Background
As a middle-income country with a population of around 230 million, Indonesia faces a distinctive set of challenges relating to aid, and more broadly, to development effectiveness. The Government of Indonesia’s relationship with international agencies, such as UNDP, is changing – the financing mechanisms at its disposal are taking new forms and its development cooperation with other low and middle income countries is being further articulated. However, the main constraint facing Indonesia in addressing the challenges and achieving its planned development outcomes is not merely the lack of financial resources but rather the utilisation of the resources. It requires strengthening capacities and using stronger government systems. Development partners like UNDP must align the programming cycles with those of the government, and provide all of their development assistance based on country demands.
Furthermore, the mid-term review of UNDP Indonesia’s Country Programme 2006-2010 noted that more needs to be done to maximize impacts, especially in areas where UNDP’s comparative strengths are critical to the task (for Crisis Prevention and Recovery, this means conflict prevention, crisis recovery and disaster risk reduction). UNDP needs to explore new and innovative ways of developing institutional and functional capacities, focus on the quality of its engagement in policy dialogue and its capacity to produce evidence-based analysis on development issues and their impacts. The recent Assessment of Development Results (ADR) of UNDP’s Country Programme 2001-2008 noted that better targeting of women and the poor is required, particularly in CPR programmes.
It also noted that more emphasis needs to be placed on developing and maintaining strategic partnerships with sub-national governments, the private sector and civil society in order to enhance the effectiveness and efficiency of its programmes – and this is reinforced through ADR findings that possibilities for synergies with other projects are not effectively utilised. Finally, the MTR noted that UNDP programmes need to be assessed against how the country’s development situation has changed, and the extent to which interventions adequately respond to Indonesia’s evolving development challenges.
Based on the strategic approaches and findings for the country office defined above, this evaluation will address four key evaluation needs relating to the CPR Programme in Indonesia, namely the relevance, effectiveness, sustainability and impact of the CPR programme 2006-2010, in line with the strategic approach, with a special focus on the capacity building, partnerships and gender mainstreaming aspects of the programme.
Context
- Recovery: Responding to the urgent needs of communities and government in the aftermath of crises (disaster and conflict) in governance, housing, economic development/livelihoods, human rights and infrastructure, and cataloguing lessons learned for replication during future crises
- Conflict Prevention: Capacitating the executive, legislative and civil societies on conflict sensitive participatory planning and policy dialogue and rebuilding relationships of trust between government and communities in pilot areas
- Disaster Risk Reduction: Establishing the policy, legislative and institutional frameworks for mainstreaming DRR into development at the national level, and in seven target provinces
As the Country Programme 2006-2010 comes to an end, the CPR programme needs to know what works, why and in what context. UNDP is accountable for providing evaluative evidence that links UNDP contributions to the achievement of development results in Indonesia, and for delivering services that are based on the principles of human development. As such, the results of this evaluation aim to enhance organizational and development learning, ensure informed decision-making and support UNDP (re)positioning as it finalizes its Country Programme for 2011-2015. It will further support the capacity development of UNDP in enhancing its monitoring and evaluation system to incorporate GOI monitoring and reporting systems.
Focus of the evaluation: Whether, why and how the CPR outcomes have been achieved, and the contribution of UNDP to any change in the development situation
Scope of the evaluation: Broad – it will encompass the outcomes and the extent to which programmes, project, soft assistance, partner’s initiatives and synergies among partners contributed to its achievement
Purpose of the evaluation: identifying and recommending measures to enhance the development effectiveness, to assist decision making, to assist policy making, to re-direct future UNDP assistance, and to identify innovative approaches to sustainable human development
Crisis Prevention and Recovery in Indonesia 2006-2010
The Country Programme Document for 2006-2010 lays out the key challenges to be addressed over life of the five year period. UNDP has designed its CPR programme, led by and in partnership with the Government, to respond to these challenges, and the excerpts from the CPD below form the baseline upon which the CPR programme will be evaluated.
Reducing vulnerability to crisis. As demonstrated in several provinces in Indonesia, conflicts and natural disasters can reverse the precious development gains achieved over a long period of time and drastically affect the most vulnerable, including women. UNDP will promote a change from a culture of response to a culture of prevention. This programme component is directly linked to the first agenda of the National Medium Term Development Plan “To Create Indonesia That Is Secure and Peaceful”.
Conflict Prevention. Future directions in conflict prevention programming are guided by results of the PDA process and lessons learnt from NMMRP. The Peace Through Development programme (PTD) is a new programme designed to (i) assist local governance institutions to apply more conflict-sensitive approaches in participatory and consultative processes; (ii) pilot development activities that seek to build social cohesion and mutual trust through strengthening crosscutting social and economic relations; and (iii) provide a combination of technical assistance and grant funds at district and provincial levels. UNDP focus on building local capacities and supporting policy development—specifically in the context of decentralization—aims to support effective mainstreaming of conflict prevention and peace building approaches within processes of local governance institutions, thus strengthening the implementation of SPADA (World Bank) and the PTD Programme. The PDA process also guided the framework for the Women’s Leadership in Peace-Building project aimed at empowering women’s leadership role in peace-building processes while strengthening policy frameworks, gender awareness and political will to support women’s participation.
Disaster Mitigation and Reduction. UNDP has also provided preparatory assistance and technical support for strengthening national capacity in disaster management, which includes the support to the Government of Indonesia in developing a ‘road map’ of initiatives on disaster management. Through the Safer Communities through Disaster Risk Reduction programme, UNDP will assist the Government of Indonesia in moving from a response and relief culture to a comprehensive disaster risk reduction culture that is decentralized, sustainable, and integrated into the core functions of government at all levels and in all stakeholder and partner organizations. The four-year programme will focus on
- institutional strengthening to mainstream disaster risk reduction and management as part of overall development planning;
- supporting community based risk management of disasters; and
- strengthening emergency preparedness and response systems at national level and in selected provinces.
Rehabilitation and Reconstruction of Aceh and North Sumatra. UNDP responded rapidly to the earthquake and tsunami disaster in Aceh and Nias, and has sought to bridge early relief efforts with recovery and longer-term reconstruction assistance. The reconstruction process has become more complex, due to the positive development in the peace process and the need to implement the MoU in a timely manner. UNDP’s early response, which will continue into the new Country Programme cycle, has been through the Emergency Response and Transitional Recovery (ERTR) framework. For the longer-term, building upon the lessons learned through ERTR, UNDP will promote sustainable recovery from the disasters through supporting the institutions tasked with leading the reconstruction process articulated in the
Government’s Master Plan, notably the new Rehabilitation and Reconstruction Agency (BRR) together with the central and local planning agencies.Additional assistance will be provided to support the implementation of the MoU. This component also supports the overall objectives of the first agenda of the Medium Term Development Plan, “To Create Indonesia That Is Secure and Peaceful”.
Recovery of Livelihoods and Economic Infrastructure in Target Areas. UNDP is supporting the recovery of livelihoods, housing, provision of capacity development support for governance institution and infrastructure development through Reconstruction and Rehabilitation in Aceh and North Sumatra. The transition from immediate relief to longer-term recovery is reflected in initiatives to:
- support the recovery of sustainable livelihoods through vocational skills training;
- open access to credit by supporting specific sectors such as fisheries and agriculture; and
- revitalize the local economy through rehabilitation of economic infrastructure such as markets and fishing ports.
UNDP will also work to build capacity in Aceh and North Sumatra to support longer term economic development throughout the CPAP period building on the results of the transitional recovery programming.
Housing Settlements and Associated Infrastructure. Recovery of housing, settlements and associated infrastructure involves collaboration and coordination with a variety of stakeholders. This will ensure community-driven, participatory planning and implementation processes that support the establishment of restitution mechanisms and allow for effective adjudication and resolution of land disputes.
Capacity development of Governance Institutions and Civil Society. UNDP commitment to provide technical and operational support to the government as well as to civil society represents a transition from infrastructure and civil service support to a comprehensive programme to strengthen government and civil society capacity for
- policy development;
- participatory planning, coordination and monitoring of aid; and
- information and communications support.
UNDP capacity development support to BRR (Reconstruction and Rehabilitation Agency) and both central and provincial planning boards aim to improve the effectiveness of the implementation the Master Plan for Reconstruction in tsunami-affected areas as well as to enhance coordination among various stakeholders, including government, CSOs, donors, and private sector. UNDP will also support longer term governance programming in Aceh and Nias throughout the CPAP period building on the results of the transitional recovery programming and the National and Regional Mid-term Development Plans.
Aceh Peace Process Follow-up Support. In addition to reconstruction and rehabilitation initiatives in tsunami-affected areas of Aceh and Nias, UNDP will also continue to support the implementation of the Memorandum of Understanding (MoU) between GoI and GAM (Gerakan Aceh Merdeka). The support will contribute to peaceful resolution of the conflict in Aceh and longer term development. Under the components of enhancing access to justice and justice sector reform, UNDP will provide assistance to improve access to justice and to strengthen the justice system to become more responsive to the vulnerable, conflict-affected, and tsunami-affected people of Aceh. The focus will be on improving institutional capacity of the justice system, increasing community level legal awareness, and enhancing the capacities of civil society to perform an oversight function of the justice system and to act as a force for accountability.
The Partnership Strategy. The partnership strategy aimed to take into account and utilize the following existing international agreements – related to CPR - as well as national and international strategic frameworks and practices:
- Paris Declaration on the Aid Effectiveness;
- Rome Declaration on Harmonization;
- Government’s Medium Term Development Plan, the Local Poverty Reduction Strategy Paper (PRSP), the Master Plan for Reconstruction in Aceh and Nias, MoU between the Government of Indonesia and GAM;
- United Nations Development Assistance Framework 2006-2010, which identifies a number of joint programming opportunities among the UN agencies;
- South-south cooperation;
- previous and existing partnerships between local authorities and civil society organizations;
- common funding mechanisms such as Multi-Donor Trust Fund for Aceh and Nias; and
- public-private partnership in line with the Global Compact.
The Outcomes to be evaluated
Country Programme Outcome
4. Government and civil society able to design and implement crisis sensitive development responses reducing vulnerability of communities in target areas.
Aggregate decrease in number of conflict and disaster affected persons in 2001-2005 (UNSFIR social violence database)
Targets
- Conflict Management Legislation academic draft;
- 2 districts
- 60 women leaders received conflict resolution training;
- 10% increase in women’s participation in community development processes;
- 25 local government officials trained on conflict sensitive planning across targeted districts
2007:
- Draft Conflict Management legislation socialized;
- 2 provinces and 4 districts
- 120 women;
- 20% increase;
- 100 local government officials
2008:
- Draft Conflict Management Legislation on Conflict Management endorsed;
- 200 women;
- 30% increase;
- 150 local government officials
2009:
- Conflict Management Bill deliberated by Parliament
- 250 women
- 35% increase
- 200 local government officials
2010:
- Conflict Management being socialized and implemented
- 300 women
- 40% increase
- 250 local government officials
4.2 Capacities of Government and communities for disaster preparedness and risk reduction have been developed
Targets
- DM Bill deliberated by Parliament; National Master Plan for Disaster Management endorsed; and National Platform for Disaster Risk Reduction endorsed
- SWOT Analysis for Coordinating Agency completed; Programme Coordination and Implementation Support Unit (PCISU) established; DRR Partnership Strategy and mechanisms drafted; UN TWG carried out 1 joint project, 6 coordination meetings and 1 retreat workshop
- 1,000 clients;
- 2 EW and 2 HS.
- DM Government regulations drafted in 4 provinces; National Master Plan for DM implemented in 2 national agencies; Assessment on conformity to National Platform
- DRR Partnership Strategy endorsed and implemented, DMIS revitalized at national level; UN TWG carried out 2 joint projects, 12 coordination meetings and 2 retreat workshops;
- 2,000;
- 4 EW and 4 HS;
- 3 districts;
- 2 cities;
- 5 districts and cities.
- Regional DM regulations drafted in 8 provinces; National Master Plan for Disaster Management implemented by 4 national agencies
- DMIS revitalized involving 6 provinces; UN TWG carried out 3 joint projects, 18 coordination meetings and 3 retreat workshops;
- 3,000;
- 6 EW and 6 HS projects;
- 5 districts;
- 4 cities;
- 9 districts and cities.
- Regional DM regulations drafted in 12 provinces; National Master Plan for Disaster Management implemented by 6 national agencies;
- DMIS revitalized involving 9 provinces; UN TWG carried out 4 joint projects, 24 coordination meetings and 4 retreat workshops;
- 4,000;
- 9 EW and 9 HS projects;
- 7 districts;
- 6 cities;
- 13 districts and cities.
- Regional DM regulations drafted in 16 provinces; National Master Plan for Disaster Management implemented by 8 national agencies;
- DMIS revitalized involving 12 provinces; UN TWG carried out 5 joint projects, 30 coordination meetings and 5 retreat workshops;
- 5,000;
- 12 EW and 12 HS projects;
- 9 districts;
- 8 cities;
- 17 districts and cities.
Target
Targets
- 30,000 families benefiting from livelihood support;
- Minor rehabilitation work on 4 ports completed, and designs for 3 major port rehabilitations completed;
- 300,000m³ tsunami waste cleared;
- new waste recovery facilities in 3 districts;
- 100,000 worker days of short-term employment created;
- 15 engineers and 20 supervisors from contractors trained in local resource-based techniques of which 30% are women ;
- new economic development programme for NAD and Nias is developed.
2007:
- 200,000 worker days of short-term employment created;
- new economic development programme launched and implementation commenced, four year targets defined.
- 300,000 worker days of short-term employment created;
- economic development programme year 2 targets completed.
- economic development programme year 3 targets completed
- economic development programme year 4 targets completed
Country Programme Outcome
Target
- 3000 permanent housing opportunities;
- 22 communities benefiting from infrastructure rehabilitation;
Targets
- 40,000 families with improved access to information on government reconstruction programming;
- 40 advisors provided to BRR for reconstruction process;
- 40 advisors provided to local governments to provide quality assurance to government reconstruction;
- human resources management, legal services, IT, outreach and information services received by BRR
- New programme of support for local governance in NAD and Nias is developed based on the lessons learned and analysis from ERTR governance component in line with the laws on Governance in NAD and the Mid Term Development Plan.
- Governance programme in NAD and Nias implemented in partnership with multi-stakeholder in line with the laws on Governance in NAD and the Mid Term Development Plan
Targets
- 1,500 families benefiting from livelihood support and specialized vocational training;
- 2 district level governments supported to deliver the GoI reintegration strategy;
- contributed to reintegration of 1,000 former political prisoners and local community initiated
- Finalization of access to justice assessment and publication and dissemination reports with recommendations for improving access to justice for communities in target areas; new access to justice programme designed, approved and implemented;
- 3,000 families benefiting from livelihood support and specialized vocational training;
- 4 district level governments supported to deliver the GoI reintegration strategy;
- contributions to livelihoods assistance to 1,000 former political prisoners and combatants completed
- 10% increase in number of CSOs participating in the access to justice programme; 10% increase in number of citizens who say they have access to the justice system.
- 5 district level governments supported to deliver the GoI reintegration strategy;
- 20% increase in number of CSOs participating in the access to justice programme; 20% increase in number of citizens who say they have access to the justice system.
- 7 district level governments supported to deliver the GoI reintegration strategy;
- 25% increase in number of CSOs participating in the access to justice programme; 25% increase in number of citizens who say they have access to the justice system;
- subsequent access to justice intervention developed and agreed
- 9 district level governments supported to deliver the GoI reintegration strategy;
- 30% increase in number of CSOs participating in the access to justice programme; 30% increase in number of citizens who say they have access to the justice system;
- subsequent access to justice intervention implementation commenced.
Duties and Responsibilities
Relevance
- to what extent the programmes and its intended outputs are consistent with national and local policies and priorities and the needs of intended beneficiaries?
- to what extent the programme is responsive to UNDP’s strategic priorities on CPR practices?
- has the initial plan (as stipulated in the CPD and CPAP) meets the reality and actual needs of beneficiaries
- has the programme been able to respond to the changing and emerging priorities and needs in responsive manner? Is the CPR programme still relevant to the evolving development context in Indonesia?
- have projects been implemented appropriately according to local contexts (culture, needs, profile)?
- have annual milestones (as stated in CPAP/CPD) been achieved? If not, why not?
- how achievement of the projects outputs have contributed to the overall CPRU outcomes?
- any evidence of changes or progress toward changes (behavioural or managerial) in CPR practice that can be attributed to the programme?
- has the programme addressed gender gaps appropriately in the implementation? is there any evidence?
- the effectiveness of the CPR approach to capacity building;
- the effectiveness, and depth, of the CPR programme’s partnership strategy
- the comparative strengths and weaknesses of the CPR programme and projects, also in relation to other programs/projects.
- how will initiatives promoted by CPRU be continued after the projet’s completed?
- are there political commitments to sustain the promoted initiatives? If so, have they been stipulated in the policy and regulatory frameworks?
- has suitable organizational arrangement been made to sustain the initiatives?
- are there financial and economical mechanisms in place to ensure on-going flows of benefits once the assistance ends
- has knowledge generated from the programme been adequately managed as lessons for future programming and replications?
- are there any early indications of the programme impacts in targeted communities?
- how the programme’s works in development programming affect the communities in general? Are they observable at the time of evaluation? If not why?
- is there any observable negative impacts? If so what are the reasons and what should’ve been done to minimize them?
- extent to which UNDP’s support has enhanced national ownership. Has the UNDP intervention in the GOI CPR sector been relevant to the development priorities of the GOI to ensure accountable and sustainable human development
- Factors, including constraints and challenges, contributing to the achievement, and impact, of the CPR outcomes;
- Effectiveness of programme and project management as well as coordination, monitoring and policy feedback structures;
- Appropriateness and relevance of UNDP contribution, including project outputs, towards the objectives and outcomes, also taking into consideration drivers of development effectiveness;
- Extent to which UNDP’s support has enhanced national ownership. Has the UNDP intervention in the GOI CPR sector been relevant to the development priorities of the GOI to ensure accountable and sustainable human development?
- UNDP contribution to the development of national capacities and the promotion of South-South cooperation;
- The level of support provided by UNDP and development partners to forge partnerships for results through its interventions, including a review of UNDP’s partnership strategy and identification of possible areas for further collaboration, particularly on the governance of the CPR outcomes, such as the formulation of an Outcome Board.
- UNDP’s efforts and mechanisms to coordinate donor support for the implementation of national priority policies and reforms;
- UNDP’s contribution in nurturing an enabling policy environment through awareness raising, advocacy, policy advice and project interventions;
- Comparative strengths and weaknesses of the UNDP programme and projects, also in relation to other programs/projects in the governance sector.
- Lessons learned and guidance on how to better contribute to the GOI CPR priorities in 2011-2015.
Competencies
- Obtain and analyse detailed information regarding progress in CPR with particular emphasis on developments which can be directly or indirectly attributable to UNDP’s assistance.
- Consult project teams in Jakarta and target provinces, National Development Planning Agency, Local Development Planning Agencies, Ministry of Home Affairs, National Disaster Management Agency, relevant local agencies, civil society (national and local), and partner UN agencies such as UN-OCHA, ISDR, etc
- Consult with key development partners/donors, particularly the World Bank, European Commission, Government of the Netherlands, Government of New Zealand, Government of Canada, Government of Sweden, UK Department for International Development
- Interview with key project-level stakeholders (communities, local government and civil society).
- The Capacity Development Specialist will support the team leader substantively in delivering the outputs of the evaluation mission. S/he will have the overall responsibility for drafting Part II of the report, and will also provide substantive inputs to other sections of the report, as required.
Required Skills and Experience
Education:
- Master’s degree in international relations, international development or similar field with a minimum of 10 years of government capacity building/development experience, including relevant experience in Southeast Asia;
Experience:
- Previous involvement in externally-funded development projects (particularly projects that are both challenging and sensitive), including the planning and implementation of such projects;
- Substantial expertise in the post-crisis environments is a distinct advantage;
- Minimum of five years of consulting experience in programme evaluation and reporting;
- Fluency in spoken and written English.
- Working knowledge of Bahasa Indonesia is an advantage
Language Requirements:
- Fluency in spoken and written English. Working knowledge of Bahasa Indonesia is an advantage;
Other Selection Criteria
- Understanding of cultural and socio-economic context and development challenges in Indonesia.
- Familiarity with UNDP programmes and procedures, and capacity building/development approaches, as well as experience with evaluating UNDP projects and initiatives.