Background

Background and Context

In 2001, the Bougainville Peace Agreement (BPA) was signed between the National Government of Papua New Guinea (GoPNG) and leaders representing the people of Bougainville. The BPA marked the end of a decade-long civil conflict in which up to 20,000 people died and many more were left without family, access to basic services and infrastructure, traumatized and scarred for life. With an estimated population of over 300,000 people, speaking 28 languages, in 33 constituencies stretching from the atolls and islands to the mountains that dominate the Centre of the mainland, Bougainville is an incredibly diverse region.  Bougainvilleans voted overwhelmingly for independence in the 2019 referendum and the two governments are now consulting on the ratification of the referendum outcomes and the next steps in Bougainville’s peace process.

The UN Peacebuilding Fund support in Papua New Guinea

The UN Peacebuilding Fund (UN PBF) Programme in Papua New Guinea started in 2014, following declaration of eligibility of PNG for PBF support in 2013 by the UN Secretary-General. The Peacebuilding Priority Plan, covering period of 2015-2018, supported implementation of the Bougainville Peace Agreement (BPA), reconciliation and weapons disposal, as well as preparations for Bougainville Referendum.   The 11th of December 2019 marked a historical moment for PNG - Bougainville relations, and implementation of the Bougainville Peace Agreement (BPA), with the announcement of the Bougainville Referendum result of 97.7 per cent of voters choosing Independence from PNG. Following the referendum vote, the PBF renewed its peacebuilding support, hand in hand with that of the Department of Political Affairs, focusing on aspects of political dialogue in post-referendum process, engaging outlier factions in peace process and awareness-raising activities on BPA and post-referendum processes.

The PBF Sustaining Peace in Bougainville Project

The UN PBF funded Sustaining Peace in Bougainville project (https://mptf.undp.org/factsheet/project/00111260) commenced in June 2018 with an initial budget of $4 million, and has focused on supporting the peaceful and inclusive completion of the 2019 Bougainville Referendum. The is a joint project implemented by UNDP, UNFPA and UN Women with their governmental and non-governmental partners.

Following the successful completion of the referendum in Bougainville, and in order to accompany and support the inclusivity and legitimacy of the post referendum negotiations and processes in an environment where these complex risks had the potential to pose challenges to sustaining peace in Bougainville, the Project received a cost extension of $1 million until January 2022.  In January 2022, the project was given a final no cost extension till end of July 2022 to enable it to complete activities delayed due to COVID-19 outbreak and effects.

The second phase was designed to assist the two governments and the people of Bougainville and Papua New Guinea to continue to sustain peace and address potential tensions points during the post-referendum period. The cost extension closely complements and collaborates with the UNDP’s ‘Post Referendum Support Project’.

Where the Post Referendum Support Project primarily targets its support to the joint consultations and the ratification process through the operationalisation of the joint secretariat and technical support to the working groups, the PBF-funded project complements by ensuring marginal groups are empowered to participate in the consultations and in the decisions, and that those remaining groups outside of the peace agreement are supported to join, in an environment where Human Rights are upheld. Given the complementarities of the two projects, UNDP has a joint Annual Workplan for two projects, specifying the activities funded through each project.

The PBF Project has the following three outcomes:

Outcome 1:  Enhanced political dialogue between the two Governments and the two Parliaments, ensuring decisions around BPA implementation, the referendum and post referendum are progressed jointly

Under this outcome, the Project extended support to Post Referendum Joint Ministerial Consultations Preparation Team, as defined by the Joint Supervisory Body (JSB) meeting of March 2020. Logistical and administrative support was provided to ensure timely conduct of political dialogue consultation meetings and implementation of joint agreement on post- referendum processes, and resolutions by the two governments. This outcome is implemented in close partnership a the range of institutions, departments and other key actors working to advance the peace process in Bougainville. These include, among others, the Offices of both Chief Secretaries, NCOBA (National Coordination Office for Bougainville Affairs), DoIMI (Department of Independence Mission Implementation) as well as both parliaments.

Outcome 2:  Increased dialogue and awareness on the BPA, referendum, and post referendum issues, ensuring that both the population in and outside of Bougainville is informed and feels included in the process

Under this Outcome, the project has been supporting granular awareness activities on the post referendum process and progress, and Peace Agreement by engaging key stakeholder groups: Women, Youth, Churches, Veterans and Communities to empower them to participate in the process. To achieve this, community facilitated dialogues have been conducted based on agreed joint key messages throughout Bougainville. The project also supports a national media-based awareness campaign to keep all Papua New Guineans updated on progress.

Outcome 3: Strengthened unification of outlier communities into the peace architecture and post-referendum dialogue

Under this Outcome, the project has been supporting initiatives and activities that support the two remaining outlier groups in Bougainville (i.e. those that did not formally sign up to the Bougainville Peace Agreement) to engage with the peace architecture. As part of this Outcome, the project has also supported reporting on and prevention of Human Rights abuses, and the identification of economic opportunities in the outlier factions’ geographic areas, as well as promoting  community buy-in for peace.

The Post Referendum Process Support Project

The Post-Referendum Process Support Project (The Project) was designed to support the ongoing Bougainville peacebuilding process. The Project frames the support that the UN through UNDP can provide for the immediate post-referendum processes, including provision of technical and logistical support to the Secretariat, capacity building, support on the ratification process, continued awareness to the people of Bougainville and PNG on the progress and ensuring inclusive opportunities that supports meaningful participation. The latter being a key part of ensuring that the agreed outcome of the consultations is accepted by the people of Bougainville and of PNG alike.

The project builds on a continuation of support the UN, and in particular UNDP, has extended to the two governments since the signing of the BPA. In particular developing further the interventions initiated under the Sustaining Peace in Bougainville Project, that supported the Post Referendum Planning Taskforce in its preparations for the post referendum period, and the Bougainville Referendum Support Project, which supported the BRC to achieve a credible, inclusive and transparent referendum. The project provided independent, neutral support to the two governments to assist in the progression of the BPA with a particular focus on the post referendum process. In addition, the project also supported the two governments to design and implement solutions that had maximum impact on progressing the post referendum process in a peaceful, inclusive, and transparent manner in collaboration with other actors.

Building upon the result of the Referendum and the work of the Taskforce, the project continued to support inter-governmental dialogue between the GoPNG and the ABG, via the post-referendum process. Resources are used to ensure that people across Bougainville and PNG are made aware of the progress through use of participatory processes such as storytelling and traditional means of communication, community-level dialogue and additional media-based awareness tools. The project has the following outcome and outputs:

Outcome 1: By June 2022, the Bougainville Post-Referendum Process has successfully progressed with joint consultation developments understood by the people in Bougainville and the rest of Papua New Guinea.

Output 1 Key institutional and operational capacities at national and sub-national level are strengthened to support a successful post referendum process.

This output is implemented in close partnership with a range of institutions, departments and other key actors working to advance the peace process in Bougainville. This include, among others, the Post- Referendum Secretariat, Department of Prime Minister, Offices of both Chief Secretaries, the National Coordination Office for Bougainville Affairs, Department of Post-Referendum Consultation and Dialogue, as well as both parliaments, in close coordination with other development partners supporting the two governments.

Output 2: Increased awareness on the post referendum process and progress ensuring that both the population in and outside of Bougainville is informed

With the referendum result known, ensuring that the population is adequately prepared to support the post referendum consultation process and accept the joint outcome, an informed understanding of progress is vital.

Output 3: Increased opportunities for an inclusive, peaceful process for all stakeholders to participate in the Post Referendum Process and contribute to a future Bougainville

With the post-referendum process commencing, ensuring that the key stakeholder groups are adequately involved and included to discuss and input into the subjects being consulted upon and future arrangements to move forward, in a united manner with a shared concept of a future Bougainville.

Duties and Responsibilities

Evaluation Objective

The evaluation will assess the achievement of the Sustaining Peace in Bougainville and Post-referendum Process Support Project results against what was expected to be achieved as outlined in the two projects results framework, both prior to and following the referendum, as two distinct phases. Moreover, the evaluation will be used explicitly to contribute to the design of the new phase of UN support to the post-referendum Bougainville peace process so should include specific programming recommendations on the basis of lessons from the current support to directly inform a potential new program of support.

Evaluation Approach and Methodology

The evaluation team, comprised of Lead Consultant (International recruitment) and Local Consultant (local recruitment), is expected to follow a participatory consultative approach. This will be achieved through close engagement with the UN Head of Office in Bougainville (Political Liaison Officer),  project team, programme team, UNDP, UNFPA and UN Women Country Offices, the Autonomous Bougainville Government (ABG) and the National Coordination of Bougainville Affairs (NCOBA) as well as other partners, stakeholders and beneficiaries as and where relevant.

Desk Review

The evaluation team will review all sources of relevant information including, but not limited to, the following:

• Papua New Guinea Peacebuilding Priority Plan (2015-2017)
• Report on Evaluation of Peacebuilding Priority Plan in PNG in 2018
• Project documents: Sustaining Peace in Bougainville Project Document for Phase 1 (2018-2020); Sustaining Peace in Bougainville Project Document for Phase 2 (2020-2022), jointly implemented by UNDP, UNFPA and UN Women;
• Perception Survey Reports 2017 and 2022
• Project document for Post-referendum Process Support Project (2020-2022), implemented by UNDP and Annual Workplans;
• Annual Project Workplans on implementation of SPB Project by UNDP, UNFPA and UN Women;
• M&E Plan and Results Framework
• Risks Logs
• Conflict Analysis for Bougainville and the Lessons Learned Report of March 2020
• Project Progress and Annual Reports including key documents from Peace And Conflict Studies Institute Australia (PACSIA) and Conciliation Resources
• Mid-year and Annual Project Progress reports, including reports from Implementing Partners (2018 - 2021)
• Joint Supervisory Body (JSB) Meeting Minutes
• Joint Press Releases and Media Statements
• Project Monitoring Mission Reports

Evaluation design

The evaluation will utilise a non-experimental design, which examines the project progress before and after the referendum, in line with the OECD DAC evaluation criteria and then also makes forward looking recommendations for UN implementation in ARoB. Beyond document review, data collection will include key informant interviews and focus group discussions (FGDs) with partners, and stakeholders (government, non-government, UN and other donors and development partners) as well as both project direct and indirect beneficiaries.

Clear ethical guidelines should be followed and implemented, obtaining consent from any individuals interviewed or included in FGDs. The evaluation should be gender and youth responsive, as outlined in the evaluation objectives, using a participatory methodology . Any limitations in the design should be clearly stated and data should be triangulated to enhance the robustness of the findings and conclusions.

Evaluation Scope

The evaluation will be conducted as the two projects are finalizing their activities and will cover the entire cycle of the two projects. It will take into consideration activities conducted across the entire region (Autonomous Region of Bougainville), evaluating the reach of the project in the process.

The Autonomous Region of Bougainville has (3) regions, (13) districts 33 constituencies and over 450 Wards. Decision on the specific locations for the evaluation will be proposed by the project RUNOs and the UN Political Liaison Officer and agreed with the evaluation team based on the methodology and proposed sample size. The evaluation will need to include representation of the three regions for this exercise, as well as a specific focus on Buka, the Autonomous Bougainville Government (ABG) and respective ABG departments.

In accordance with the evaluation objectives, and guided by the OECD DAC Evaluation Criteria in Settings of Conflict and Fragility[1] and United Nations Evaluations Group norms and principles, the following key areas and questions will be examined in the evaluation as indicated below. The evaluation should not be limited to these questions and the report does not need to answer them individually, but should ensure that the below aspects are covered in the integrated analysis per evaluation criterion.

Relevance

• To what extent did the project align with and contribute to the major peacebuilding concerns and needs in Papua New Guinea and the Autonomous Bougainville Region?
• To what extent was the project in line with the Government of PNG’s national development priorities, ABG regional priorities, UNDP, UNFPA and UN Women current country programme outputs and outcomes, UNDAF and the SDGs, especially as they relate to sustaining peace?
• Assess whether the objectives remained relevant over the course of the project, and whether adjustments were made.
• To what extent were the lessons learnt from other projects including perspectives of men, women, and young people, taken into account during the project design and implementation?
• To what extent did the two projects address the major peacebuilding needs and concerns of the Bougainville communities, including young people and women?

Coherence

• How well did the two projects collaborate and coordinate?
• How compatible were these two projects with other interventions in the Bougainville context? For example, with other existing ABG strategies, policies or programmes.

Effectiveness:

• What were the two projects’ key achievements, as supported by evidence? How did the projects progress against their intended results and indicators of progress?
• To what extent did the project empower women, men, youth and other vulnerable groups, as intended?
• Did the project realise its theory of change?
• What were the main factors of success and challenges to the project’s achievements? What could have been done better?
• How appropriate and clear was the PBF project’s targeting strategy in terms of geographic and beneficiary targeting?
• Was the project monitoring system adequately capturing data on peacebuilding results at an appropriate outcome level?

Impact:

• What difference did the interventions make to the country and to the communities? How have they contributed to a peaceful and inclusive pre-referendum, referendum and post-referendum processes and the Bougainville Peace Agreement implementation?
• Describe any unforeseen impacts or unintended consequences (whether positive or negative).
• Identify any innovative interventions or approaches and any exceptional experiences that should be highlighted including through case-studies, stories, best practice.

Efficiency:

• Assess how program management factors and decisions, such as program team structure, partnerships, workplanning processes, delivery approach and M&E processes contributed to the project delivery and efficiency.
• Assess the quality of Internal and External Communication, including relationships within the team, partners, stakeholders, donors and beneficiaries.
• Assess to what extent were project management and implementation participatory, including of men, women, youth and any other targeted groups?
• Assess the quality of the learning processes such as self-evaluation, learning and adjustment on the basis of monitoring, coordination and exchange with other projects for learning.
• Assess whether the project can be considered as having been delivering value for money given its resources and scale of impact? To what extent were financial and human resources used effectively? Were resources (funds, male and female staff, time, expertise, etc.) allocated strategically to achieve outcomes?
• How well did the projects monitor and address risk during design and implementation?

Sustainability  

• To what extent are the major project achievements likely to be sustained after the project end?
• To what extent will targeted men, women, youth and other vulnerable people benefit from the project interventions in the long-term?
• To what extent will financial and economic resources be available to sustain the benefits achieved by the project?
• What are any evidence to suggest that the project interventions and achievements will be sustained replicated whether through the Government, NGOs, communities or other partners?
• Did the projects have an exit strategy and did they actively look for opportunities for catalytic effects, financial or otherwise?

Cross – Cutting

Human Rights

• To what extent have the two projects contributed to the protection of human rights, including through opportunities for  poor, indigenous and physically challenged, women, men, boy, girls and other disadvantaged and marginalized groups as part of project implementation?

Gender Equality

• To what extent have gender equality and the empowerment of women been addressed in the design, implementation and monitoring of the project and has the project contributed to any change in gender equality?
• Is the gender marker assigned to this project representative of reality?

Disability

• Were persons with disabilities consulted and meaningfully involved in programme planning and implementation?
• How did the project work to support people with disabilities and help to remove barriers did persons with disabilities face?

[1] https://www.oecd-ilibrary.org/docserver/9789264106802-en.pdf?expires=1570808839&id=id&accname=ocid195767&checksum=E395E7C957BEA0EADC13DACF9A702741; https://www.cdacollaborative.org/wp-content/uploads/2017/01/Reflecting-on-Peace-Practice-RPP-Basics-A-Resource-Manual.pdf

Competencies

Stakeholder Engagement:

Evaluation Deliverables

The evaluation team will be responsible for the following deliverables, which will be reviewed by the Evaluation  Reference Group consisting of UNDP, UNFPA, UN Women, Political Liaison Officer and PBSO.:

 Inception Report   

• Conduct a desk review of past reports, Results Framework, other documents including the baseline and the Mid-term Evaluation reports
• Develop a methodology for the collection of data
• Develop questionnaire against the key evaluation questions
• Develop a field evaluation schedule

Presentation of Initial Findings

• Data collection, analysis, and presentation.

Draft Evaluation Report

• Data collection and analysis
• Develop a report of the methodology and findings against the key questions
• Circulation of draft report for comments

Final Evaluation Report

• Incorporate comments and final report submitted
• The final report should not be more than 45 pages. The report must have a cover page, list of acronyms, executive summary and annexes.

The whole exercise is estimated to take 11 weeks but there is always flexibility to adjust as and when necessary.

Evaluation Management

Management

The End-of-Project Evaluation will be executed under the management of the evaluation manager or the Reference Group with on the ground support from available RUNO (UNDP, UNFPA and UN Women ), PBF focal point. Further logistical and liaison support will be given by the Port Moresby Technical team where necessary support though the duration of the evaluation. The AROB focal point Officer will provide further information on project activities and stakeholders, and will facilitate liaison with implementing partners and beneficiaries. The evaluation team leader will provide brief progress updates on a weekly basis to the evaluation Manager and will work in close liaison with the Reference Group throughout the evaluation.

Institutional Arrangement

(i)          Team Composition

A team of two independent evaluators will conduct the evaluation. One is an International who will play a team leader role with experience and exposure to evaluating PBF funded projects across Asia and the Pacific Region. The other is the team expert, who is a national. The Team Leader will be responsible for the overall assessment of the project starting with the preparation of the evaluation methodology and inception report, management of interviews and analysis of data, overall development of the draft report and the final report. The Team expert will report to the team leader and support the Team Leader in the entire assignment.

The individuals must also be specialized in research, statistical work and surveys (design, tools, data collection & analysis), preferably in the field  of  peacebuilding  and  governance,  with  operating experience in volatile areas, with good knowledge of and networks in Bougainville. The structure should have a good understanding of the sensitivities and risk management strategies concerning surveys which deal with political and peacebuilding issues.

With increase in the number of covid 19 cases affecting airline industry that has experienced domestic flight delays and cancellations, the future remains uncertain. Therefore, the Team Leader is expected to work remotely while the Team Expert is required to undertake field missions in Bougainville under the guidance and in close consultation and collaboration with the Team Leader.

(ii). Education, Experience & Competencies for the Team Leader

Education:

• Hold   a   university   degree (Masters),   preferably   in   social   sciences,  statistics, demography, political science, law, international relations, public administration or economics and a thorough knowledge of qualitative methodologies.

Experience:

• Should have at least a minimum of 10 years of experience in monitoring and evaluation in peace building and conflict related projects
• Have strong research, including survey design and conduct data collection, data analysis and report writing on issues relating to peace building and conflict

Competencies

• Good understanding of issues on peacebuilding and governance and experience in Bougainville are highly desirable.
• High level planning, organizational and time management skills, including flexibility, attention to detail and the ability to work under pressure to meet challenging deadlines;
• Excellent interpersonal skills, including ability to establish strong cooperative relationships with senior government officials, civil society and donors;
• Ability to quickly adapt to change, and to remain calm under pressure; and
• Proven cross-cultural communication and the ability to function effectively in an international, multicultural environment.

(iii). Education, Experience & Competencies for the Team Expert

Education:

• Hold   a   university   degree (Masters),   preferably   in   social   sciences,  statistics, demography, political science, law, international relations, public administration or economics and a thorough knowledge of qualitative methodologies.

Experience:

• Should have at least a minimum of 12 years of experience in monitoring and evaluation of projects relating to peace building and conflict
• Have string research background, including survey design and conduct, data analysis and report writing on issues relating to peace building and conflict.

Competencies:

• Good understanding of issues on peacebuilding and governance and experience in Bougainville are highly desirable.
• High level planning, organizational and time management skills, including flexibility, attention to detail and the ability to work under pressure to meet challenging deadlines;
• Excellent interpersonal skills, including ability to establish strong cooperative relationships with senior government officials, civil society and donors;
• Ability to quickly adapt to change, and to remain calm under pressure; and
• Proven cross-cultural communication and the ability to function effectively in an international, multicultural environment.

Deliverables, Price Proposal & Payment Schedule

Duration of work

The contract days are 55 working days which is 11 weeks for the Team Leader and 45 working days or 9 weeks for team expert. The work schedule proposes the duration of work within this timeframe immediately after the contract is signed. The work is estimated to commence no later than 01 April 2022.

The contract price is a fixed price based on the results, with the length of service being approximate. The budget submission should include all costs to allow the implementation of activities provided for in Sections C and F, such as professional fees for team members, travel expenses, attachments, multiplication of survey questionnaires, etc.

The payment schedule will be directly related to the deliverable submissions as illustrated in the table below:

Required Skills and Experience

Evaluation of Technical Proposals

Cumulative analysis

The proposals will be evaluated using the cumulative analysis method with a split 70% technical and 30% financial scoring. The proposal with the highest cumulative scoring will be awarded the contract. Applications will be evaluated technically, and points are attributed based on how well the proposal meets the requirements of the Terms of Reference using the guidelines detailed in the table below:

When using this weighted scoring method, the award of the contract may be made to the individual consultant whose offer has been evaluated and determined as:

a) Responsive/compliant/acceptable, and

b) Having received the highest score out of a pre-determined set of weighted technical and financial criteria specific to the solicitation.

* Technical Criteria weighting; 70%

* Financial Criteria weighting; 30%

Only candidates obtaining a minimum of 49 points in the Technical Evaluation would be considered for the Financial Evaluation. Interviews may be conducted as part of technical assessment for shortlisted proposals.

Documents to be included when submitting Consultancy Proposals

The following documents may be requested:

a)  Duly executed Letter of Confirmation of Interest and Availability using the template provided by UNDP.

b)  Signed P11, indicating all experience from similar projects, as well as the contact details (email and telephone number) of the Candidate and at least three (3) professional references.

c)    Brief description of why the individual considers him/herself as the most suitable for the assignment. Highlights of the relevant expertise and understanding of the TORs. Details of approach and a draft methodology proposed for the overall data collection based on the evaluation questions and work plan outline with composition of the proposed team.

1. Financial Proposal that indicates the all-inclusive fixed total contract price, supported by a breakdown of costs, as per template provided. If an Offeror is employed by an organization/company/institution, and he/she expects his/her employer to charge a management fee in the process of releasing him/her to UNDP under Reimbursable Loan Agreement (RLA), the Offeror must stipulate that arrangement at this point, and ensure that all such costs are duly incorporated in the financial proposal submitted to UNDP.

Lump-sum contracts

The financial proposal shall specify a total lump-sum amount, and payment terms around specific and measurable (qualitative and quantitative) deliverables (i.e. whether payments fall in instalments or upon completion of the entire contract). Payments are based upon output, i.e. upon delivery of the services specified in the TOR. To assist the requesting unit in the comparison of financial proposals, the financial proposal will include a breakdown of this lump-sum amount (including

travel, living expenses, and number of anticipated working days).

Travel

All envisaged travel costs must be included in the financial proposal. This includes all travel to join duty station/repatriation travel. In general, UNDP should not accept travel costs exceeding those of an economy class ticket; should the IC wish to travel on a higher class, they should do so using their own resources.

In the case of unforeseeable travel, payment of travel costs including tickets, lodging, and terminal expenses should be agreed upon, between the respective business unit and Individual Consultant, prior to travel and will be reimbursed.

Ethical Code of Conduct

The evaluator and the team are required to abide the by the UN PSEA code of conduct and other UNEG guidelines and UN system codes of conduct throughout the duration of the assignment.

ANNEXES TO BE DOWNLOADED AND USED FOR THE SUBMISSION

Annex-1-ToR-SPB_Project Evaluation TOR_REV version-PNG-010-2022 (Change)
ANNEX 2 - INDIVIDUAL CONSULTANT GTC
ANNEX-3-IC Offerors Letter to UNDP Confirming Interest and Availability
ANNEX-4-Statement of Health- Individual Contractor

Imprtant note: Please combine all documents as one (1) PDF and upload as a single file.