Delivering as One (DaO)

Papua New Guinea

Index

1. Background PNG2. Development Impact DaO3. DaO structure4. DaO and the Paris Declaration5. Lessons Learned DaO6. Challenges and Opportunites DaO

1. Background PNG

Papua New Guinea at a glance• 6 million people; in a country almost twice the size of UK, 85%

live on subsistence farming, average life expectancy is 54 years, adult literacy rate 56.4%, maternal mortality ratio 733/ 100.000 and the under five mortality rate 88/1000

• Tribal society; more than 800 languages (Wantok - and big men - system)

• Independence 1975; Government completed a full 5-year term for the first time in 2007 since Independence

• Resource-rich country; including oil, copper and gold, large areas are difficult to access (>500 airports)

UN System in PNG

Resident Non-Resident with staff in-country

Non-Resident

UNDP OHCHR FAO

UNICEF UNIFEM UNCDF

UNFPA UNV IFAD

WHO UN HABITAT UN ESCAP

UNAIDS OCHA

UNHCR ILO

UNESCO

UN staff in country: 148Value UN Country Programme- 165M USD

2. Development Impact of DaO

9 ways DaO reinforces development results

Development impact DaO 1/3

• Reduction duplication and fragmentation UN Programmes:– Enhanced human and

financial resource utilisation– Enhanced geographical

spread– Enhanced alignment between

programmes

1. Enhanced efficiency- doing more with the same

2. Enhanced effectiveness - doing better with the same

3. Enhanced Transparency when delivering results

WHAT? HOW?

• One strategy supported by One Fund

• Single Quarterly and Annual development reports for GoPNG and DP’s

Development impact DaO 2/3

6. Reduced internal and external transaction costs

4. Enhanced support to Aid Effectiveness and Paris Declaration process

5. Enhanced Relevance UN System

WHAT? HOW?

• Enhanced alignment and linkages UN strategy to national dev. priorities

• More coherent engagement with DPs & GoPNG

• Enhanced positioning UN leading /contributing to key thematic areas

• Better leverage UN comparative advantage

• Coherent approach towards partners and GoPNG

• One contribution to One Fund• One report rather than

multiple agency based reports

Development Impact DaO 3/3

7. Reduced UN Operating Cost

8. Strengthened UN leadership

9. Strengthened Results Focus

• UN bargaining power- joint procurement

• Shared effort:- Joint Resource Mobilization- Joint M&E and Reporting

• Enhanced strategic leadership under single country strategy

• Enhanced clarity role RC & UNCT

• Enhanced thematic leadership under Task teams

• Results based planning, budgeting and reporting

WHAT? HOW?

3. Structure of DaO

Integrated Programme and Operations Strategy

Delivery as One in PNG

Change Management

Pillar 4: Gender

PNG UN JOINT COUNTRY STRATEGY

UN Programmes:UN Country Programme 2008-2012

Strategic Support

Pillar 2: Foundation for Human Development

Pillar 3: Sustainable Livelihoods and Population

Pillar 1: Governance and Crisis Management

Pillar 5: HIV and AIDS

UN Budgetary Framework(including UN Country Fund)

UN Operations

UN Haus

UN Communications and Advocacy

Results Based Management

Joint Resource Mobilization

UN Country Programme (One Programme)

• 95% of UN Programmes covered (except for humanitarian and emergency related interventions)

• Inter-agency mechanisms for:– Strategic planning (GoPNG/UN PSC, PCC/OMT, TT, 5 yr strat. plans)– Implementation planning (Joint AWP)– Joint resource mobilization (supplementing agency RM)– M&E and Reporting (Single development report)

• Agencies mechanism for: – Technical expertise– Implementation (Technical assistance, networking)– Resource Mobilization (supplementing JRM)– Advocacy/networking– Agency reporting under Joint AWP

Individual agency parts of

joint work plans

Many agencies delivering

UN Country TeamChair: RC

Governance and Crisis

Management

Programme Coordination Committee (PCC)Chair: UNICEF

Foundations for Human

Development

Sustainable livelihoods and

populationHiV/AIDS Gender

6 Task TeamsJoint AWPs per

task team

3 Task TeamsJoint AWPs per

task team

2 Task TeamsJoint AWPs per

task team

1 Task TeamsJoint AWPs per

task team

1 Task TeamsJoint AWPs per

task team

Single development report

Joint M&E Joint M&E Joint M&E Joint M&E Joint M&E

Individual agency parts of

joint work plans

Individual agency parts of

joint work plans

Individual agency parts of

joint work plans

Individual agency parts of

joint work plans

Unified UN leadership

Unified UN leadership

Single teams delivering outcomes

Single Annual Work Plans per

outcome

5 yr Strategic Plan per theme area

Integrated M&E mechanism

Single report

One Programme in PNG: UN Country Programme

UN Budgetary Framework

• 3 elements:• UN Country Fund• Joint Resource Mobilization Strategy• Financial management information (gap, expenditures) at

outcome, output and annual deliverable level• One Fund in support of One Strategy: towards a single UN financing

for development mechanism• Manages non core (non regular), bilateral resources• Bilateral donors channel majority of resources through UNBF

-> Channels between 60-80% of in country UN development resources

• Performance based planning, budgeting and reporting

UN Country Fund

UN Country Fund

Change Management

Pillar 4: Gender

PNG UN JOINT COUNTRY STRATEGY

UN Programmes:UN Country programmes 2008-2012

Strategic Support

Pillar 2: Foundation for Human Development

Pillar 3: Sustainable Livelihoods and Population

Pillar 1: Governance and Crisis Management

Pillar 5: HIV and AIDS

UN Budgetary Framework(Including UN Country Fund)

UN Operations

UN Haus

UN Communications and Advocacy

Results Based Management

Window 1: UN Country Programme Fund

Window 2: Strategic Support Fund

Joint Resource Mobilization

Joint Resource Mobilization

UN Country Fund

Change Management

Pillar 4: Gender

PNG UN JOINT COUNTRY STRATEGY

UN Programmes:UN Country programmes 2008-2012

Strategic Support

Pillar 2: Foundation for Human Dev.

Pillar 3: Sust. Livelihoods and Population

Pillar 1: Governance and Crisis Man

Pillar 5: HIV and AIDS

UN Budgetary Framework (Including UN Country Fund)

One UN Operations

UN Haus

One Voice/Joint Communciations

Results Based Management

Window 1: UN Country Programme Fund

Window 2: Strategic Support Fund

Primary funding sources

•In Country Donors•Off shore donors

•Thematic and Global Funds•Government of PNG

•Private sector

Primary funding sources

•Agencies (Cost sharing)•HQ and global Fund

•Donors (Joint Advocacy and Change Management)

•Government of PNG (UN Haus)

Joint Resource Mobilization

Resource allocation criteria

Allocation criteria based on three core principles:

• Eligibility: minimum requirements (links nat. priorities, links UN strategy, quality results & M&E framework, Task Team capacity

• Performance: prioritizes activities that demonstrated good progress: min. absorption rates, min. # deliverables realized

• Priority: prioritizes activities supporting core UN development priorities (HR, Gender, Capacity Development, MDG’s, Environment,…)

17

Allocation

• 19 criteria grouped into 3 categories:

• Allocations to Task teams, not agencies

• UNCT holds ability to withdraw and re-allocate funding based on performance of the Task Team

• Allocations and criteria used to enhance UN strategic planning (RBM), M&E and reporting

UN Operations

5

Existing Common Services

Short & Medium Term

Baseline analysis current services:

1. Improving quality while managing cost- client quality survey

2. Reducing cost while maintaining quality

New Common Services

Short & Medium Term

One OperationsMedium & Long term

Design and implementation of additional services:

1. Needs and requirements analysis2. Cost Benefit analysis 3. Roll-out

Scoping assessment of integration of (ExCom ) Operations

Baseline costing assessment UN Operations

UN Communication and advocacy• UN Communication Committee: pooling communication

expertise in support of UN Country Programme• UN branding policy reinforces UN positioning and

complements agency communication• Strategy based on three pillars:

– Internal communication (programme delivery, DaO and communicating change)

– External communication: UN branding, advocacy on pre selected areas

– Advisory support by UN Communication Team to Task Teams

UN House• Key enabler for UN Operations and Common

Services• Existing UN House• Need to expand-No available space• Agencies moving out• Significant imbalances in real estate market

and security situation raise challenges • Government land to be allocated for

development new UN House

4. Delivery as One and the Paris Declaration

National ownership of DaO

• GoPNG drafted UN Reform and Aid Effectiveness paper guiding AE agenda in country

• Plan to adjust the DaO approach to focus the AE agenda in PNG

• GoPNG involved in each step of the process from UN strategic planning to resource allocation to monitoring, evaluation and reporting (PSC, AWP SC)

Delivery as One, Aid Effectiveness and the Paris Declaration

• National Ownership– One Programme explicitly derives from national development priorities and identify

UN role in support of national development results

• Alignment with national priorities– One Programme Annual Work Plans are aligned with national planning cycle– One Fund provides an organized, predictable and flexible source of support to

national needs as defined in the national development strategy– One Fund expenditures reflected in national budget

• Management for Results – One Programme and UN Budgetary framework based on results based planning,

monitoring, evaluation, reporting and resource allocation principles

Delivery as One, Aid Effectiveness and the Paris Declaration

• Mutual Accountability– GoPNG co-chairs Steering Committee that decides on UN programme priorities (One

Programme)and monitors implementation– GoPNG co-chairs Steering Committee that decides on allocations of UN resources (One

Fund)– The joint Steering Committee mechanisms ensures GoPNG and the UN are jointly

responsible for resources and results in the context of the UN support to national development priorities

• Harmonization– One Programme and One Fund provide an integrated UN platform to engage with

government and partners ensuring programme alignment and complementarily between UN System and the GoPNG and other partners

– Harmonization of programme methodology and Financial Management (Budgetary Framework, HACT)

– A single UN development report reflecting results of the One Programme and expenditures of the One Fund

5. Lessons Learned and Challenges DaO

Lessons learned UN Country Strategy

1. Effective tool to enhance planning, monitoring and mobilizing resources for UN activities

2. Significantly enhances programme and operational coherence of the UN

3. Consolidation of UN strategies- enhanced transparency, coordination & reduced transaction cost strongly supported by government and DPs

4. Integrated strategy enhances the ability of agencies to claim leading roles in the Aid Effectiveness/ Aid Coordination field (critical mass UN)

5. Integrated strategy enhances UNs support role to government (critical mass UN) & Paris Declaration

6. Communication is key to realize the change-without partners and staff, DaO fails

Challenges UN Country Strategy• Internal and external capacity; (cadet programme,

training / work sessions e.g. on RBM, capacity assessment etc)

• ERP systems (e.g. Atlas, PROMS) to support our work with common terminology and systems)

• Communication; to external audience (what is the UN?) and internally (why the reform?)

• Resources; in support of the activities and change management efforts

Lessons learned UN Country Programme

1. Integrated delivery mechanisms:• have reinforced UNs capacity to claim leadership in

thematic development areas• have reinforced development impact- enhanced

geographical spread, better division of labour, coordinated resource utilization

• increased cross fertilization and knowledge sharing within a single thematic area

2. Start DaO process with the One Programme component- Programme drives the rest

3. Impact One Programme significantly reduced if not accompanied by integrated delivery mechanisms (joint teams, joint AWPs, joint M&E etc)

Challenges & Opportunities UN Country Programme

1. Linking UN programme and operational planning activities remains challenging

2. Transition from agency based planning to UN System planning is challenging: needs active (change) management and communication

3. Double reporting remains a large factor regarding increased workload

4. Opportunities to link UN structures to broader, national Aid Effectiveness initiatives

5. Opportunities for decentralizing DaO strategy to the provincial and local level

Lessons learned UN Budgetary Framework

1. UNBF realized significant reduction of transaction costs for DP’s and Government

2. Performance based allocation mechanism strong tool to enhance quality of planning and reporting

3. Excellent platform to develop Single Development Report and quality management information

4. Needs to follow the One Programme: Programme drives the rest

5. Expensive mechanism if only small amount channelled through UNBF

6. Clear process and criteria essential to avoid friction down the line

Challenges UN Budgetary Framework

1. Earmarked funds vs non earmarked funds

2. Use of criteria depends on strength of M&E framework

3. Mobilising un-earmarked funds remains challenging

4. Mobilising resources for Strategic Support pillar (UN Operations, change management etc) remains challenging

Lessons learned UN Operations

1. UN Haus is a key catalyst to driving UN Operations

2. Joint Procurement key driver for operational cost reductions

3. Many low cost- high impact interventions available

Challenges UN Operations

1. Difficult to move forward- specialized knowledge required

2. Capacity at country level limits progress3. Ability for country innovation limited due to

high dependence on corporate rules and regulation

4. Limited resources for Operational Reform

Lessons Learned UN Communication and advocacy

1. Pooling communication resources opens option for more strategic role for UN communications (programme support)

2. Reinforces quality and reach of common UN advocacy (MDG’s, HR, Gender)

3. Powerful tool for UN branding and positioning4. Relatively limited dedicated communication

capacity in UN

Challenges & Opportunities UN Communication and Advocacy1. Lack of UN identity of staff remains a

challenge for strategic planning and implementation

2. Lack of resources (staff and financial) for joint communication remains a problem

3. Opportunity for significant economies of scale in UN advocacy

Lessons learned UN Haus

• High profile tool for UN Coherence• Key driver for further operations and

transaction cost reduction (UN Operations, Common Services)

• Good potential for innovation through physical clustering/ functional clustering supporting the One Programme task teasms

Challenges UN Haus• Lack of guidance if construction is required

(limited real estate market, security issues)• Obtaining land deeds from government is a

(very) lengthy process• Limited sources to finance one off

investment costs, proposal development, refurbishing

• Issues if landlord requires lease term >2 years due to budgeting cycles agencies

7. Role of the RC Office in DaO

Role RC Office

• RC Office positioned as advisory & coordination body to UNCT

• Each RCO Officers’ support tied to one or more DaO pillars

• ToRs tied in with DaO pillar deliverables• Change Management role in each of the pillars• Quality Assurance and Knowledge Transfer• Neutrality and firewall are key to RCO work

Appendix

More detail on each of the Ones

Results Based Management• UN developed a common approach to results based management

(concepts and methodologies agreed upon, using UNDG’s approved harmonized terminology)

• The approach is used for:

(a) development results (16 in the UNCP) (b) the delivering as one results ( 5 as per the Ones)

• As requested by GoPNG, an inter-agency RBM Committee supports GoPNG in coming up with a comprehensive approach to GoPNG’s own strategic planning and results based management (as part of the larger Aid Effectiveness agenda)

• Each year, the UN reports jointly on the development results as well as the ‘delivering as one’ results

Lessons Learned RBM• The UN coming together behind a clear focus ensures knowledge

sharing, learning and greater leverage at the policy level

• A common RBM approach has strengthened and simplified partnership with GoPNG (one strategic programme, joint AWPs, UN rather than agency-specific focal points and AWP steering committees)

• The structure of the management arrangements (e.g. task teams, steering committees) reinforces results focus

• DaO facilitated greater transparency on UN’s financial management

• Joint results based reporting helps publicize and make visible UN’s work in PNG and abroad

Change Management

• External stakeholder analysis: how do GoPNG and donors see the UN? What do they expect from the UN?

• Internal stakeholder analysis: how does staff see the UN? What does staff expect from the UN? ?

• Capacity Assessment: What capacity does the UN need to deliver against its results frameworks & To meet the expectations of stakeholders?

• HR Transition Strategy: How will the UN reposition its skill mix in support of the capacity assessment results?

DaO is Change• Change management has three pillars:

– Institutional change• Change of institutional set-up (platforms, entities and teams) for

planning, implementing, suppoprting, financing, M&E and reporting structures and roles

– Process change• Change of processes supporting programme delivery

(programmes and operational processes) UN Operations: strategic planning processes, financing, M&E, HR, Procurement etc.

– Human Capacity/Skills change• Capacity assessment against DaO strategy-all 5 pillars• “To what degree does the UN posses the capacity to deliver

against the result frameworks (both development results and DaO results) of the Joint UN Country strategy

Examples of allocation criteria• Eligibility:

– Linkages to Nat. Dev. Strat. & MDGs– Existence of 5 yr start. plan at outcome level– Extent of gov/nat ownership– Max. growth percentage of budget and agency

• Performance– Min absorption rates Task Teams last cycle (75%)– % annual deliverables realized last cycle (70%)– Ratio agency core resources allocated vs UN Country Fund

resources requested (max 49% UNCF)• Programme priority

– Annual UN programme priority areas (MDGs, Gender, Human Rights, CD, Environment,...)