STRATEGIC PROGRESS UPDATE THE NORTH-EAST RECOVERY & STABILISATION PROGRAMME FOR NIGERIA A SYNTHESIS OF RESULTS, ACHIEVEMENTS, & LESSONS LEARNT February 2018 Background The insurgency that has devastated the North-East of is to foster an enabling environment for strengthening Nigeria since 2009 has resulted in the loss of over 20,000 relevant institutions. Under the various pillars, the follow- lives, the destruction of billions of dollars’ worth of ing specific outcomes have been recorded: infrastructure, and has affected the lives of over 15 million people. Against this backdrop, the Government of Nigeria 1. Policy Development for Recovery and Peace (GoN) commissioned a Recovery and Peacebuilding Building: Policy mapping with a gap analysis Assessment (RPBA), carried out in partnership with the study initiated for recovery and peacebuilding World Bank (WB), the European Union (EU) and the United 2. Prioritising and Sequencing of Recovery: Nations (UN). The GoN subsequently requested for Methodology developed for prioritising assistance from these partners to implement and sequencing interventions by the recommendations from the RPBA, which included the states. Strategic action and investment adoption of a programmematic approach for stabilisation plans were consequently developed and recovery in the region. This approach, the North- East Recovery and Stabilisation Programme (NERSP), 3. Institutional Framework & Implementation operationalises the RPBA and the Buhari Plan to rebuild the Strategy: Mandate mapping exercise to North-East through an effective implementation plan so improve coordination at state and federal that the region can achieve its recovery and peace levels which highlights gaps and overlaps has building goals. been completed. Technical assistance has been provided to improve PCNI coordination through strategic and operational forums NERSP Components 4. Recovery Financing Strategy: The PCNI The NERSP is built on five pillars: web dashboard to track aid was reviewed, and a diagnostic analysis is in progress to 1. Policy Development for Recovery improve aid tracking capabilities based on and Peace Building needs met, through resources committed by Government and development partners 2. Prioritising and Sequencing of Recovery 5. Programme Oversight, Monitoring and 3. Institutional Framework & Implementation Strategy Evaluation, and Coordination: Expertise has 4. Recovery Financing Strategy been to aid the development of 5. Programme Oversight, Monitoring and monitoring and evaluation mechanisms Evaluation, at federal and state levels to monitor and Coordination Programme implementation progress The implementation of the NERSP, through activities in each of the five pillars listed, began in 2016 with support Way Forward through a US $1.5 million grant from the United The next steps for the Programme include building on Kingdom’s Department for International Development progressmadebasedonimplementingrecommendations (DfID), through the World Bank, to support the provision from various analyses to strengthen the institutional of technical assistance for peacebuilding and recovery architecture for recovery and peace building. Next steps efforts in the region. also include further developing the online dashboard linked to a robust monitoring and evaluation system for tracking aid and interventions, which is critical to realising Progress Made progress during implementation. A task team to ensure Since 2016, noteworthy progress has been made, yield- that the agreed upon methodology for prioritising and ing a more streamlined approach to engaging in inter- sequencing interventions is implemented will be necessary ventions, based on needs as prioritised by the states. This to monitor efficient Programme delivery. North-East Nigeria Recovery & Stabilisation Programme | 3 Background Since 2009, nearly 15 million people have been affected by the The economic impact of the crisis was found to be violence of Boko Haram and the resulting military substantial, reaching nearly US$9 billion across the six operations in the North-East of Nigeria. When the fighting North-East states, while the total needs for recovery and become particularly intense in 2014, over 20,000 peace building across the three strategic areas of people lost their lives and 1.9 million people were intervention in both the stabilisation (years 1-2) and displaced. The conflict further aggravated the recovery (years 3-4) phases is US$6.7 billion. Findings already fragile economic development of the North-East, from the assessment outline the needs and priorities t o resulting in estimated infrastructure damages of about be addressed for the sustainable recovery of North-East US$ 9.2 billion, and accumulated output losses of up to Nigeria. US$ 8.3 billion. Upon successful completion of the RPBA in April 2016, the In this context, the Government of Nigeria (GoN), with the GoN requested for support from the WB, EU and UN to support of the World Bank, the European Union, and the implement recommendations from the RPBA, includ- ing in United Nations, led a Recovery and Peace Building the adoption of a programmatic approach for stabilisation Assessment (RPBA) for North-East Nigeria to and recovery in the region. To this end, a post-RPBA comprehensively assess the needs resulting from the process—the NE Recovery and Stabilisation conflict. The RPBA was prepared and implemented Programme for Nigeria (NERSP) —would provide tech- jointly by the Federal Government, led by the Vice nical assistance to strengthen the institutional and legal President’s Office and the Governments of the six frameworks for recovery, prioritisation and monitoring affected states: Borno, Adamawa, Yobe, Gombe, Taraba, and evaluation mechanisms, and a financing strategy for and Bauchi. The RPBA involved extensive data collection, the NE. Moreover, RPBA and associated operationalisa- considerable dialogue and stakeholder consultation, and tion activities under the NERSP, would promote a more the quantification of recovery and peace building needs coherent and aligned package of recovery support from across the affected states. It consisted of three main the government and development financing partners. In components including: September 2016, the UK Department for International Development (DfID) provided the WB with US$1.5million 1. Peace Building, Stability and Social Cohesion to support this process. 2. Infrastructure and Social Service 3. Economic Recovery 4 | North-East Nigeria Recovery & Stabilisation Programme The North-East Recovery and Stabilisation Programme for Nigeria (NERSP) The North-East Recovery and Stabilisation Program- meme The NERSP is advanced through a set of activities for Nigeria operationalises the RPBA and Govern- ment organised under five pillars: strategies for recovery, stabilisation and peace building, such as the Buhari Plan,1 translating these 1. Policy Development for Recovery recommendations into an effective implementation and Peace Building strategy for recovery and peace building. The NERSP 2. Prioritising and Sequencing of Recovery establishes an institutional framework to apply opera- tional approaches and institutional arrangements for 3. Institutional Framework & Implementation Strategy interventions and projects. The Programme features: 4. Recovery Financing Strategy 5. Programme Oversight, Monitoring 1. A coherent Programme, prioritising the need and Evaluation, and Coordination. for recovery and peace building across social, economic and infrastructure, recovery, restoration and reconstruction efforts 2. An institutional framework for implementation, coordination, quality assurance and monitoring and evaluation of the recovery Programme 3. A resource mobilisation plan to fund the recovery Programme 1 The Buhari Plan is an amalgamation of a number of plans focused on the NE -Presidential Initiative for the NE (PINE) and the NE States Transformation Strategy (NESTS), including the RPBA. It has set targeted goals in seven aspects, including: restoring peace and stability, coordinating humanitarian and development responses, providing basic services and infrastructure, promoting a civil and peaceful culture, accelerating equal access to education, reducing inequality, nd a addressing environmental degradation. North-East Nigeria Recovery & Stabilisation Programme | 5 NERSP Key Development Outcomes The implementation of the NERSP began in October 2016. to enhance collaboration and coordination at the The implementation of the programme has produced the federal, state, and donor community levels; and following key development outcomes to date: (ii) consolidating the framework through which programmes for recovery and peacebuilding • Created an enabling environment for recovery in the North-East can be implemented. and peacebuilding programmes in the North- East: The NERSP aims to facilitate the creation of • Strengthened the institutional architecture for an enabling environment for the Government of recovery and peacebuilding: Activities under Nigeria and donors active in the country to carry the NERSP have helped to clarify the roles and out recovery and peace-building interventions in responsibilities of the institutions and agencies the North-East. Through the activities supported mandated with coordinating recovery and by NERSP (mapping of capacities, and capacity stabilisation programmes and projects in the North- building activities), the institutional capacity of East. Based on international experience and best the PCNI has been strengthened and is better practices, a Standard Operational Manual (SOP) is equipped to coordinate recovery and stabilisation currently being produced to define the guidelines programmeming in the North-East. Also, the for institutionalised practices and procedures Programme has facilitated the framework for recovery at the federal level. By promoting for policy implementation and has bolstered regular interactions and coordinated tasks under operational capacities at the federal and state levels programmematic engagements in the North- (through systematic approaches for prioritisation East, the NERSP has fostered an environment and sequencing), as necessary for implementing for regular communication between the federal recovery and stabilisation Programmes. coordinating agency and the North-Eastern states. • Galvanized programmematic engagement • Strengthened the humanitarian-development for Recovery and Peacebuilding in the North- nexus. By facilitating an institutional and East: The vast impact of the Boko Haram policy framework through which recovery and insurgency and its protracted derailment of peacebuilding programmes are implemented in socio-economic development in the North-East the North-East, the NERSP seeks to strengthen has made programmematic engagement in the and clarify the humanitarian-development nexus region a necessary to approach to recovery and debate in Nigeria. The NERSP operationalises the peacebuilding in the North-East. The NERSP need for paving the way and putting in place the galvanizes programmematic engagement to policies, institutional architecture, and prioritisation recovery and peacebuilding in the North-East by: (i) models to implement recovery strategies in the strengthening and leveraging nodes of convergence North-East, while operating in coordination with 6 | North-East Nigeria Recovery & Stabilisation Programme humanitarian agencies. NERSP strengthens and transparent recovery and peacebuilding on-going efforts in Nigeria by supporting activities response process throughout the North-East. As that directly address humanitarian-development such, NERSP includes monitoring and evaluation coordination, particularly through aid tracking strategies (pillar on Monitoring and Evaluation) under the Recovery and Financing Strategy pillar. as well as tracking tools (pillar on Recovery and Financing) to evaluate progress made, • Developed a state-owned prioritisation and not only for the implementation of the NERSP sequencing methodology. As part of NERSP, the programme, but also for overall humanitarian and PCNI has been working with Borno, Adamawa developmental engagements in the North-East. and Yobe states, with the support of technical experts from the World Bank, to create the first prioritisation model, which will guide the process of Deliverables identifying, planning, and financing of multi-sectorial By October 2017, resources have been allocated to interventions for recovery and peace-building in the execute activities planned in each of the five pillars. The North-East. This prioritisation model, fully owned by most significant progress has been targeted under the states, is based on international best practices activities planned for Prioritisation and Sequencing of for recovery and peace building. It introduces Recovery, Institutional Framework and Implementation objective criteria for transparency and objectivity, Strategy, and for the Recovery and Financing Strategy. For and ensures inclusive decision-making through the other pillars, activities are on-going. It is expected that continued consultations and iterations. This model physical deliverables will be produced in the following will be adopted by Gombe, Bauchi and Taraba, months. Table 1 lists the key physical deliverables under as well, to cover all six states of the North-East. the implementation of the NERSP. • Facilitated a more accountable and coordinated response process to intervention in the North- East. NERSP also promotes a more accountable Table 1: Deliverables produced as a result of the implementation of the NENRSP Pillar Key Deliverables Produced Percentage of Investments from total available resources Prioritising and Sequencing of Recovery • Completion of the methodology, 24% guideline and framework for prioritising, sequencing and financing needs for direct investments on recovery and peacebuilding customised to the North-East. • Capacity building within PCNI and BAY states for prioritising, sequencing and financing direct investments on recovery and peacebuilding. • Methodology for prioritisation documented in the report “From Needs to Investments: A Prioritisation Model for Recovery and Peace Building Interventions in North- East Nigeria.’’ • Prioritisation, sequencing and financing direct investments on recovery and peacebuilding methodology to be initially implemented in Yobe, Borno and Adamawa for a complete prioritisation process in the North-East. North-East Nigeria Recovery & Stabilisation Programme | 7 Institutional Framework & • Institutional mapping and capacity 26% Implementation Strategy assessment of the coordinating agency at the federal level in charge of recovery and stabilisation in the North- East completed. • Institutional mapping documented in the report “The Mandate and Stakeholder Mapping for the Operationalisation of the Presidential Committee on the North-East Initiative (PCNI).’’ • Work plan and timeline for operationalising the North-East Nigeria Recovery and Stabilisation Programme produced. • Programmematic Level Standard Operating Procedures completed by the PCNI, with close consultation with the North-East states. Pillar Key Deliverables Produced Percentage of investment from total available resources Recovery Financing Strategy • Assessment and analysis of 19% Government dashboard tracking aid pointing gaps for a fully functional tracking aid system completed. • Analysis on aid tracking dashboard documented in the report “PCNI Aid Tracking Dashboard – Diagnostic Review and Way Forward.” • Preliminary work plan to develop aid tracking dashboard and financial gap analysis taking stock of needs and resources from Government and development partners developed. Programme Oversight, Monitoring • Experts mobilised to support the 15% and Evaluation, and Coordination design of Programme oversight, M&E and coordination mechanisms at the federal and state levels to monitor progress made on the implementation of recovery and stabilisation initiatives. • International experts engaged to provide overall support and coordination for the implementation of activities under the NERSP. Policy Development for Recovery • Mapping policies at federal and state 12% and Peace Building levels and reviewing National Disaster Recovery Framework (RPBA). • Expert mobilised to conduct a gap analysis in recovery policy implementation at the federal and state levels, including policies related to displacement, and offer strategies to fill identified gaps. 8 | North-East Nigeria Recovery & Stabilisation Programme NERSP Key Outputs and Potential Next Steps Outcome: “Using demand-responsive, criteria-based methodology to prioritise and sequence recovery needs” Prioritisation and Sequencing of Recovery would address the highest priorities in sequence, and Since late 2016, Borno, Adamawa, and Yobe (BAY) States would coordinate and monitor investments funded by different government entities and development partners. have drafted state-level Strategic Action Plans (SAPs), prioritising interventions identified in the Buhari Plan and The SAPs were discussed with the World Bank and have the RPBA. These plans are the result of implementing a been shared with other development partners, including prioritisation model that guided the process of identifying, DfID, African Development Bank (AfDB), and Islamic planning, financing, and phasing multi-sectoral recovery Development Bank (IsDB), as a point of reference for the and peace building interventions to address the respective design of recovery activities in the North-East. The PCNI is needs of the states. The priorities of interventions in each currently working with the World Bank and the states of state were then presented as State Action Plans, which Gombe, Taraba, and Bauchi, to take a similar approach to serve as guiding documents to ensure that interventions prioritising and sequencing needs for future investments. North-East Nigeria Recovery & Stabilisation Programme | 9 Institutional Framework and Implementation Strategy Outcome: “A Harmonised and Efficient Institutional Framework for Recovery” 10 | North-East Nigeria Recovery & Stabilisation Programme The PCNI has continued its close collaboration and Pacific Group of States, the conference sought to promote partnership with federal and state agencies and various resilience through post-crisis recovery and provided GoN development partners to advance this coordination role. officials with an opportunity to learn from other regions, In doing so, the PCNI has proactively sought for technical and exchange tactics for effective recovery with global guidance from the World Bank on how to strengthen practitioners and government officials. coordination and streamline communications between To better identify capacity gaps and institutional needs, the North-East states and partners, and on the design and the PCNI collaborated with the World Bank to conduct an implementation of its monthly coordination forums. Institutional Mapping and Capacity Assessment (carried The PCNI also benefited from knowledge exchange out by the independent consulting firm Mannion Daniels). opportunities with experienced recovery practitioners The assessment titled, ‘’The Mandate and Stakeholder and specialists from around the world, aiming to enhance Mapping for the Operationalisation of the Presidential recovery efforts in the NE. For example, with WB support, Committee on the North-East Initiative (PCNI)’’ included PCNI leadership and some GoN officials attended the an operating framework consisting of stakeholder third edition of the World Reconstruction Conference mapping for recovery, and an analysis of how a PCNI- led (WRC3) in Brussels in early June 2017. Co-organised by the system of coordination for recovery in the North-East can WB’s Global Facility for Disaster Reduction and Recovery, be established alongside the existing humanitarian the EU, the UNDP, and the EU’s African, Caribbean and coordination architecture. Recovery and Financing Strategy Outcome: “Monitoring Recovery Financing, and Improving Transparency” North-East Nigeria Recovery & Stabilisation Programme | 11 In April 2017, PCNI introduced the PCNI Dashboard, an online tool that captures and displays key information from the Buhari Plan, the RBPA, and the progress made towards the implementation of recommendations from these documents. With the support of the World Bank, a detailed assessment of the dashboard was carried out to identify its strengths, gaps and strategies for full functionality. This included developing an agreement on a set of indicators serving as the basis for a results framework to monitor progress made on the operationalisation of the Buhari Plan and the RPBA. In the process of supporting the PCNI Dashboard, PCNI has also received capacity building support from the World Bank on developing geo-enabled tracking of these initiatives. Programme Oversight, M&E and Coordination Outcome: “Strategic planning, improving partnerships and oversight” 12 | North-East Nigeria Recovery & Stabilisation Programme The PCNI is working closely with the World Bank to PCNI conducts a monthly coordination forum, designed engage an international Monitoring and Evaluation to provide a common platform that systematically expert, with financial support from DfID, to produce an supports all actors in the North-East. The overall goal of M&E framework and system to monitor the progress made the PCNI Coordination Forum is to support and increase while implementing recovery strategies in the North-East. coordination in the North-East through systematic, regular interface with all key actors and stakeholders In terms of coordination, the PCNI continues to perform its working in the region. The forum also provides mutual coordination role by bringing together multi-lateral opportunities that: development banks (MDBs), multi-level government agencies, as well as civil society organisations, with a view • Facilitate the development and adoption of to ensuring engagement using the multi-partner, multi- common strategies and tools to aid the identification sector programmematic approach embraced by the of operational, intervention and delivery gaps. NERSP. • Foster cooperation, the advancement of open dialogue for team building, and provides an Between late March and early April 2017, PCNI, in collab- avenue for sharing information and providing oration with the WB and with the support of DfID, regular updates on activities planned for, or conducted two workshops: carried out in the North-East by the Government of Nigeria, humanitarian and development 1. “Turning Plans into Action: Advancing the partners, and local and international donors. Roadmap to Resilient Recovery in the North-East” (Yola, March 28 and 29) • Rapidly enhance delivery, ensuring higher impact of interventions in a coordinated 2. “Driving Multi-Sector Programmematic manner that significantly reduces the risks Recovery” (Abuja, April 6) of duplication and saturation while also These workshops helped advance the operationalisation of increasing mutual accountability. the RPBA and Buhari Plan, built agreement on the NERSP Since the inaugural forum in July 2017, the PCNI pillars, identified next steps to be taken, and reinforced coordination forum has proved to be a powerful tool for PCNI’s central role of Programme coordination. The inter-sectoral communication and collaboration, thereby following actions were agreed upon: enhancing synergy, increasing efficiency and improving transparency in the delivery of interventions in the North- 1. Strengthen the recently launched PCNI dashboard East. through iterative consultations with stakeholders 2. Formalise regular coordination meetings between government and development partners 3. Continue the joint programmeming of projects and technical assistance funded by multilateral development partners 4. Establish and improve coordination between humanitarian and development responses in the North-East North-East Nigeria Recovery & Stabilisation Programme | 13 Policy Development for Recovery and Peace Building An international consultant was selected and engaged, Way Forward with financial support from DfID, to review existing policies critical for recovery, including the identification of policy As highlighted, the NERSP has created the framework at gaps and proposal of new policies to fill the gaps. The the institutional and policy levels to advance a consultant will build on key stakeholder recommendations Programme for recovery and stabilisation in the North-East. from the workshops in March and April 2017, will work to While NERSP has successfully implemented activities align policies with international conventions on forced towards this goal, additional interventions are needed. As displacement, and will review the National Disaster such, activities to be proposed to further the Recovery Framework for the region. 14 | North-East Nigeria Recovery & Stabilisation Programme NERSP include: • Planning and Prioritisation: Establishing a task team, with the mandate of coordinating recovery and peacebuilding at the federal level to strengthen the implementation of the methodology for planning and sequencing of needs, which will be effective for prioritisation and planning. The institutionalisation of the activities of task team will ensure complete ownership of the process by the GoN, while ensuring that further refinements of the methodology will be implemented, also by the Government, with the support of the World Bank and other donors and partners. • Institutional Architecture for Recovery: Expanding on and strengthening the architecture for recovery and the federal and state levels, while further operationalising the recommendations provided in the report, “The Mandate and Stakeholder Mapping for the Operationalisation of the Presidential Committee on the North-East Initiative (PCNI).” Supporting the institutional architecture and, more importantly, fostering an institutional framework that supports the architecture for recovery will ensure that any changes at the Ministry, Department, and Agency (MDA) level, will not affect the objectives and implementation of the programmematic engagement for recovery in the North-East. • Financing Strategy: Establishing effective financial management strategies will further develop the recently launched PCNI dashboard, to ensure full functionality, as well as the inclusiveness of relevant stakeholders at the Federal and State levels and within the donor and humanitarian communities, while linking this dashboard to a robust M&E system. • Monitoring & Evaluation: Implementing recommendations from M&E experts, an M&E system should be put in place to monitor progress, not only to implement the NERSP, but also to monitor all NE programmematic engagements for recovery in the North-East. Close monitoring will allow lessons learnt to be captured, and may allow the testing of pilot approaches to further scale up successful activities. • Policy Level: Implement recommendations provided in the policy framework, and define roles and responsibilities at the Government level, to facilitate recovery and peace building in the NE and provide capacity building for key recovery-related policy actors, based on the gaps identified and policy mapping process conducted for recovery efforts. North-East Nigeria Recovery & Stabilisation Programme | 15 Levels of Damage in LGAs and Locations of BAY State Investments AD Yusuf Machina ( ) Nguru Karasuwa Barde JIGAWA • •• ® Bal: , Kala/ • G BAUCHI eng • Song Maiha Lamurde Guyuk ADAMAWA ® CAMEROON G.. b Numan Demsa • 1a south Yola North Legend Mayo-Belwa Fufore e Capacity Building on Water Supply/ Sanitation/Hygiene Management e Renovation/Construction of Borehole/ Sanitation/Hygiene Promotion Jada e Construction/Renovation of General TARABA e Hospital/PHC/Medical Material Construction/Renovation of Public Building e Construction/Renovation of Schools/Office * Ganye Building/Supply of Learning Material Renovation/Construction of Bridge Construction/Renovation of Road Toungo e Local Governance ® Social Cohesion and Peacebuilding ...._ Transistional Support for Livelihood - High } Medium Level of Housing Damage. 2015 Low