Project evaluation: summary report
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1 Corporate Unit Evaluation Project evaluation: summary report Guatemala: Promotion of integral citizens security and transformation of social conflicts (FOSIT) Title according to the commission: Promotion of integral citizens security and transformation of social conflicts (FOSIT) Project no.: Country/region: CRS sector: Overall objective: Guatemala Peace and security Governmental and non-governmental stakeholders are enabled to implement integral strategies on citizens security (including strategies for constructive resolution of social conflicts) at the national and territorial level. Overall term: 01/ /2016 Total costs: Commissioning party: Lead executing agency: Implementing organisations (in the partner country): EUR BMZ Ministerio de Gobernación Ministry of the Interior Unit for Violence Prevention in the Ministry of the Interior UPCV, Presidential Dialogue Commission CPD, Municipalities. Business Association CENTRARSE, NGOs (Red Quiché, CM Tierras, Pastoral Social Cobán, COINCIDIR, CAAPI), Universities Other participating development organisations: - Target groups as per the offer: The target group is the entire population of the region of intervention, namely the departments Alta Verapaz, Baja Verapaz, El Quiché Project description Almost twenty years after signing the Peace Accords, many of the structural conflict causes in Guatemala are still virulent. Progress concerning inclusive development and the security situation is insufficient. A high homicide rate of men and increasing homicide rates of women, impunity, a high level of corruption as well as a lack of professional abilities and presence of the governmental security forces emphasizes the urgency of issues covered by the presented development project. An outpointed culture of violence, an increasing propensity to violence and a high level of mistrust between the government and civil society are further factors contributing to a significant increase of a feeling of insecurity among the population. The main reasons are social, economic, ethnic and political disparities and intensified conflicts due to scarce resources. Weak, inefficient governmental institutions are unable to guarantee their citizens security, particularly, the
2 Page 2 exercise of their democratic rights. (Key problem). The government Pérez Molina has shown its political will to address these challenges in the Pact for Security, Justice and Peace, which provides the participation of civil society in the concept of citizens security which is based on a common social responsibility. In May 2014, the National Policy for violence prevention has been adopted. The policy indicates a paradigm shift from reactive approaches ( mano dura ) to preventive approaches of violence prevention. The policy is oriented until 2034, which indicates that violence reduction in this specific context is a long-term issue. All relevant actors assume that the policy s contents will continue being valid after the elections in September The objective of the project is governmental and non-governmental stakeholders are enabled to implement integral strategies on citizens security (including strategies for constructive resolution of social conflicts) at the national and territorial level. The project works in three fields of action: (1) development of joint implementation strategies for citizens security based on the Pact for Security, Justice and Peace and the National Security Strategy; (2) strengthening capacities, mechanisms and processes to improve citizens security at a decentralized level, (3) strengthening and use of capacities regarding abilities for non- violent conflict transformation based on case studies in selected regions. The project includes technical and process-related consultancy and organisational development targeted at strengthening and using of individual and institutional competencies of governmental and non-governmental actors. The programme aims at strengthening governmental structures, which are of vital importance for the implementation of integrated concepts of citizens security. The constructive exchange between governmental and non-governmental stakeholders is promoted. The participating actors are strengthened to exercise their rights and obligations regarding citizens security. Three development workers strengthen governmental and non-governmental stakeholders to increase their capacities on violence prevention and conflict transformation. The project regions are Alta Verapaz, Baja Verapaz and El Quiché. In each of the three regions a regional office is located. The Ministry of the Interior (MinGob - Ministerio de Gobernación), is the responsible political counterpart. It cooperates especially with the third Vice Ministry of violence prevention. The field of action conflict transformation has not been focussed by them. The partner structure of the programme is characterized by a high level of diversity. In each of the three fields of action the programme follows a multi-actor approach, which includes governmental stakeholders, civil society and the private sector. The underlying results logic of the project has been adapted for the implementation. The overall objective aims at creating strategies to enhance citizen s security and conflict transformation jointly by government, civil society and private sector. The indicators concretize this objective for national, regional and local levels. This is based on the hypothesis that to design and implement policies, all sectors and also all three levels are crucial, therefore not only a multi-actor approach but also a multi-level approach are necessary. This is plausible and is coherently put into practice or prepared. Another hypothesis is that experiences from the local level inform the national level and thereby policy making is fed with practical experience The results logic is coherent, but possible synergies between the two fields of action are not yet fully used. A system boundary is not clearly identifiable as FOSIT had to take advantage of opportunities due to the difficult start-up phase. At the time of evaluation the project had a period of three years (01 / / 2015). Because of the delay of an international agreement as basis for the project (until November 2013) preparatory actions were carried out in the first eleven months. Accordingly, some indicators have been adjusted. The total amount of the German contribution is up to 4,500,000 EUR. After the evaluation mission an increase of 250,000 EUR and an adjustment of the duration of the project until the end of 2016 were accorded, in order to incorporate one development worker into the project structure. Basis for assessment according to the OECD- DAC criteria: To determine the TC measure s overall rating, calculate the average of the individual ratings of the five OECD-DAC criteria points: very successful points: successful points: rather successful 8 9 points: rather unsatisfactory 6 7 points: unsatisfactory 4 5 points: very unsatisfactory Individual and overall rating of the OECD-DAC criteria: Relevance: very successful (16 points) Effectiveness: rather successful (10) Impact: rather successful (10 points) Efficiency: rather unsatisfactory (8 points) Sustainability: rather unsatisfactory (8 points) Overall, the TC measure is rated rather succesful with a total of 10,4 out of 16 points.
3 Page 3 Relevance The subjects covered by the project FOSIT have a high relevance for the development of the country as many different context analyses as well as relevant international, Guatemalan and German policy papers indicate. FOSIT explicitly targets the needs for peace and security as identified in various context analyses, for example in the context analysis from 2014 which identified as a priority field of action the development of model structures and processes for concerted and nonviolent conflict resolution. The high incidence of violence, the lack of security and high conflictivity of Guatemala limits the economic and social development of the country. This is reflected in national policies, which provide the political orientation for this programme. At first hand the Peace Accords should be mentioned, which constitute the fundament of a national agenda for a multi-cultural and inclusive society based on a peaceful conflict transformation, and the Pact for Security, Peace and Justice, which stipulates the participation of the civil society. Furthermore, the National Policy on Violence prevention has been adopted in May 2014, which represents an important fundament for the work of the project. The policy stands for a change of paradigm from reactive approaches ( mano dura ) to preventive approaches of violence reduction. The National Development Plan (Ka tun) is another important policy document. Its chapters on democratic governance address particularly issues like violence, peace and security. The relevant stakeholders assume that these policy documents will continue being relevant after the elections in September A policy on dialogue mechanisms has been elaborated during the evaluation period. The high relevance in terms of development policy does contradict the limited institutionalism and also rare resources of the governmental partners. Hence, the approach of FOSIT to face the problems setting main focusses like violence prevention and conflict transformation/dialogue with a multi actors approach on different levels has been appreciated by the various interviews partners during the evaluation mission. Effectiveness Concerning the effectiveness of the project is has to be emphasized, that due to the late bilateral agreement on which the project is based, only selected activities for preparation could be implemented in the first eleven months (until November 2013). In accordance to it, some indicators had to be adjusted. These adapted indicators formed the foundation for the project evaluation. The module objective of the project is: Governmental and non-governmental stakeholders are enabled to implement integral strategies on citizens security (including strategies on constructive social conflicts transformation) at the national and regional level. It should be emphasized that the project was actively involved in the consultancy of the National Policy on Violence prevention, which was adopted in Furthermore, the project created a firm basis for the development of joint implementation strategies. However, until now the joint development of such concrete strategies in the sense of consultation and cooperation between all three sectors (governmental, non-governmental and private sector) is still pending. The indicators have not been completely fulfilled at the moment and therefore their full accomplishment in 2015 is considered as doubtful especially on the national level, considering the general elections in September The evaluation mission concludes therefore, that one of the four indicators will be completely fulfilled, two will be partly fulfilled at the end of this programme phase but one does not contribute to measure the objective and is therefore not considered. It should be taken into consideration, that sustainable and structural changes need a considerable amount of time in a context of fragile statehood. No negative results have been observed. The multi-level and multi-actor approach contributes to the effectiveness of the programme. Furthermore, the project builds on the experiences and networking of the completed projects PCON, PROMUDEL and the existing human capacity development programmes. The monitoring system has been systematized and consolidated in a workshop recently in At the moment of the evaluation mission, it still did not contain all the relevant information. The information is collected through the diverse reports of regions and components which are the source for the project s report and monitoring of the different indicators and the target achievement. Up to now, there are no unified formats and methods. The monitoring system can be further optimized and up to now, it has not been sufficiently orientated to be a guiding base for project steering and strategy development.
4 Page 4 Objectives indicator Target according to the offer Current status according to the project evaluation 1. In the framework of national consultancy processes on the security pact, governmental and non-governmental stakeholders jointly develop three concrete strategies for the implementation of citizens security approaches. Sources: Studies and documentation of FOSS (civil society network on security), suggestions of the judicial commission, events of CentraRSE and documentation and evaluations of trainings and events of the participants 2. In eight of fifteen of the municipalities of intervention concrete gender - differentiated measures have been implemented in the frame of implementation strategies concerning citizens security developed by development councils and commissions on violence prevention. Sources: Prevention plans and action plans of the commissions, minutes and documentation of activities Basis value: 0 Target value: 3 Actual value: 2 Basis value: 0 Target value: 8 out of 15 municipalities Actual value: 8 municipalities Three multi sectorial approaches were supported by: (1) Platforms for conflict analysis; (2) Campaigns for violence prevention and (3) Dialogue for sustainability. Two approaches are already implemented; one is currently in the implementation process. It has to be highlighted that the project advised the National Policy on violence prevention, adopted in 2014, which provides a basis for the development of concrete implementation strategies. Nonetheless until now, the project provided only the basis for the future elaboration of implementation strategies, jointly developed concrete implementation strategies, in the sense of consultancy and cooperation involving different sectors is still to be realized. The developed implementation strategies did not include all three sectors, in two of them only government and civil society actors participated and only the third one also includes the private sector. In nine municipalities there are concerted prevention plans available, and seven municipalities have developed proposals. In eight of these municipalities preventive steps have been already implemented. In total not only 15 but 16 municipalities were consulted and the foundation for the implementation of activities was established. The gender dimension of the plans focuses on violence against women and interfamilial violence. However, due to lacking funds caused by small budgetary resources of municipalities the sustainability remains doubtful.
5 Page 5 3. In three of the participating municipalities the perception of the security situation (and of the perception of their democratic rights) has increased and is measured by monitoring mechanisms. Sources: Studies and consultations 4. Six of the institutions (governmental and non-governmental) consulted by the programme are using systematized case studies for the peaceful resolution of social conflicts with public participation to increase the conflict resolution skills of local stakeholders. Sources: Publications, studies, institutional records and reports. Basis value: - Target value: 3 of 16 Actual value: 0 Basis value: 0 Target value: 6 Actual value: no information The indicator does not display the achievement of the objective. In addition due to missing baselines it is not measurable. It is therefore not considered for the assessment of the effectiveness. In six municipalities surveys on the perception of the security situation have been implemented. These will serve as baselines to measure progress in There are instruments to determine an improvement of security. The perception and the improvement will be examined in The programme has designed an extensive methodology to measure public perception of the security situation, which has been implemented in six municipalities. This provides the basis to measure the public perception; however an improvement can be only measured in the six municipalities already consulted. In ten other municipalities base data are required. There are six processed case studies of constructive social conflict resolution available. It is not known whether they have been used for replication or other purposes. The basis has been laid according to the systematized case studies. In 2015, those examples will be published with more intensity, so that they can be used as examples and references of conflict transformation in similar situations. Overarching development results (impact) FOSIT contributes to the achievement of the overarching objective of Part A of the development programme, which is government and civil society fulfil their joint responsibility and promote a constitutional, democratic and inclusive development. Its measurement is realized through indicators: application of successful methods of nonviolent conflict resolution, information on human rights and violations and competencies of municipalities towards violence prevention. Contributions of FOSIT are found especially in indicators one and three. No negative impact could be observed. The long term effect of the impact is possible; however, it can be minimized due to the unstable political and social framework conditions of the country. Until now, there is a lack of emphasis on the promotion and replication of promising approaches. Due to that, the broad impact of the programme is currently classified as low. There is a good level of exchange and collaboration with other relevant international, national, regional and local stakeholders, which increases the complementarity of the programme efforts. For example, on a local level, FOSIT cooperates with UNESCO and the regional programme PREVENIR. There are close working relations with the EU, which might potentially lead to a co-financing of the programme in Efficiency In order to strengthen the efficiency, the genuine instrument system was re-adjusted to the offer, because the original planning had not been feasible. The programme reinforced its multi-level consultancy approach, among other things by employing own personnel in the three programme regions. Partner organisations have limited resources, which limits sustainability effectiveness on behalf of the partner organisations. Efforts for complementarity with other programmes and donors have been made, but should be reinforced furthermore.
6 Page 6 The internal programme structure (matrix organization) based on a territorial and thematic logic is appropriate for the implementation in the fields of action and the multi level approach. However, the team will pose major challenges, because this requires a high level of internal communication and coordination in order to create synergies and to avoid double work. The finance monitoring data are coherently developed and provide the opportunity to steer according to fields of action and regions. However, due to the adjusted instrument system and the devaluation of the EURO in relation to the US Dollar in 2015, the programme confronts budgetary limitations. Consequently, the programme is looking actively for financial cooperation with other programmes and donors, which should be further enhanced in the next programme phase (e.g. cofinancing with EU). As well there is an active cooperation with other donors to exploit possible synergy effects (e.g. with UNESCO and UN Women). Sustainability The programme considers the interests and priorities of partner organisation and national policies. At the same time, it pretends to strengthen institutional capacities by following a systemic approach and building on existing structures, such as the National Dialogue System. It fosters partner efforts to incorporate developed strategies and policies in their respective institutions. The sustainability, however, is very much depending on the fragile condition of the country. The long - term orientation of the impact is potentially given, but could be limited due to the unstable political and social general conditions of the country. Elections will take place in September 2015, and the continuity of personnel and institutionalism in public institutions is estimated as rather low. Hence, the multi - actors approach aims to strengthen sustainability, nevertheless the institutional and personal fluctuation in governmental partner organizations represents a considerable limitation in the sense of sustainability. There are some positive examples, which might serve as a model for promotion and replication, as for example the cooperation with the business association CentraRSE in sustainable dialogues ; the cooperation with the National Dialogue System; and the cooperation with the networks Red Quiché and CM Tierras, the latter supported by development workers. However, until now not enough attention was given to the promotion and replication of promising approaches. There is still a lack on a systematized strategy in order to contribute to a wider spread impact of the programmes approaches. Published by Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH Registered offices Bonn and Eschborn Friedrich-Ebert-Allee Bonn, Germany T F Dag-Hammarskjöld-Weg Eschborn, Germany T F E I info@giz.de
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