the UNDP programme Provide example(s) of how the programme addressed HIV AIDS risk address reducing HIV and AIDS as a cross-cutting dimension beyond having specific and AIDS risk as a cross- interventions. cutting issue?
Credibility of UNDP Was UNDP considered Provide an example of UNDP contribution to high-level or capable of providing leader- substantive policy dialogue. What was the outcome? ship and contributing to substantive and high-level How would you rate UNDP’s leadership in this particular area policy dialogue on human (theme/programme)? development issues in the country, particularly on potentially sensitive issues?
78 ANNEX 2. KE y EVALUATION CRITERIA AND QUESTIONS Annex 3 DOcUMENTS cONSULTED
Asian Development Bank, ‘Papua New Government of Papua New Guinea, ‘Papua New Guinea: Development Effectiveness Guinea Development Strategic Plan 2010– Country Brief ’, 2007. 2030’, Department of National Planning and Monitoring, Port Moresby, March 2010d. AusAID, ‘About Papua New Guinea’, October 2009, available at:
ANNEX 3. DOCUMENTS CONSULTED 79 Government of Papua New Guinea and UNDP, United Nations, ‘The Millennium Development ‘Millennium Development Goals: First Goals Report’, 2009. National Progress Report 2004 for Papua New United Nations, ‘Delivering as One: A Guinea’, Department of National Planning Partnership for Nation Building’, and Monitoring, Port Moresby, 2004. 2008, available at:
8 0 ANNEX 3. DOCUMENTS CONSULTED UNDP, ‘Final Evaluation of the Milne Bay United Nations Evaluation Group, ‘Ethical Community-based Coastal and Marine Guidelines for Evaluation’, New York, 2007. Conservation’, Global Environment Facility, 2006. UNGASS, ’Country Progress Report Papua New Guinea’, 2010. UNDP, ‘Support to the National HIV and AIDS Response in Papua New Guinea: The World Bank, ‘Draft Environmental and Evaluation Report’, 2005. Social Management Framework for Papua New Guinea Energy Sector Development UNDP, ‘Country Programme Outline for Project’, 2011, available at:
ANNEX 3. DOCUMENTS CONSULTED 8 1 Annex 4 PERSONS cONSULTED
GOVERNMENT OF PAPUA NEW GUiNEA Idau Kopi, Senior Engineer, Energy Division, Country Coordinator, PI GHG Abatement, Andrew Mika, Chief, Land Use Section, Department of Petroleum and Energy Department of Agriculture and Livestock Ishmael Robert, Regional Manager, Highland Brian Nakrakundi, Acting Director, Office for Region, National AIDS Council Secretariat Development of Women, Department for Community Development James Sabi, Department of Environment and Conservation, Carol Kidu, Minister, Ministry for Community Development and Women Jamie Maxton Graham, Chairman, Special Catherine Welbia, Economic Planner, Parliamentary Committee on HIV Planning Division, Autonomous Jim Thompson, Papua New Guinea Police Bougainville Government Headquarters, Law and Justice Sector Dany Beiyo, Head, Monitoring and Evaluation, Jobson Musang, Chief Executive Officer, National AIDS Council Secretariat Division for Veterans Affairs, Autonomous Eddy Galele, Programme Manager, Financial Bougainville Government Management Improvement Programme, John Michael, Executive Manager, Sustainable Department of Finance Environment Programme, Department of James Kerwyn, Deputy Programme Manager, Environment and Conservation Financial Management Improvement John Tawaheyana, Director of Legislative Programme, Department of Finance Drafting Services, Department of Prime Fredah Taimbari, Regional Manager, Island Minister, Office of Legislative Counsel Region, National AIDS Council Secretariat Joseph Cheraha, Senior Planner, Planning Gayle Misionyaki, Head of Gender Division, Division, Autonomous Bougainville Former First Assistant Secretary, Government Department for Community Development Joseph Klapat, Secretary, Department for Goodwill Amos, Manager, Climate Change and Community Development Reducing Emissions from Deforestation and Forest Degradation, Papua New Guinea Joseph Turia, First Assistant Secretary, Foreign Forest Authority Aid Division, Department of National Planning and Monitoring Grace Nari, Project Coordinator, Gender Equality and Good Governance Project, Karen Haive, First Assistant Secretary, National Council of Women Head Gender Branch, Department for Community Development Graham Kakarutz, Budget Officer, Planning Division, Autonomous Kay Kalim, Deputy Secretary, Sustainable Bougainville Government Environment Programme, Department of Environment and Conservation Gunther Joku, Director, Special Projects, Department of Environment Kumaras Kalim, Department of Environment and Conservation and Conservation
82 A NNEX 4. PERSONS CONSULTED Larry Helm, Planning and Budget Advisor, Paul Kebori, Chief Executive Officer, Human Planning Division, Autonomous Resources Division, Autonomous Bougainville Government Bougainville Government Lawrence Disin, Chief Administrator, Peter Ghandhii, Monitoring and Evaluation Autonomous Bougainville Government Officer, National AIDS Council Secretariat Lily Tua, General Secretary, National Council Philip Tapo, Deputy Director, Prevention, of Women National AIDS Council Secretariat Luther Smith, Policy Advisor – AusAID, Ray Himata, Coordinator, Bougainville Autonomous Bougainville Government Provincial AIDS Council Magdalene Toranz, Chief of Staff, Ministry Robert Tapi, Clerk of Parliament, for Community Development, Youth, Autonomous Bougainville Government Women, Children and Sport, Autonomous Bougainville Government Rose Pitei, Minister for Community Development, Youth, Women, Maino Virobo, Executive Manager, Sustainable Children and Sport, Autonomous Land Management, Department of Bougainville Government Environment and Conservation Sam Maiha, Director, National Weather Services Mana Kakarouts, Chief Executive Officer, Division for Community Development, Siwi Aipe, Webmaster, ICT Project, Autonomous Bougainville Government Autonomous Bougainville Government Martin Mose, Acting Director, National Thomas Endo, Executive Officer, Disaster Centre Division for Veterans Affairs, Autonomous Bougainville Government Gwen Sissiou, Acting Executive Director, Office of Climate Change and Development Ume Wainetti, Programme Coordinator, Consultative Implementation and Michael Aglua, Head Corporate Services, Monitoring Council, Family and Sexual National AIDS Council Secretariat Violence Action Committee Michael Bongro, Executive Manager, Varigini Badira, Director Climate Change International Environmental Policies, Adaptation, Office of Climate Change Department of Environment and and Development Conservation Vela Konivaro, Second Legislative Counsel, Moale Kariko, Deputy Director, T&S, Department of Prime Minister, Office of National AIDS Council Secretariat Legislative Counsel Moses Kaigu, Policy Planning Manager, Vicki Morris, Police Headquarters, Law National AIDS Council Secretariat and Justice Sector Moses Koliwan, Senior Aid Coordinator, Wep Kanawi, Director, National AIDS Planning Division, Autonomous Council Secretariat Bougainville Government
Norma Aisi, Office for Development of Women, Donor agencies Department for Community Development Abraham Opito, Senior HIV Adviser, AusAiD Patrick Niebo, Head of Anti-Discrimination and Human Rights Unit, National Charles Andrews, Country Director, Asian Ombudsman Office Development Bank Patrick Palmer, Police Headquarters, Law and Dave Vosen, Counsellor, Policy and Justice Sector Coordination, Australian High Commission
A nnex 4. PERSONS CONSULTED 8 3 Dimitri Geidelberg, Counsellor – Development Elizabeth Kavo, Village Assembly Women’s New Zealand High Commission Representative, Hagogo Constituency, Buka, Council of Elders Laura E Bailey, Country Manager, Papua New Guinea, The World Bank Elizabeth Palme, Women’s Representative, Jiwaka Transitional Authority, Mt Hagen Nii-K Plange, HIV Policy Adviser, AusAiD Emily Taule, Executive Director, Roberto Cecutti, First Secretary Economics, Transparency International Trade and Governance, Delegation of the European Union to Papua New Guinea Eric Kwa, University of Papua New Guinea Roselyne Kenneth, Programme Manager, Francis Hurahura, Papua New Guinea Forest AusAID Bougainville Director, The Nature Conservancy Teddy Taylor, Ambassador, United States Garaio Gafiye, Papua New Guinea University Embassy in Papua New Guinea of Technology Gerard T. Songi, Provincial Support Terry Apa, Monitoring and EvaluationSpecialist, Advisor, Morobe AusAiD Gerry Benga, Marine Resource Management Tom Nettleton, Acting Programme Director, and Conservation, Goroka AusAiD Hanna Holan, President, North Bougainville Women’s Federation Civil Society and national institutions Helen Hakena, Director, Leitana Women’s Development Agency, Buka Albert Lahin, Vice-Chairman, Hagogo Constituency, Buka, Council of Elders Jack Komen, District and Local Level Government Support Advisor, Goroka Alina Longa, Coordinator, Bougainville Family Life Centre Jerry Bagita, Operations Manager, Transparency International Alina Longov, Family Life Office, Jerry Wana, Sepik Wetlands Management Bougainville PAC NGO Initiative, Goroka Alphonse Gelu, National Research Institute Joe Bik, Voice of Yongos, Goroka Anne Dickson-Waiko, Women’s Studies, John Anuambo, Karamui Conservation and University of Papua New Guinea Resource Management Programme, Goroka Banak Gamui, Papua New Guinea Institute Junior Novera, Papua New Guinea Institute of Biological Research, Goroka of Biological Research, Goroka Chalapan Kaluwin, University of Linden Jamang, Forest Officer, Foundation for Papua New Guinea People, Community and Development Densen Javohn, Sartelia Marine Lorraine Garasu, Director, Nazarene Conservation, Goroka Rehabilitation Centre, Bougainville,Buka Dorothy Tekwie, President, Papua New Mayambo Ipu Peipul, Programme Guinea Green Party, Past UNDP staff, Manager, Legal Advice Centre, Past Greenpeace staff Transparency International Elias Omni, Liaison Officer, Hagogo Michael Jinga, Kavali Memorial Wildlife Constituency, Buka, Council of Elders Zoo, Goroka
8 4 A nnex 4. PERSONS CONSULTED Miriam Supuma, Papua New Guinea Institute UNDP PAPUA NEW GUINEA of Biological Research, Goroka Amelia Siamomua, Chief Technical Adviser, Modi Pontio, Wildlife Conservation Society Gender Programme Neil Stronach, World Wildlife Fund Andrew Lepani, Programme Associate Paul J. Barker, Director, Institute of National Affairs Anthony Agyenta, Chief Technical Adviser, Crisis Prevention and Nation Building Philip Angopa, Provincial Support Advisor, Goroka Programme, Bougainville Pio Bisia, Chairman, Hagogo Constituency, Carol Flore-Smereczniak, Deputy Buka, Council of Elders Resident Representative Ray Himata, Bougainville, Bougainville PAC NGO David McLachlan-Karr, Resident Representative Regina Sui, Representative of the Education Dili Bhattavai, Chief Technical Adviser, Sector, Hagogo Constituency, Buka, MDG Programme Council of Elders Donna Pearson, Regional Assistant – Gender), Roslyn Gatana, Women’s Representative, Bougainville Hagogo Constituency, Buka, Council of Elders Emay Fajardo, Monitoring and Evaluation Specialist, GEF Small Grants Programme Sally Mokis, President, Papua Hahine Social Action Forum, Boroko-NCD Emmanuel Tavits, Northern Region Coordinator, Bougainville Sam Erepan PCaB, National Programme Manager Eric Kwa, Legal Specialist, Consultant on Sangion Tiu, Research and Conservation the Gender Equality Bill Foundation, Goroka Gwen Maru, Programme Analyst, Simon Saulei, Papua New Guinea Forest Energy and Environment Research Institute Jorg Schimmel, Programme Specialist Steven Kadam, Director, Madang Research Margaret Lokoloko, Assistant Institute NGO Resident Representative Susan Setae, Executive Officer, Papua Hahine Peterson Magoola, Programme Specialist Social Action Forum, Boroko-NCD Rabi Narayan Gaudo, National Disaster Tamilong Tabb, Chairman, Tab Wildlife Reduction Advisor Management Area, Madang Lagoon Robert Yen, Coordinator, GEF Small Theresa Kas, The Nature Conservancy Grants Programme Wagum Tagil, Chairman, Balek Creek Wesley Kenneth, Project Manager, Bougainville Reserve, Madang Warren Jano, Karamui Conservation and United Nations Resource Management Programme, Goroka Agnes Titus, Coordinator, Gender Equality William Daniel, District and LLG Support and Political Governance Programme, Advisor, Rabaul UN Women, Buka Betty Koko, Proramme Officer, Private sector United Nations Population Fund Joseph Dar, Hydro Expert, Bismarck Energy Ltd. Bertrand Desmoulins, Representative, UNICEF
A nnex 4. PERSONS CONSULTED 8 5 Chaals Ossom, Global Fund Advisor, Iwona Spytkowski, Monitoring World Health Organization and Evaluation Specialist, Resident Coordinator’s Office Christina Saunders, Human Rights Adviser, United Nations Office of the High Joseph D’Cruz, Regional Environment Commissioner for Human Rights Advisor, UNDP Asia-Pacific Regional Crist Morf, HIV Programme Specialist, Centre, Bangkok United Nations Children’s Fund Lars Tushuizen, Chief (Coordination), Emma Powan, Programme Analyst, United Resident Coordinator’s Office Nations Population Fund Martin Krause, Team Leader, Environment Fabian Ndenzako, Medical Officer, HIV/AIDS and Energy, UNDP Asia-Pacific Regional and STI, Head Communicable Diseases, Centre, Bangkok World Health Organization Miriam Lovai, HIV Programme Officer, Francis Grenier, Programme Management United Nations Population Fund Officer, World Health Organization Norbert Rehlis, Mother and Child Health Gilber Hiawalyer, Assistant Representative, Advisor, World Health Organization United Nations Population Fund Thazin Oo, Deputy Representative, Indai Lourdes Sajor, Trainer, Gender and United Nations Children’s Fund Conflict Advisor, United Nations Office of the High Commissioner William Adu-Krow, Representative, for Human Rights, Buka World Health Organization
8 6 A nnex 4. PERSONS CONSULTED Annex 5 LiKELiHOOD OF AcHiEViNG MDG AND MEDiUM-TERM DEVELOPMENT STRATEGy TARGETS
MDG year Likelihood of achieving targets State of supporting environment
MDG MTDS Policy/legislation implementation
1 2004 Very unlikely Potentially Fair Fair
2009 Very unlikely Likely Fair Fair
2 2004 Very unlikely Potentially Fair Fair
2009 Very unlikely Potentially Fair Fair
3 2004 Very unlikely Potentially Fair Weak
2009 Very unlikely Potentially Fair Weak
4 2004 Very unlikely Potentially Fair Fair
2009 Very unlikely Likely Fair Fair
5 2004 Very unlikely Potentially Fair Weak
2009 Very unlikely Very unlikely Fair Weak
6 2004 Very unlikely Very unlikely Fair Weak
2009 Very unlikely Very unlikely Fair Weak
7 2004 Very unlikely Very unlikely Strong Very weak
2009 Very unlikely Very unlikely Fair Very weak
Source: Government of Papua New Guinea, 2009.
A NNEX 5. LIKELIHOOD OF A CHIEVING MDG AND MTDS TARGETS 87 Annex 6 UNcP OUTcOMES ADOPTED by UNDP cOUNTRy PROGRAMME 2008-2012
UNcP outcomes UNcP intermediary outcomes UNDP programme areas and outcomes to which UNDP to which UNDP contributes contributes
Outcome 1: Outcome 1: National and selected provincial parliaments Poverty reduction Government function more effectively and carry out their legislative The Government of Papua New Guinea efficiently develops and and oversight roles. and transparently coordinates international aid, implements Outcome 2: By 2012, Government of Papua New Guinea donors and development partners to facilitate effective govern- efficiently and transparently coordinates international the implementation and monitoring of the ance and crisis aid, donors and development partners to support nation MTDS/MDGs. management building and facilitate the implementation and monitor- Democratic governance policies and strate- ing of the MTDS/MDGs. gies based on the National and selected provincial parliaments principles of good Outcome 3: Provincial and local governments plan and function more effectively to carry out their governance. manage their finances and support service delivery legislative and oversight roles. effectively and efficiently with increased partnership and participation of civil society and private sector. Provincial and local governments plan and manage their finances and support service Outcome 4: Government is aware of, respects, and delivery efficiently and effectively with increased provides for people’s human rights while it empowers participation of civil society and the private sector. citizens to demand the protection of those rights from government. Government is aware of, respects, and provides for human rights while empowering citizens to Outcome 5: The Papua New Guinea Government is demand the protection of those rights committed to nation building and human rights through from government. effective national crisis management and prevention. Relevant institutions in Papua New Guinea Outcome 6: National and provincial-level institutions research and apply best practices for conflict and donor partners effectively coordinate, prepare and prevention and recovery, and the associated deliver relief support in response to natural disasters. gender dimensions to enhance nation building.
Outcome 3: Outcome 1: By 2012, the Department for Environment Environment and sustainable development By 2012, rural and Conservation effectively plans, manages, monitors Department for Environment and Conservation communities in and coordinates with other relevant government institu- effectively plans, manages, monitors, and coordi- selected provinces tions the sustainable use of natural resources, and nates with other relevant government institu- of each region use selected communities use their natural resources tions the sustainable use of natural resources at improved sustain- sustainably to enhance their livelihoods. the national, provincial and local levels. able livelihood practices. Communities in selected provinces use their natural resources sustainably to enhance their livelihoods.
Outcome 4: Outcome 1: By 2012, the number of women in Poverty reduction By 2012, women decision-making roles in public and private sectors Number of women in decision-making roles in and girls experi- increase by 10%. public and private sectors increased by 10%. ence fewer gender Outcome 2: By 2012, communities in one province inequalities Communities in one province in each region have in each region have reduced gender-based violence reduced gender-based violence by 25%. in Papua New by 25%. (Although UNDP has not committed to this Guinea. intermediate outcome in the UNCP, it has a gender- based violence programme.)
Outcome 5: Outcome 1: Communities develop and implement HIV Democratic governance By 2012, the rate prevention, care and support strategies for Communities develop and implement HIV of HIV and AIDS their population. prevention, care and support strategies for infection is halted Outcome 3: National AIDS Council effectively and their population. or reduced, and efficiently fulfills its responsibilities in managing, coordi- government National AIDS Council effectively and efficiently nating, implementing, monitoring and evaluating fulfills its responsibilities in managing, provides services national response to HIV and AIDS. to people living coordinating, implementing, monitoring and with and affected evaluating the national response to HIV and AIDS. by HIV and AIDS.
88 A NNEX 6. UNCP OUTCOMES ADOPTED B y UNDP COUNTR y PROGRAMME 2009-12 Bougainville Port Moresby, Goroka Port Moresby Moresby Moresby Moresby Moresby Project Location 110 Port 832 Port 481 Port 1,392 Port 3,553 3,553 1,443 1,443 1,960 1,960 Total Expenditure (US$ thousands) 143 509 1,229 4,612 2,191 2,071 1,457 Approved budget (US$ thousands) BCPR, AusAID UNDP, BCPR BCPR OHCHR Sources of Funding Dept. imple- menting Partners End Date O, 2003-2012 O, Start Date Ongoing 1 Jan 2008 Ongoing ABG UNDP, Ongoing 1 Jan 2008 Ongoing PM’s Ongoing 1 Jan 2008 Ongoing DNPM UNDP Ongoing 1 Jan 2008 Ongoing NDC UNDP, Ongoing 1 Jan 2009 Ongoing OLC UNDP Ongoing 1 Jan 2008 Ongoing DNPM UNDP Ongoing 1 Jan 2008 Ongoing DJAG UNDP, Project Status (ongoing/ complete) Prevention and Recovery Crisis Prevention and Recovery Democratic Governance Crisis Prevention and Recovery Democratic Governance MDGs and Poverty Reduction Democratic Governance Practice Area (if different from cPAP) i T PORTFOL ABG – Autonomous Bougainville Government; BCPR – UNDP Bureau for Crisis Prevention and Recovery; CPRTTF – UNDP Crisis Prevention and Recovery Thematic Trust Fund; DEC – Government of Papua New United Nations Bouganville Programme Crisis Nation Building Through Crisis Management and Prevention United Nations Strategic Interventions Initiative United Nations Disaster Risk Management Programme Strengthening Legislative Drafting in Papua New Guinea MDG Coordination and Implementation in Papua New Guinea country Programme 2008–201 Governance and crisis Management United Nations Human Rights Programme in Papua New Guinea Project Title Legend: Guinea, Department of Environment and Conservation; DGTTF – UNDP Democratic Governance Thematic Trust Fund; DNPM – Government of Papua New Guinea Department of National Planning and Monitoring; DoF – Government of Papua New Guinea Department of Finance; GFATM – Global Fund to Fight AIDS, Tuberculosis and Malaria; NACS –National AIDS Council Secretariat; NDC – National Disaster Centre; NZAID – New Zealand Aid Programme; OCCD – Government of Papua New Guinea Office for Climate Change and Development; OHCHR – United Nations Office of the High Commissioner for Human Rights; OLC – Government of Papua New Guinea Office of the Legislative Counsel; TI – Transparency International. Annex 7 jEcUNDP PRO
A NNEX 7. UNDP PROJECT PORTFOLIO, 2003-2012 89 Moresby Moresby Moresby Port Moresby Moresby Moresby Port Moresby, Six Provinces Port Moresby Project Location 96 331 Port 128 Port 167 Port 287 Port 1,428 Port 1,348 1,348 3,714 3,714 1,724 1,724 Total Expenditure (US$ thousands) 91 416 223 447 389 1,988 1,756 4,393 1,920 Approved budget (US$ thousands) GFATM AusAID BCPR AusAID, Govern- ment of New Papua Guinea NZAID Sources of Funding imple- menting Partners End Date Start Date Ongoing 1 Jan 2009 Ongoing OCCD Ongoing 1 Jan 2009 Ongoing DEC GEF Ongoing 1 Jan 2008 Ongoing DCD UNDP, Ongoing 1 Jan 2008 Ongoing DCD UNDP, Ongoing 1 Jan 2009 Ongoing DCD BCPR Ongoing 1 Jan 2008 Ongoing DoF UNDP, Ongoing 1 Jan 2008 Ongoing DNPM UNDP, Project Status (ongoing/ complete) and Energy Environment and Energy HIV and AIDS Ongoing 1 Jan 2008 Ongoing NACS UNDP, Gender Gender Gender Democratic Governance Democratic Governance Practice Area (if different from cPAP) ABG – Autonomous Bougainville Government; BCPR – UNDP Bureau for Crisis Prevention and Recovery; CPRTTF – UNDP Crisis Prevention and Recovery Thematic Trust Fund; DEC – Government of Papua New United Nations Climate Change Programme Environment Sustainable Livelihoods Community-Based Forest and Coastal Conservation United Nations HIV and AIDS Prevention HIV and AIDS Completed 1 Jan 2008 Ongoing NACS HiV and AiDS United Nations HIV and AIDS Management Programme United Nations Women in Leadership Programme United Nations Gender-Based Violence Programme Gender Global Gender Equality Provincial Capacity Building Aid Coordination and Management Project Title Legend: Guinea, Department of Environment and Conservation; DGTTF – UNDP Democratic Governance Thematic Trust Fund; DNPM – Government of Papua New Guinea Department of National Planning and Monitoring; DoF – Government of Papua New Guinea Department of Finance; GFATM – Global Fund to Fight AIDS, Tuberculosis and Malaria; NACS –National AIDS Council Secretariat; NDC – National Disaster Centre; NZAID – New Zealand Aid Programme; OCCD – Government of Papua New Guinea Office for Climate Change and Development; OHCHR – United Nations Office of the High Commissioner for Human Rights; OLC – Government of Papua New Guinea Office of the Legislative Counsel; TI – Transparency International.
90 A NNEX 7. UNDP PROJECT PORTFOLIO, 2003-2012 Moresby and Provinces Moresby Port Moresby Moresby Moresby Port Moresby Moresby Project Location
97 Port 10 Milne Bay 310 Port 129 Port 1,184 Port 2,117 Port 2,866 2,866 1,258 1,258 Total Expenditure (US$ thousands)
48 428 125 189 1,696 3,108 3,961 1,335 Approved budget (US$ thousands) AusAID UNDP
UNDP UNDP Sources of Funding DoF UNDP, Bougain- ville Admin.
DNPM UNDP DNPM UNDP DNPM UNDP
imple- menting Partners 2007 2007 2005 2007 2008 2006 2009 2008 End Date Start Date Completed 1 Jan 2004 Dec 31 Completed 1 Jan 2004 Dec 31 Completed 1 Jan 2004 Dec 31 Completed 1 Jan 2004 Dec 31 Completed 1 Jan 2007 Dec 31 Completed 1 Jan 2004 Dec 31 Ongoing 1 Jan 2008 Ongoing DEC UNDP Completed 1 Jan 2008 Dec 31 Completed 1 Jan 2008 Dec 31 Project Status (ongoing/ complete) Democratic Governance Democratic Governance Democratic Governance Democratic Governance Poverty Reduction Poverty Reduction Environment and Energy Environment and Energy Environment and Energy Practice Area (if different from cPAP) ABG – Autonomous Bougainville Government; BCPR – UNDP Bureau for Crisis Prevention and Recovery; CPRTTF – UNDP Crisis Prevention and Recovery Thematic Trust Fund; DEC – Government of Papua New Provincial Capacity Building Project Bougainville Planning and Community Support Urban Governance Support Project Democratic Governance Rapid Advisory Services MDG Coordination and Implementation MDGs and country Programme 2004–2007 Poverty Reduction Through Good Governance Support to MDGs in Papua New Guinea MDGs and Department of Environment and Conservation Capacity Strengthening Community-Based Ecotourism Community-Based Coastal and Marine Conservation Project Title Legend: Guinea, Department of Environment and Conservation; DGTTF – UNDP Democratic Governance Thematic Trust Fund; DNPM – Government of Papua New Guinea Department of National Planning and Monitoring; DoF – Government of Papua New Guinea Department of Finance; GFATM – Global Fund to Fight AIDS, Tuberculosis and Malaria; NACS –National AIDS Council Secretariat; NDC – National Disaster Centre; NZAID – New Zealand Aid Programme; OCCD – Government of Papua New Guinea Office for Climate Change and Development; OHCHR – United Nations Office of the High Commissioner for Human Rights; OLC – Government of Papua New Guinea Office of the Legislative Counsel; TI – Transparency International.
A NNEX 7. UNDP PROJECT PORTFOLIO, 2003-2012 91 Moresby Moresby Moresby Moresby Moresby Moresby Moresby Moresby Moresby Moresby Project Location 33 Port 86 Port 44 Port 302 Port 212 Port 210 Port 209 Port 247 Port 156 Port 1,549 Port Total Expenditure (US$ thousands) 96 120 551 250 389 106 510 237 156 1,936 Approved budget (US$ thousands) UNDP CPRTTF UNDP UNDP UNDEF DGTTF UNDP, AusAID Sources of Funding DJAG UNDP PM’s Dept. OC DGTTF
Office of Urban. TI Papua New Guinea DNPM UNDP TI Papua New Guinea Parlia- mentary Services imple- menting Partners 2008 2008 2005 2005 2005 2008 2009 2008 2007 2007 End Date Start Date Completed 1 Jan 2007 Dec 31 Completed 1 Jan 2006 Dec 31 Completed 1 Jan 2005 Dec 31 Completed 1 Jan 2004 Dec 31 Completed 1 Jan 2004 Dec 31 Completed 1 Jan 2007 Dec 31 Completed 1 Jan 2007 Dec 31 Completed 1 Jan 2004 Dec 31 Completed 1 Jan 2006 Dec 31 Completed 1 Jan 2005 Dec 31 Project Status (ongoing/ complete) Democratic Governance Crisis Prevention and Recovery Governance Crisis Prevention and Recovery Crisis Prevention and Recovery Democratic Governance Democratic Governance Democratic Governance Democratic Governance Democratic Governance Practice Area (if different from cPAP) ABG – Autonomous Bougainville Government; BCPR – UNDP Bureau for Crisis Prevention and Recovery; CPRTTF – UNDP Crisis Prevention and Recovery Thematic Trust Fund; DEC – Government of Papua New Strengthening Human Rights in Papua New Guinea Nation Building Support Programme for Papua New Guinea Human Rights Advocacy and Monitoring Democratic Violence Reduction and Peace Consolidation in Papua New Guinea Human Rights, Peace and Security Safer City Urban Governance Support Good Governance and Anti-Corruption Education Aid Coordination Management Voter Education and Democratic Governance Awareness Parliamentary Support Project Project Title Legend: Guinea, Department of Environment and Conservation; DGTTF – UNDP Democratic Governance Thematic Trust Fund; DNPM – Government of Papua New Guinea Department of National Planning and Monitoring; DoF – Government of Papua New Guinea Department of Finance; GFATM – Global Fund to Fight AIDS, Tuberculosis and Malaria; NACS –National AIDS Council Secretariat; NDC – National Disaster Centre; NZAID – New Zealand Aid Programme; OCCD – Government of Papua New Guinea Office for Climate Change and Development; OHCHR – United Nations Office of the High Commissioner for Human Rights; OLC – Government of Papua New Guinea Office of the Legislative Counsel; TI – Transparency International.
92 A NNEX 7. UNDP PROJECT PORTFOLIO, 2003-2012 Moresby Moresby Moresby Moresby Moresby Moresby Moresby Moresby Moresby Project Location 3 Port 1 Port 21 Port 182 Port 207 Port 164 Port 186 Port 362 Port 563 Port 205 Milne Bay 3,729 Milne Bay Total Expenditure (US$ thousands) 4 72 46 250 281 695 484 583 633 236 3,869 Approved budget (US$ thousands) UNDP Sources of Funding DCD UNDP TPA UNDP DEC UNDP DEC GEF DEC GEF Govern- ment DEC UNDP CI UNDP, GEF imple- menting Partners 2007 2007 2007 2008 2006 2006 2007 2006 End Date Start Date Completed 1 Jan 2007 Dec 31 Completed 1 Jan 2007 Dec 31 Completed 1 Jan 2006 Dec 31 Completed 1 Jan 2006 Dec 31 Ongoing 1 Jan 2006 Ongoing DEC GEF Ongoing 1 Jan 2004 Ongoing DEC GEF Ongoing 1 Jan 2004 Ongoing DEC GEF Completed 1 Jan 2004 Dec 31 Completed 1 Jan 2004 Dec 31 Completed 1 Jan 2006 Dec 31 Completed 1 Jan 2004 Dec 31 Project Status (ongoing/ complete) and Energy Environment and Energy Environment and Energy Environment and Energy and Energy Environment and Energy Environment and Energy Environment and Energy Environment and Energy and Energy Practice Area (if different from cPAP) ABG – Autonomous Bougainville Government; BCPR – UNDP Bureau for Crisis Prevention and Recovery; CPRTTF – UNDP Crisis Prevention and Recovery Thematic Trust Fund; DEC – Government of Papua New Mainstreaming Gender Gender Equality and Leadership for Results Gender Community-Based Ecotourism Development Environment Department for Environment and Conservation Capacity Strengthening Project Third National Report to CRIC5 Papua New Guinea SLM National Capacity Self-Assessment (GEF) Environment Papua New Guinea Second National Communication National Capacity Self-Assessment Remote Sensing Land Use Initiative Milne Bay Project – Supplementary conservation of Environment and Energy Milne Bay Coastal and Marine Conservation Environment Project Title Legend: Guinea, Department of Environment and Conservation; DGTTF – UNDP Democratic Governance Thematic Trust Fund; DNPM – Government of Papua New Guinea Department of National Planning and Monitoring; DoF – Government of Papua New Guinea Department of Finance; GFATM – Global Fund to Fight AIDS, Tuberculosis and Malaria; NACS –National AIDS Council Secretariat; NDC – National Disaster Centre; NZAID – New Zealand Aid Programme; OCCD – Government of Papua New Guinea Office for Climate Change and Development; OHCHR – United Nations Office of the High Commissioner for Human Rights; OLC – Government of Papua New Guinea Office of the Legislative Counsel; TI – Transparency International.
A NNEX 7. UNDP PROJECT PORTFOLIO, 2003-2012 93 Moresby Moresby Bougainville Project Location 682 Portt 494 Port 2,042 2,042 Total Expenditure (US$ thousands) 955 1,279 2,620 Approved budget (US$ thousands) UNDP Sources of Funding NACS UNDP NACS UNDP
imple- menting Partners 2008 2006 2006 End Date Start Date Completed 1 Jan 2004 Dec 31 Project Status (ongoing/ complete) HIV and AIDS Completed 1 Jan 2005 Dec 31 HIV and AIDS Completed 1 Jan 2004 Dec 31 Prevention and Recovery Practice Area (if different from cPAP) ABG – Autonomous Bougainville Government; BCPR – UNDP Bureau for Crisis Prevention and Recovery; CPRTTF – UNDP Crisis Prevention and Recovery Thematic Trust Fund; DEC – Government of Papua New Monitoring and Evaluation Enhancement Support Programme Multi-Sectoral Response to HiV and AiDS Support to National HIV and AIDS Programme Promotion of Economic and Employment Opportunities Bougainville Rehabilitation Programme Crisis Project Title Source: UNDP Papua New Guinea, February 2011 Legend: Guinea, Department of Environment and Conservation; DGTTF – UNDP Democratic Governance Thematic Trust Fund; DNPM – Government of Papua New Guinea Department of National Planning and Monitoring; DoF – Government of Papua New Guinea Department of Finance; GFATM – Global Fund to Fight AIDS, Tuberculosis and Malaria; NACS –National AIDS Council Secretariat; NDC – National Disaster Centre; NZAID – New Zealand Aid Programme; OCCD – Government of Papua New Guinea Office for Climate Change and Development; OHCHR – United Nations Office of the High Commissioner for Human Rights; OLC – Government of Papua New Guinea Office of the Legislative Counsel; TI – Transparency International.
94 A NNEX 7. UNDP PROJECT PORTFOLIO, 2003-2012
ASSESSMENT OF DEVELOPMENT RESULTS
ASSESSMENT OF DEVELOPMENT RESULTS Evaluation of undp ConTRIBuTIon PAPUA NEW GUINEA PAPUA effectiveness
HUMAN DEVELOPMENT COORDINATI NEW efficiency sust
GUINEA COORDINATION AND PARTNERSHIP NATIONAL OWNERSHIP relevance MANAGING FOR sustainability MANAGING FOR RESULTS responsivene AN DEVELOPMENT responsiveness NATIONAL OWN ISBN #: 978-92-1-126323-7 NATIONAL OWNERSHIP effectiveness COORDINATI e-ISBN: 978-92-1-054999-8 United Nations Development Programme efficiency COORDINATION AND PARTNERSHIP sust Evaluation Office 220 East 42nd Street New York, NY 10017, USA NATIONAL OWNERSHIP relevance MANAGING FOR Tel. (646) 781 4200, Fax (646) 781 4213 Internet: www.undp.org/evaluation sustainability MANAGING FOR RESULTS responsivene HUMAN DEVELOPMENT effectiveness COORDINATI