Document of The World Bank FOR OFFICIAL USE ONLY Report No: IMPLEMENTATION COMPLETION AND RESULTS REPORT ON A SMALL RECIPIENT EXECUTED TRUST FUND IN THE AMOUNT OF USD 4.9 MILLION TO THE Papua New Guinea FOR INCLUSIVE DEVELOPMENT IN POST-CONFLICT BOUNGAINVILLE PROJECT (P125101) July 31, 2019 Social Development Global Practice East Asia And Pacific Region Regional Vice President: Victoria Kwakwa Country Director: Michel Kerf Regional Director: Benoit Bosquet Practice Manager: Susan S. Shen Task Team Leader(s): Caroline Mary Sage, Dodi Doiwa ICR Main Contributor: Raewyn Porter ABBREVIATIONS AND ACRONYMS ABG Autonomous Bougainville Government AF Additional Financing BCL Bougainville Copper Limited BWF Bougainville Women’s Federation CDD Community Driven Development CGA Community Government Area CLUA Community Land User Agreement CNA Capacity Needs Assessment COE Council of Elders CPS Country Partnership Strategy CSO Community Service Organization DCD (Bougainville) Department of Community Development DCDO District Community Development Officer DFAT Department of Foreign Affairs and Trade (Australia) DHRD Division of Human Resource Development ESMF Environmental and Social Management Framework FGD Focus Group Discussion FO Finance Officer GOPNG Government of Papua New Guinea ICR Implementation Completion and Results Report IDIB Inclusive Development in Post-Conflict Bougainville IFR Interim Financial Report IMT Independent Monitoring Team ISR Implementation Status Report KPI Key Performance Indicator M&E Monitoring and Evaluation O&M Operations and Maintenance PAC Project Advisory Committee PDO Project Development Outcome PMU Project Management Unit PNG Papua New Guinea POM Project Operations Manual PSC Project Steering Committee RF Results Framework RSDLGP Rural Service Delivery and Local Government Project SPF State and Peace Building Fund TA Technical Assistance TOC Theory of Change TABLE OF CONTENTS DATA SHEET ....................................................................... 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PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES ....................................................... 4 Context ......................................................................................................................................4 Theory of Change (Results Chain) ................................................................................................6 Project Development Objectives (PDOs)......................................................................................8 Key Expected Outcomes and Outcome Indicators ........................................................................8 Components ...............................................................................................................................8 Significant Changes During Implementation ................................................................................9 Revised PDO............................................................................................................................. 10 Revised Components ................................................................................................................ 11 II. OUTCOME .................................................................................................................... 12 Assessment of Achievement of the Objective ............................................................................ 12 Other Outcomes and Impacts ................................................................................................... 20 III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME ................................ 20 IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME .. 22 Bank Performance at Appraisal ................................................................................................. 22 Bank Performance in Supervision.............................................................................................. 22 Compliance .............................................................................................................................. 22 V. LESSONS LEARNED AND RECOMMENDATIONS .............................................................. 24 ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS ........................................................... 25 ANNEX 2: SUBPROJECTS COMPLETION AFTER GRANT CLOSING ............................................ 37 ANNEX 3. PACIFIC WOMEN MTR CASE STUDY ...................................................................... 41 ANNEX 4. BANK SUPERVISION CASE STUDIES ....................................................................... 43 ANNEX 5. PHOTOGRAPHS OF VARIOUS PROJECTS ................................................................ 44 ANNEX 5. CLIENT AND STAKEHOLDER COMMENTS ............................................................... 49 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) DATA SHEET BASIC INFORMATION Product Information Project ID Project Name Inclusive Development in Post-Conflict Bougainville P125101 Project Country Financing Instrument Papua New Guinea Investment Project Financing Original EA Category Revised EA Category Not Required (C) Partial Assessment (B) Organizations Borrower Implementing Agency Department of Community Development, Autonomous Papua New Guinea Bougainville Government Project Development Objective (PDO) Original PDO The Proposed Project seeks to contribute to the rebuilding of post-conflict social capital at the community level by; (a)strengthening the capacity of women's organizations and civil society organizations and civil society organizations that supportthe involvement of women in development activities and which advance the priorities of women in development to initiate and managedevelopment activities and b) increase the implementation of community development activities which are mroe inclusive of women inplanningand decision -making processes, and which more explicitly focus on the development priorities of women. Revised PDO Revised project development objective: to increase the provision of community-prioritized services and income- generating opportunities driven by women and women’s groups in Bougainville. Page 1 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) PDO as stated in Legal Agreement (if different from Project Paper) The Project seeks to contribute to the rebuilding of post-conflict social capital at the community level by; (a)strengthening the capacity of women's organizations and civil society organizations and civil society organizations that support the involvement of women in development activities and which advance the priorities of women in development to initiate and manage development activities and b) increase the implementation of community development activities which are more inclusive of women in planning and decision -making processes, and which more explicitly focus on the development priorities of women FINANCING FINANCE_TBL Original Amount (US$) Revised Amount (US$) Actual Disbursed (US$) Donor Financing TF-98558 4,918,230 4,918,230 4,810,678 Total 4,918,230 4,918,230 4,810,678 Total Project Cost 4,918,230 4,918,230 4,810,678 KEY DATES Approval Effectiveness Original Closing Actual Closing 16-Nov-2010 03-Mar-2011 31-Mar-2014 31-Dec-2018 RESTRUCTURING AND/OR ADDITIONAL FINANCING Date(s) Amount Disbursed (US$M) Key Revisions 31-Mar-2014 2.03 Change in Loan Closing Date(s) 30-Sep-2014 2.24 Change in Loan Closing Date(s) 31-Mar-2015 2.24 Additional Financing Change in Project Development Objectives Change in Results Framework Change in Components and Cost Change in Loan Closing Date(s) 29-Mar-2018 4.18 Change in Loan Closing Date(s) Page 2 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) KEY RATINGS Outcome Bank Performance M&E Quality Moderately Satisfactory Moderately Satisfactory Modest RATINGS OF PROJECT PERFORMANCE IN ISRs Actual No. Date ISR Archived DO Rating IP Rating Disbursements (US$M) 01 19-Dec-2014 Satisfactory Satisfactory 2.24 02 09-Apr-2016 Moderately Satisfactory Satisfactory 2.69 03 01-Jun-2017 Moderately Satisfactory Moderately Satisfactory 3.67 Moderately 04 27-Mar-2018 Moderately Satisfactory 4.18 Unsatisfactory 05 01-Feb-2019 Moderately Satisfactory Moderately Satisfactory 4.81 ADM STAFF Role At Approval At ICR Regional Vice President: Axel van Trotsenburg Victoria Kwakwa Country Director: Ferid Belhaj Michel Kerf Director: Charles M. Feinstein Benoit Bosquet Practice Manager: Michel Kerf Susan S. Shen Caroline Mary Sage, Dodi Task Team Leader(s): Erik Caldwell Johnson Doiwa ICR Contributing Author: Raewyn Isabel Porter Page 3 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES Context Bougainville is located at the eastern-most point of the New Guinea islands and comprises two large islands (Bougainville and Buka) and many smaller islands. It has a population of approximately 250,000, with over a dozen different language groups. Bougainville is geographically, ecologically, and anthropologically part of the archipelago that forms the Solomon Islands. During World War I, the island was occupied by Australia, who subsequently administered it within the Territory of New Guinea. The island unilaterally declared independence as the Republic of the North Solomons several days before PNG gained its independence from Australia in 1975; that republic was never recognized by the international community and was absorbed into the newly sovereign PNG within six months. Bougainville suffered a devastating conflict between 1988 and 1997. The conflict was complex and rooted in the perceived unequal benefit sharing for local communities from the Panguna Mine run by Bougainville Copper Limited (BCL), as well as local concerns about environmental degradation caused by the mine. The lack of transparency of the agreements made between the Government of PNG (GOPNG) and BCL fueled tensions, with communities from Bougainville believing that the benefits of the copper mine were going disproportionately to mainland PNG. The conflict was exacerbated by resentment towards migrants as the mine and its construction brought mainland Papuans to Bougainville, creating tensions around job allocations. The conflict saw tens of thousands killed, a divided and traumatized population, degraded infrastructure, and the collapse of its mining economy. A physical blockade by the national government resulted in significant civilian suffering including food shortages and disease epidemics. After years of violence, peace efforts began in 1997. A truce was called, with peace talks beginning in 1998. The talks led to the deployment of a peacekeeping mission to the island. In 2001 the Bougainville Peace Agreement (BPA) was signed, which created the Autonomous Bougainville Government (ABG) and established a roadmap towards a referendum on self-determination to be held between 15 June 2015 and 15 June 2020. With these agreements in place, the ABG was looking to rebuild and develop fiscal self-reliance.1 Efforts included both classic post-conflict institutional creation and experiments in economic self-reliance. Institutional efforts by the ABG, with support from donor partners and intermittent funding from the national government, have focused primarily on meeting two objectives: ensuring core basic government functions to the population, and making progress towards the threshold criteria identified in the BPA as critical precedents for the referendum. Challenges to post conflict redevelopment were significant: an embryonic ABG; human resource scarcity at central, regional and district levels; weak transport networks; a housing shortage; and continuing insecurity. Local communities had suffered significant trauma with inter-community cohesion severely undermined. The conflict and its aftermath were particularly transformative for women and gender relations. Prior to the conflict women played key roles in community level decision making and were key agents of development, including in determining land rights and land use. Women suffered the brutalities of war; in matriarchal communities’ women lost control of their land rights and decisions on land use; and across Bougainville women’s key role in family and community decision making was undermined. Despite this, women were critical in initiating peace efforts using their traditional roles to mediate tensions, create peace areas and to convene and lead peace talks. Nevertheless, the dynamics of conflict and the post conflict period weakened women’s traditional roles. In the post conflict period, women’s capacity to organize 1In 2004, the Constitution of the Autonomous Region of Bougainville (ARB) was enacted. In 2005, the first Autonomous Bougainville Government began to operate. Page 4 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) within their communities was challenged, and many women’s groups became fractured over competition over resources, political differences and rural-urban divides. While continuing to fight for inclusive peace processes, women and their organizations were often undermined and marginalized in the post-conflict competition for resources and by development processes that typically targeted men. In the fragile, post conflict period key stakeholders – high level government officials and women’s leaders – called upon the Bank to provide support to efforts that: i) strengthen women’s engagement in development; and ii) enhance the enabling environment for women’s reengagement in community development. Following consultations by the World Bank with stakeholders in Bougainville in 2008 and 2009, the Bank saw an opportunity to help rebuild trust and social cohesion between the government and the community, and between women and men in the communities, whilst providing much needed small-scale infrastructure. The ABG’s Department of Community Development (DCD) had been promoting gender-inclusive development and was active in reengaging an umbrella women’s organization— the Federation Meri Bilong Bougainville (Bougainville Women’s Federation)—as a mechanism for channeling women’s voice and participation in government. A two-pronged approach was considered necessary to support more effective engagement by women’s groups in local development: (i) rebuilding the capacity of women’s groups to be active in local development; and (ii) strengthening the capacity of the Autonomous Bougainville Government (ABG) to effectively enable redevelopment of the country at all levels. Based on similar experience in PNG and elsewhere, adopting a Community Driven Development (CDD) response was considered an appropriate response to a challenging post conflict situation. Following the devastating conflict, Bougainville had very weak social cohesion at the community level, lingering insecurity in the south, and stagnating development in the central and southern regions. The political environment was fragile with slow development of peace dividends and economic progress. The new ABG had very limited capacity and there was, even prior to the conflict, a very limited reach of national government services into many parts of the country. Community based development was considered to have the potential to rebuild trust, to involve those affected by violence in community processes and to create opportunities for non-confrontational engagement. It was also considered an appropriate vehicle to begin to provide basic services and infrastructure for many traumatized and marginalized communities who would otherwise be difficult to reach. The ABG recognized that women can and must play a key role in community development and that their voices must be more effectively represented in decision making forums. The Inclusive Development in Post Conflict Bougainville (IDIB) project aligned well with the FY08-11 WBG Country Assistance Strategy (CAS) which had two pillars: support for (i) sound management of the economy and natural resources; (ii) livelihoods and service delivery for poor people. The CAS also highlighted the importance of empowering women and youth and strengthening governance to carry out this strategy. The project was in alignment with the cross-cutting theme of empowering women and with supporting livelihoods and service delivery for the poor as it intended to improve service delivery by strengthening the capacity of government and civil society organizations to engage with all segments of communities in development activities. The project drew heavily on the Japan Social Development Fund (JSDF) Funded Self Reliance Programs for Women in Remote Mining Communities and complemented the Second Mining Institutional Building Technical Assistance Project and the Productive Partnerships in Agriculture Project (PPAP), all of which attempted to support post conflict recovery and reconstruction efforts in Bougainville. The WBG’s FY13-16 Country Partnership Strategy (CPS) – subsequently extended to June 2018 - specifically recognized the unique and fragile context of development in the ABG. The IDIB project again supported both Pillar 2 and Pillar 3 of the CPS. Pillar 2 emphasizes the importance of “delivering gender-equitable improvements to lives and livelihoods�; this priority was advanced through the engagement of women in community development and also through the resultant increase in access to basic services in all Community Governments (CGs) across Bougainville. Pillar 3 Page 5 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) emphasizes “increasingly prudent management of revenues and benefits�. The Community Driven Development modality underpinning the project enabled communities to support community infrastructure and service delivery initiatives in a cost-effective way. The project was also supported by the Government of Australia’s Department of Foreign Affairs and Trade (DFAT) as a key donor partner; DFAT funded the additional finance of the project in 2014 and supported a range of complementary efforts in Bougainville in support of the Bougainville Women’s Federation. DFAT also supported a number of monitoring and evaluation efforts discussed below. Theory of Change (Results Chain) The primary objective of this project was to increase the capacity of women and women’s groups to promote inclusive community development projects. The design of the project was based on a number of assumptions. First, that enhancing the capacity of the ABG Department of Community Development (DCD) to support the role of women in community development would increase the capacity of women to implement local projects while increasing trust and confidence in ABG to support community development. Second, that the proposed training and technical assistance (TA) components to DCD employees, Bougainville Women’s Federation Officials, and women’s community group executives would increase their capacity to design and manage projects. Third, that a CDD modality of project design would promote inclusive decision-making processes and cost-effective development outcomes. And fourth, that successful implementation of community projects would increase women’s confidence and community perceptions of women’s leadership capacity, which in turn would increase the capacity of women to promote inclusive community development. In particular, the project focused upon building the capacity and confidence not only of women and civil society organizations in the community development process, but also the fledgling government agencies and officials in Bougainville, in a context of limited capacity and trust across the board, in order to increase social cohesion and community development. The theory of change for the project is summarized in Diagram 1 below. Page 6 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Diagram1: Theory of Change for the IDIB Activities Outputs Outcomes Longer-Term Outcomes Capacity Building No. of CDC and Increased More responsive of ABG DCD to Bougainville capacity of ABG government and facilitate and Community and various stronger link mange women led Government women’s groups between ABG and Community Officials trained to manage local communities development in CDD approach development projects. projects . Community Identification of support for women local infrastructure Increased in such leadership Training and community roles increases needs and technical development livelihoods assistance to initiatives and opportunities women’s groups increased through inclusive on designing and access to basic women led implementing services driven process CDD projects by women and women’s groups Improved welfare of rural population Grants for Implementation of New or up-graded local level sub- local Increased projects infrastructure in income- place. generating New economic opportunities activities in local driven by women communities. and women’s groups. Page 7 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Project Development Objectives (PDOs) The original PDO is to contribute to the rebuilding of post-conflict social capital at the community level by: (a) Strengthening the capacity of women’s organizations and civil society organizations that support the involvement of women in development activities and which advance the priorities of women in development to initiate and manage development activities; and (b) Increase the implementation of community development activities which are more inclusive of women in planning and decision-making processes, and which more explicitly focus on the development priorities of women. Key Expected Outcomes and Outcome Indicators The three original indicators against which the achievements of the project would be measured were: 1. Increased involvement of women in community-level decision-making compared to pre-conflict period. 2. Increased engagement of women’s organizations in community development planning and implementation. 3. Increased ability of the communities to work together to address intra and inter-community problems and development priorities. Components There were three components to the project: Component 1: Building capacity for Inclusive Community Development (Original allocation: US$701,830; actual at closing: US$1,201,830) This component aimed to strengthen the capacity of women’s organizations and civil society organizations (CSOs) that support the involvement of women in development activities as well as the capacity of the ABG, local government and CSOs to undertake community development that is more inclusive of women in planning and decision-making processes, and that is more explicitly focused on the development priorities of women. Subcomponent 1A: Strengthening capacity for Inclusive Community Development This subcomponent financed twice-yearly trainings for staff in the most relevant ABG divisions (such as Community Development, Education, Health and Planning) posted to the ABG district and sub-district levels, as well as Local Level Governments, civil society and other community leaders. To ensure the sustainability of the training beyond the life of the project, it was to be developed and delivered with the Division of Human Resource Development (HRD) that oversees civil service training in the ABG. Subcomponent 1B: Strengthening Civil Society Organizations in Support of Women This subcomponent financed training for women’s organizations and CSOs that support the involvement of women in development activities and which advance the priorities of women in development. The training was intended to strengthen the overall performance of CSOs which support women and in so doing, enhance the capacity of these CSOs to implement the small grants for development in component 2 of the project. Under this subcomponent a needs assessment was conducted to: (a) obtain a better understanding of capacity/training needs; (b) establish a baseline for organizational capacity to measure project outcomes; (c) obtain support for, and input into, the design of training; and (d) map out challenges to, and modalities for, delivering training. Page 8 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Component 2: Small Grants for Inclusive Community Development (Original allocation: US$927,000; actual at closing: US$2,230,000) The aim of this component was to strengthen the role of women and CSOs by providing funding for projects that are more inclusive of women in planning and decisions-making processes, and/or explicitly focus on the development priorities of women. The grant projects were to support the individuals and groups trained under component 1 to apply the concepts and skills they had learned directly to the development and implementation of community-based projects. Subcomponent 2A: Inclusive Development Grants The subcomponent financed small grants to Community Based Organizations (CBO’s) and CSOs which met the criteria defined under subcomponent 1B. The activities eligible for funding included: small scale economic infrastructure; occupational activity and economic livelihood training; and social issues training and awareness campaigns. The projects had to be focused at the village or ward (inter-village) level and had to improve living conditions and/or economic well- being. Subcomponent 2B: Implementation Support Grants Under this subcomponent additional financing (AF) could be provided to grantees to strengthen their capacity to implement their approved projects. Specifically, it could provide additional grant financing for the hiring of consultants and/or training providers for technical support in the areas of procurement, financial management, reporting and environmental and social impacts for grant proposals that required this level of support. Component 3: Project Management and Knowledge Sharing (Original allocation: US$889,400; actual at closing: US$1,489,400) Subcomponent 3A: Project Management and Monitoring and Evaluation This subcomponent financed the project management of the project, including the meetings of the Project Advisory Committee (PAC); local and international consultants supporting project management, vehicles and equipment; the Project Team in the DCD; and monitoring and evaluation. Subcomponent 3B: Knowledge Sharing and Networking This subcomponent provided an opportunity for both government (ABG and local level) and CSOs to build alliances and share information and lessons on their activities. Significant Changes During Implementation Four restructurings were undertaken: Key Dates Amt. Disbursed Key Changes Comments 16 Nov. 2010 Approval Original amount US$2.52 SPF 3/31/2014 US$2.03m Closing date extension Time added due to slow project start up Level 2 restructuring until September 30 2014 9/30/2014 US$2.24m Closing date extension To allow time for processing of AF and Level 2 restructuring until March 31st 2015 extension of SPF 3/31/2015 US$2.24m Additional Finance AF from SPF of US$2.4m Level 1 restructuring Change in PDO Level 1 restructuring Change in Results Framework Change in components Page 9 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) and cost Closing date extension until March 31st, 2018 3/29/18 US$4.18m Closing date extension Ensure completion of all activities and Level 2 restructuring until December 31st certify sub projects works. 2018. Revised PDO Following a Mid Term Review in July 2013, the Bank and the ABG agreed upon several revisions to the Results Framework. The government also requested additional grant funds to allow for further institutionalization of the community driven development model and more time to deepen the engagement of women in community leadership roles, particularly in advance of the 2015 ABG elections. In March 2015, the project was restructured with an AF of US$2.4 million from the State and Peace Building Fund (SPF) to: (1) undertake additional training to further strengthen the capacity of the women’s groups and civil servants operating below the district level to undertake community development in an inclusive and effective manner; (2) undertake two additional rounds of community development projects, increasing coverage from 88% to 100% of Community Governments (CGs); and (3) increasing the number of beneficiaries from around 48,000 to 80,000. Changes are shown in Table 1 below. At the same time, the restructuring simplified the PDO and some of the PDO indicators, which were deemed too complex to measure, particularly “rebuilding of post-conflict social capital at the community level.� The ToC remained broadly the same but the outputs and outcomes were more simply articulated. The revised PDO and PDO indicators are reflected below. Revisions to the Results Framework PDO Initial Revised To contribute to the rebuilding of post- conflict social To increase the provision of community-prioritized capital at the community level services and income-generating opportunities that are driven by women’s groups in Bougainville PDO Indicators Initial Revised Increased involvement of women in community-level Women involved in grant implementation and/or decision-making compared to pre-conflict period training that feel significantly more confident in undertaking community development projects Increased engagement of women’s organizations in Villages implementing grants that report significant community development planning and implementation positive change in their perception of the role of women in their community because of the project Page 10 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Increased ability of communities to work together to Dropped address intra and inter community problems and development priorities New Number of Sub Projects Completed Revised Project beneficiaries with improved quality of and/or access to rural infrastructure, services or income generating opportunities. Several key results targets were increased as well, reflecting the AF. Table 1: Project Targets Indicator Original Target Revised Target Project beneficiaries with improved quality of, and/or, access to rural 40,000 (20,000) 80,000 (40,000) infrastructure, services or income-generating opportunities (of which are women) Subprojects completed 41 126 Participants trained in topics related to inclusive development 390 890 Revised Components The original components were largely unchanged but implementation arrangements were simplified to scale up the project. Component 1: Building Capacity for Inclusive Community Development The AF supported one more full cycle of the four main training modules, along with increased mentoring to allow for full ABG delivery of the modules in the future, in partnership with the Bougainville Women’s Federation (BWF). Subcomponent 1B supported training to implement the small grant subproject cycle including appraisal training for the Community Government (CG) Appraisal Committee. This training was not specified in the original RF but was found in Phase 1 to have a significant impact on participant capacity in managing small grants and project completion. Subcomponent 3B, Knowledge Sharing, was shifted from Component 3 to reflect the capacity building dimensions of these activities. Component 2: Small Grants for Inclusive Development This component (Phase 2) provided financing for an additional two cycles of 41 small grant projects (82 in total); two in each of Bougainville’s 43 CGs. Subcomponent 2B, Technical Assistance Support Packages, was dropped as its implementation was overly complex. Instead, support for small grant activities came from the project team and consultants engaged through Component three. Component 3: Project Management, Monitoring and Evaluation Page 11 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) This component financed the core project management functions including, financial management, environmental safeguards, monitoring and evaluation. In addition PIU supplied technical assistance was financed from this component. nadd II. OUTCOME Assessment of Achievement of the Objective With the additional financing provided in March 2015, the Bank team and ABG took the opportunity to revise the PDO wording and related results framework, since the initial PDO was too broad and complex, and the PDO indicators were particularly difficult to monitor. However, the overall aim of the project and its components and activities essentially remained unchanged, as noted in the revise project document. As such, it is proposed the ICR does not undertake a split evaluation but rather measure progress against the revised PDO and indicators, particularly given the evidence for the achievement of each PDO is the same.2 While a monitoring framework was developed and a capacity needs assessment undertaken at the beginning of the project, limited monitoring was undertaken until after the 2013 Midterm review. Further, there was no comprehensive evaluation of the project undertaken. This, and the complexity of the original PDO, made assessment of the project achievements difficult, so this assessment necessarily draws on a range of evaluative material and assessments undertaken at various stages of the project, as well as an additional beneficiary survey undertaken at the end of the project. To supplement the project’s M&E effort and third party monitoring, in 2013 with the support of the Australian Aid Agency (AusAID), a PNG-based consulting firm was contracted and established an Independent Monitoring Team (IMT) to provide an independent source of qualitative information on project implementation. By mid-2014, IMT had conducted three monitoring missions, and assessed 50% of the sub-projects. The final report concluded that public goods from the project were reaching the communities with minimal leakage and that women’s roles were being strengthened through their direct management, ownership and leadership in the whole process. These relatively positive evaluations supported the AF in 2014, at which time the PDO and RF were revised in the Project Paper of March 2015. In addition to the work of the IMT, the project contracted an independent consultant to undertake an Outcome Monitoring and Evaluation Report in February 2016, followed by a beneficiary survey that was conducted in December 2018. Both assessments were undertaken in recognition of the limited evaluative data available to assess outcomes and impacts of the project. The beneficiary survey included focus group discussions (FGDs) with 51 women’s organizations implementing subprojects, key informant interviews with both women involved in project implementation and secondary stakeholders for each subprojects. While the beneficiary survey highlighted both positive outcomes and challenges, almost all individuals who participated in the project identified positive benefits from their participation including improved capacity, enhanced confidence, and obtaining greater respect from and ability to work with others in the community. These individuals also expressed positive benefits to their family, and the community. Similarly, the majority of focus groups considered that the projects met a community need, with more than 90% of focus groups giving a 3 out of 4 rating for ‘relevance’. In addition to the findings of the beneficiary survey and earlier evaluations, the Bank’s own supervision reports reflects the impacts of the project on communities. Further, DFAT funded program Pacific Women undertook a number of case studies of IDIB as part of its midterm review of DFAT’s overall support to Bougainville. It is confirmed that the design considered the challenges that conflict had brought to community cohesion, local development efforts and women’s status, and responded with a credible approach to building capacity and confidence in both local government and women’s groups, to bring communities together. Further, despite some significant challenges with project start-up, the project was able to 2Note that the ICR guidelines allow for this in the event that the (original) PDOs are so broad or vague as to preclude any meaningful outcome evaluation. Page 12 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) reach and exceed targets for training and community projects, and various assessments point to considerable gains in women’s confidence and capacity. Revised PDO The PDO was simplified and sharpened in 2015, in the context of the AF, “To increase the provision of community prioritized services and income generating opportunities driven by women and women’s groups in Bougainville�. The revised PDO had the following key indicators: 1. Sub-projects (identified and prioritized by women and women’s groups) completed; 2. Villages implementing grants that report significant positive change in their perception of the role of women in their community; 3. Women involved in grant implementation and/or training that feel significantly more confident in undertaking community development projects; and 4. Direct Project beneficiaries, of which female. In assessing the efficacy of the project, the PDO is unpacked into its two parts: 1.) Increase in the provision of community prioritized services; and 2.) Increase in income generating opportunities driven by women and women’s groups in Bougainville. Assessment of PDO outcomes- 1.) Increase in the Provision of Community Prioritized Services: At grant closure on 31 December 2018, out of target 126 sub-projects, 112 sub-projects were completed and certified. Of the remaining 14 sub-projects, nine were at various stages of physical completion and five were identified as problem projects unlikely to be completed at any time.3 It is anticipated that 121 out of 126 funded subprojects (96%) will ultimately deliver expected public assets to their communities. The project covered all 43 Community Government (CG) areas in Bougainville. The Project was able to train 1333 people from local communities, women’s groups and the Department of Community Development, 93 8 of which were women- well above the target of 600 women. This training clearly helped women’s groups undertake through an inclusive community process to identify and manage subprojects nearly all served key needs in the community. The project purposely focused on women’s organizations as agents of change by engaging them as the managers of public funds for small infrastructure projects, and as such was able to increase the confidence of women to undertake such subprojects and change perceptions in the community of women’s role. While all sub-projects were designed and managed by women’s groups, most women’s groups worked with community leaders and youth groups to plan, decide on and implement the projects. In a number of communities, particular effort was made to bring people with disabilities into the project implementation process. 3 According to the project guidelines, subproject completion had to be verified through a project team certification process, which proved extremely difficult to complete in the remote areas of Bougainville, where staffing issues exacerbated delays in carrying out certification, particularly following the closure of the project team unit. Thus, physical completion of subproject infrastructure was higher than formal completion rates, and by the time of the ICR mission in May 2019, another ten subprojects had reached ‘formal completion’.. Five subprojects have been identified as problematic and will be cancelled. Page 13 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) The focus on inclusion is evident otherwise as well. First, despite concerns raised by the Bank team, the Bougainville Women’s Federation, the ABG and the project team all insisted that all 43 community government areas needed to be included in the project. The inclusion of all areas added to the difficulties of administration and implementation across a myriad geographic terrain but ensured that no community government area was left feeling aggrieved. This was particularly important in the post-conflict context where various grievances between communities remain. The women’s organizations that received grants for community infrastructure identified projects that provided a common good and reached the most people. In no case was there reporting of various assets being coopted for personal or private use. In many communities the women mapped out the geography of the community and specifically focused on equitable access to the community good. For example, spreading the water tanks across the community, when grouping them under a single roofing catchment may have been easier. In some instances, the women’s organization extended the benefits of the subproject to neighboring villages, for example, in the case of gravity-fed water supply being extended, or, a resource center being a facility for all women’s groups in a ward. Table 2 below provides a list of all sub-projects, described in more detail below. Type of subproject Number Percent Initiated of total Water Supply 54 42.9 Resource Center 30 23.8 Classroom/classroom renovation 14 11.1 Livelihood training and support 5 3.8 Awareness and Capacity Building 5 3.8 Aid Posts 7 5.6 Market House 5 3.8 VIP Toilets 3 2.4 Access Road 2 1.6 Aid Post Staff House 1 0.8 Total number of projects 126 100% Water supply projects were the most common and were particularly beneficial for women and children who were previously charged with walking long distances to collect clean drinking and cooking water. Access to fresh, clean water is an issue in many parts of Bougainville. For example, for some of the atolls, community members (often women) would have Page 14 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) to travel to the mainland almost daily to collect water. Other benefits included enabling extra time for other productive activities; being able to grow vegetables in the dry period and wash vegetables in preparation for market; and a reduction in water borne diseases and a general improvement in health status, although there is no data to support such. The women’s groups paid particularly attention to the distribution of water supply systems, ensuring that all parts of the community were covered.4 Water supply systems included the installation of water tanks or the installation of piped water systems, either through gravity-fed systems or pumps. In at least half of the communities where water supply projects have been implemented, the women’s groups have extended the size and reach of the supply through raising community contributions; in other communities the women’s groups have supported neighboring villages to install or extend water supply systems. Market houses also provided a place for women to come together and to earn a regular income. Classrooms were built in communities where either the existing school was over-crowded, or the shelter being used was inadequate. Aid posts were also built in places where community health worker had nowhere to treat community members. Such posts provide a more professional environment for aid workers to undertake their work, and increase community access to health care, which is particularly valuable to pregnant women and mothers caring for young or infirm family members. Resource centers were particularly important in many communities as community spaces where different parts of a community, or multiple communities, could come together. Women often remarked on the importance of these community spaces in post-conflict contexts, evidenced by the fact that many of these buildings were used for reconciliation meetings and processes, elections and election monitoring during the village elections, and referendum information and education sessions. Most of the centers served as a training location for various capacity building initiatives. Resource centers also provided income to the women’s groups when rented to other users as venues for training, workshops and accommodation. Being inclusive, in terms of coverage of all community government areas, was a logistical challenge for the project management team, who endeavored to provide mentoring, practical support and to monitor implementation progress. Equally, for the more remote communities, accessing advice, building materials and skilled trade persons was challenging. However, given the post conflict context, the ABG Department of Community Development and the Project team felt it was important to support all community government areas equitably, and, despite challenges, managed to implement projects in all geographic areas (as planned under the project concept). As a project supporting women’s groups, IDIB did not focus on supporting them in typically ‘women’s spaces’ (e.g., craft, sewing, baking). Rather, women’s organizations were working in public spaces to deliver public goods often decided on by community elders who are often men. Working in this public space afforded women more visibility and ultimately respect and tended to ensure that men and women worked together. The IMT reports from 2014 and 2015 indicate that while the women’s groups had successfully included men and youth in many aspects of subproject implementation they had maintained control of financial management and overall decision making. The IMT also confirmed that the socio-political role of women was being strengthened by channeling money through women’s groups, with women being the key decision makers in subproject implementation. The IMT quotes a district level public servant talking about the impact of the project on women: “The women who have participated in IDIB have grown their confidence in speaking and acting publicly. The 2020 ABG elections will see many of these women run as candidates, and some will get elected.� However, it is important to note that the same report noted that a few sub-projects had critical weaknesses and would require a dramatic increase in support from outside of the community to succeed. These weaknesses ranged from needing guidance, facilitation of community engagement, technical assistance and in some cases attention to M&E and financial 4 World Bank field report 2018. Page 15 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) management. The 2016 Outcome Monitoring and Evaluation Report in February noted that the perceptions of women in the community had reportedly increased because they had managed and produced a tangible outcome for the whole community be it water supply, a classroom, a market house, or a resource center. Each of these public goods was seen to provide ongoing benefits to the women and the broader community. Similarly, the focus groups undertaken as part of the beneficiary survey also indicated a positive impact on community perceptions of women’s role in the community. The majority of focus groups felt that women could successfully run projects, and that women had gained confidence and new skills to run such projects. “The whole community has supported the project, and the project was completed on time and is being used. Women are confident and the villagers both men and women have indicated trust and respect for the women involved. It has also built women’s confidence and women have also been appointed to the community village government. Overall a successful project in all aspects.� The beneficiary survey did, however, also find that community perceptions waned in areas where subprojects were delayed waiting for payment of the second tranche. On the one hand, where the subproject had been completed, there was significant positive change in the perception of women as implementors of successful projects and they are being worthy of appointment to other arenas of responsibility. This occurred even when there may have been an initial lack of support and cooperation from the secondary beneficiaries. On the other hand, when the subproject had stalled, due to delays in availability of tranche 2 funds, the blame was likely to be attributed to some defect on the part of the women, such as lack of transparency with the funding, and labor contributions withdrawn. The initial design which insisted on 100 percent acquittal of the first tranche before the release of the second tranche of funds, proved to be unrealistic and may have exacerbated project delays, which in turn had negative impacts on the perception of the women’s group involved. At the same time, women’s groups from the first round of grants noted that delays or issues were soon forgotten once the project was in fact completed.5 Months after completion of round one projects, women and men continued to report improved working relationships in their community; women’s groups had also gone on to start other projects. In terms of the impacts of managing projects, the 2016 Independent Outcome Monitoring and Evaluation Report assessed on average a 77% increase in confidence of women to implement development project.6 The report also found that in a significant number of subproject sites women still lacked confidence and required further training to participate fully. This must be understood in the context of: (i) in Phase 1, sub-project activity was started before the training program began and therefore work based learning and project management capacity was limited; and (ii) only two executive members from each women’s organization were trained. With some women’s groups having in excess of 100 members (e.g., Domana Women’s Group in Panguna), there will be women members who inevitably have not gained personal confidence through training or implementation to undertake other development initiatives. All of the women participating in the Focus Group discussions during the beneficiary survey in November 2018, agreed that they would use their skills if given the opportunity to implement another project. Similarly, an overwhelming majority of those interviewed noted that they have the capacity to support future project implementation within their community. At the same time, women also noted costs of their involvement in the project, including reduced time that respondents could spend on personal or family commitments, a lack of support or criticism from the community, or issues related to funding and costs. Concerns about the limitations on the amount of funding were raised by a number of women’s groups 5World Bank Field Report Dec 2018. 6A numerical score rating out of 10 was allocated for each PDO. The scores represent PDO qualitative assessment of performance made by the M&E team undertaking the research. Page 16 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) who considered the grant amounts insufficient. As noted below, community contributions were used to complement the grant funding amounts in most communities. There is a range of evidence that those who have had the experience of implementing projects have continued to develop in various leadership roles. Twenty-three women executives have been elected to become Ward members and two women are Chairpersons of their CG. The women attributed their involvement with the project as a personal confidence builder and a change in community perceptions on their ability to carry out community responsibilities. Besides taking on local government roles, many women have executive responsibilities in their respective community’s pre-schools, primary schools, clinics, resource centers and markets. Many of the women’s groups have continued to work on extending the project and/or developing new projects for their communities. The Project reached 98% of the target 80,000 beneficiaries (98%), and the 37,523 female beneficiaries represent nearly 94% of the target 40,000; these percentages are well within an acceptable results margin. 2.) Increase in income generating opportunities driven by women and women’s groups in Bougainville While there is limited systematic data on income-generating aspects of the projects a range of indirect and direct impacts are recorded in project monitoring, supervision reports and project evaluations. Further, the Theory of change expects that building women’s confidence and capacity in key areas will have an impact on women’s economic activities. It is also important to note that in the majority of cases women’s groups chose to focus more on Public services rather than livelihoods activities. During focus groups for the beneficiary survey it was noted that the focus on broader community needs was key in the post conflict contexts where communities were focused on rebuilding trust and social cohesion. This said, some direct income-generating opportunities were provided by the new women’s resource centers, livelihoods training and the market places, which made up around 30% of the sub-projects. Project documentation indicates that nearly all of the Women’s resource centers provide rental income to women’s groups and also provide a space to run training programs to both members and others in the community. In many cases the resource centers brought together women from surrounding communities to participate in community activities and various livelihoods training programs. Market stalls provided a clean, accessible and consistent environment for selling wares. During project supervision women operating markets stalls consistently reported that the new market places had improved their ability to sell their wares and keep their products fresh (out of the sun etc.). The Pacific Women MTR case studies highlighted how in one community a resource center has had transformative ripple effects supporting a variety of local income generation schemes (see Annex 3). The smaller number of livelihoods trainings programs, which included the supply of sewing machines and ovens for baking, directly aimed to enable the women’s groups to increase their income-generating opportunities; at the time of project completion the women’s groups were continuing to use the machinery provided to do tailoring and baking. Women in the beneficiary survey also reported indirect benefits in terms of financial literacy. Several training modules focused on financial literacy and accounting, which were required for project reporting and acquittal. These trainings activities were seen as helpful for more general financial management of the family income. All women’s groups o pened bank accounts to receive project funds; many of the groups reported a continued use of these bank accounts. Overall the project was largely able to deliver on its efforts to increase the capacity of women, women’s groups, and other relevant agencies, which in turn increased economic opportunities. An undated report7 (but probably 2012) on the capacity needs assessment survey stated that more than 70 percent of women’s organizations and CSOs required serious capacity development in all areas of organizational capacity. In June 2012, 18 United Research Services (URS) Sustainable 7Capacity Needs Assessment of Women’s Organizations and CSOs in Autonomous Region of Bougainville (Final Draft report) by Paulina Siop, Komuniti Hanmak Consulting Ltd with assistance from Lesley Bennett, PNG Chamber of Mines and Petroleum. Page 17 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Development was contracted to develop training modules and schedule training for the first round of women’s groups chosen to manage sub-projects. Unfortunately, this training took place after the first tranche payment of project grants was made to communities, given the need to ensure disbursement and completion of sub projects before the original project closing. Nevertheless, five training modules were delivered in three regions of Bougainville as planned, during the first phase of the project and reached 450 people, including both civil servants and leaders of civil society organizations. Training modules covered: training skills, participatory planning, monitoring and evaluation, and importantly financial literacy and management. Participant evaluations were very positive with participants finding the training appropriate and useful. Between 2015 and 2018, one more full cycle of four of the main modules- including project management, financial management, procurement and M&E- was financed with additional mentoring to allow for full ABG delivery of the modules in future in partnership with the Bougainville Women’s Federation. As noted above, in total, the project trained 1,333 participants of which 395 were men and 938 were women8. This exceeded the targets of 1000 (and 600 women) set out under the restructured project. Each women’s organization sent their Chairwoman and one other office bearer to each training module. In many cases the two women attended all five project training blocks. The men trained in Phase 1 were predominantly executive officers of the Council of Elders (COE) - before the roll out of the village government elections. In Phase 2 under the Additional Financing, men trained were predominantly from the Department of Community Development and Administration Officers of Community Government. Over 90 percent of participants in each course indicated in their post training self-evaluation that they either “agreed� or “strongly agreed� that they understood the topics covered in each of the training modules. DCD reported that project training and workshops delivered in 2016 were highly scored by over 95 percent of participants and the conclusion of Phase 2, DCD reported9 that most women felt empowered and strengthened through the training they had attended. Overall, women were reportedly being more confident in being able to undertake further development projects and related activities. Overall Outcome rating of the Project The above analysis demonstrated the efficacy and relevance of the project. The project remained extremely relevant throughout. The project directly contributed to the CPS Pillar 2 aim of “delivering gender-equitable improvements to lives and livelihoods�; this priority was advanced through the engagement of women in community development , the resultant increase in access to basic services in all Community Governments (CGs) across Bougainville, and the improvement in livelihoods opportunities. Further, the project supported the ABG and GoPNG priorities of promoting peace and community development in Bougainville. Various monitoring and evaluation reports have shown that the infrastructure and services provided are already benefiting communities, have impacts on the confidence and perceptions of women and women’s groups, and have served to bring communities together. The success of the project in providing much needed infrastructure in such a low capacity environment in of itself is a major achievement. The CDD modality of the project enabled communities to build low cost infrastructure whilst helping to build the credibility of the national and ABG governments in a post-conflict, low-trust environment. The focus of the project on building the capacity and capability of women’s organizations to not only engage with their communities but to also engage in the development process was significant for the particular environment in Bougainville where social cohesion and women’s voice had been significantly undermined by the conflict. The return of women to key roles in community decision making and as agents of development, was a significant success of IDIB. 8 The participant figures do not represent 938 individuals who were trained, as some women were involved in multiple trainings. 9 Based upon post training self-assessments reported in six monthly progress reports by DCD and validated by the Beneficiary Assessment. Page 18 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) While the project maintained high relevance and the generally substantial achievement of most objectives and outcomes the project, a number of issues affected overall performance. In particularly the Monitoring and Evaluation of the project was limited and made it difficult to quantify and/or document many of the achievements of the project. Further the project faced a number of delays and struggled to supply the necessary technical assistance to various community groups, particularly those in remote areas. Given these shortfalls, the overall rating of the project is rated Moderately Satisfactory. Page 19 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Other Outcomes and Impacts Catalyzed substantial community contributions and further fundraising for community development Nearly all the communities involved in the project mobilized substantial community contributions in the form of financial contributions and donated resources such as timber and labor. In all cases, land was donated voluntarily for community infrastructure. In many cases, women’s groups mobilized additional funds from the local Member of Parliament or local business people. Unfortunately, community contributions were not systematically tracked so it is not possible to provide the exact amount of contributions. However, the impacts of these additional contributions are seen in the expanded nature of many of the subprojects implemented. In many cases, the size of a planned resource center or classroom was substantially increased to enable the incorporation of more rooms for homestays, training etc. Similarly, many of the water supply subprojects were expanded with community contributions to cover more members of a dispersed community, or to expand to another community. Some women reported that the experience of raising money and using it to improve their activities gave them the confidence to plan for other projects with their group. Increased capacity and ownership of the project by the DCD Another impact that also enhanced the effectiveness of the project was the level of engagement and ownership by the ABG DCD. The inclusion of DCD officials in all the various training modules was critical in building linkages between the government and community groups, and also in building the capacity of the DCD itself. Given the severe staffing constraints on the project, much of the liaison, technical support and monitoring work was dependent on DCD officials. Indeed, almost 90% of beneficiary survey respondents considered that the technical support provided during the program- from both the Project implementation unit and the DCC- was sufficient, with many respondents commenting that the support was “very helpful�. It is hoped that this capacity will continue to enhance DCD’s capacity to support community development acros s Bougainville. Training manuals and operating procedures have been handed over to DCD to support ongoing programs supported by UN Women. Further, DFAT is preparing a new community level project that will also involve DCD and will draw on the various capacity building materials developed under the project. Promoted social cohesion A striking outcome of the project which is hard to quantify – but which has been reported by community groups during field visits by the Bank and ABG teams - is the level of intra and inter community engagement with the various project activities, and the way in which the women’s groups used the projects as a platform to bring various aspects of the community together. The women’s groups invariably included community leaders, youth groups, and particularly vulnerable groups in each stage of the process. They also used the project as an opportunity to bring networks of women’s groups together and in a couple of resources centers where built as a ‘hub’ for a network of women’s groups in a particular region of Bougainville, even if the ownership and management was done by one of the groups. Once completed, the women’s resource centers have been used for a range of reconciliation events and for information and awareness sessions for upcoming trainings. It was clear throughout the project implementation that the women’s groups saw the specific activities supported by the project as part of a much larger role they play in the community. III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME IV. Page 20 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) ABG’s limited capacity, and an inherent skills shortage in Post Conflict Bougainville, led to substantial delays in project implementation. The project became effective in March 2011, however one year passed before the first elements were put in place: establishment of designated account and the first disbursement; drafting of an Operations Manual; and the hiring of (two out of five) project team members and project consultants. The hiring and retention of suitably qualified project staff was an on-going difficulty, both within and for DCD, given the overall skill shortage created by the departure of Bougainvilleans during the years of conflict. Seldom during the eight-year period of the project was the project team at its full capacity of five full time officers; technical consultants to help with various outreach activities were equally hard to find and retain. The project design underestimated the time required to identify capacity building needs, design training modules, and conduct training in various parts of the region. For example, the first round of grants was implemented prior to capacity training due to delays in contracting a training firm and developing training modules. The impact of sequencing shift on Phase 1 subprojects was reported by the Independent Monitoring Team (IMT) who assessed implementation difficulties on 20 of the 41 funded subprojects. The IMT found that many subprojects visited had extremely limited or no external TA from the project team, ABG technical services or other ABG officials, including project training that should have preceded receipt of grants. Given staffing issues and capacity constraints within the Department of Community Development, community groups often received limited technical support. DCD was encouraged to provide resourcing for subproject grant recipients through various avenues: (i) the network of District Community Development Officers (DCDOs) on areas such as procurement, financial management, acquittals and progress reporting; (ii) Division of Technical Services for design review, supervisions and technical audit on completion; (iii) Department of Mining for support in reviewing environmental safeguard plans; and (iv) as a supplement to these Divisions, the recruitment of “on call� experts on water supply, building construction and financial management. Although the original project design provided for technical assistance (TA), the actual delivery was often challenging, particularly for remote areas. As a result, Phase 2 of the project dropped the TA support packages, support to community groups was shifted to the project team, though this team itself was extremely stretched. Nonetheless, it is striking how much the project team managed to accomplish and the level of support it was able to provide to a large number of communities. Many communities’ groups spoke of the outstanding support they received from the project team.10 Constrained capacity to draw down grant funds created delays at various times in the project, given the ceiling set for the project. A concentrated effort by the financial officer to follow up subprojects and to clarify expenditures and receipts alleviated the problem and the ceiling was also raised. Delays were also experienced in the first round of projects who needed to acquit 100 percent expenses before receiving the second trench payment. To overcome this issue, the acquittal requirement for Round 2 was reduced to a more realistic 80 percent before tranche 2 was disbursed. Finally, the lack of a clear base line and adequate M&E made it challenging to assess progress and capture some valuable lessons the project may have produced. A major shortcoming of the assessments undertaken by the IMT was that they were completed before Phase 2 subprojects were funded. The 10 World Bank Field Report Dec 2018 Page 21 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) beneficiary survey provided much needed data for specific results indicators but did not look at broader issues of social change. IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME Bank Performance at Appraisal The Bank team identified some critical issues that the communities and government in ABG faced. Women needed support to maintain the voice and role they had played during the peace process, communities needed critical infrastructure, and trust in government needed to be rebuilt. In the post conflict context, with limited state reach, a CDD model was appropriate. The program also complemented a range of peace-building initiatives aimed more at male ex-combatants and the new fledgling government. While the Bank team correctly identified many of the fragility risks, the capacity limitations to establishing a new project in a post conflict context was underestimated. The original PDO and PDO indicators were overly complex and proved too difficult to measure, which impeded the PIU’s ability to adequately monitor the project over the first few years and ultimately led to the need for restructuring. Similarly, the project itself was too complex for the capacity and experience of the ABG agencies and women’s organizations implementing the subprojects and expected unrealistic levels of financial and project reporting. This resulted in a slow start-up and a subsequent change to sequencing of capacity building and subproject implementation that was not optimal to the achievement of the PDO. It took a year to draft the first Project Operations Manual (POM). The PDO, result indicators and POM were all simplified when the project was approved for AF but remained somewhat complex for such a project and context. Bank Performance in Supervision As with many small trust-funded operations, the supervision budget was too small11 making much needed hand holding difficult. Over the course of the nearly eight years of project implementation, there were five full implementation support missions and seven technical missions on record, although it is reported that a range of missions were undertaken prior to the formally reported missions. Formal supervision reports were not consistently prepared until after the restructuring. This limited supervision meant that some challenges were not addressed in a timely manner. At the same time, with the support of DFAT, monitoring efforts were scaled up over time, including the range of external monitoring reports listed above. Pacific Women also undertook some independent reviews and produced a case study of IBID which were also useful in assessing the impacts of the project. The use of small, less expensive technical missions to support key aspects of the project enable the team to stretch the limited supervision resources as much as possible. Compliance The project complied with Grant covenants and applicable Bank policies, including those relating to financial management, procurement, environmental and social safeguards. The financial management (FM) system developed was reasonable. While the recruitment of a finance officer was slow in the first stage, with considerable financial management supervision support, the DCD 11 60,000 USD per FY for the life of the project, with no budget allocated for the final year of operation. Page 22 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) and project management team project put in place adequate arrangements to disburse, account and acquit funds, and report transactions. Bank FM implementation support was challenging given the remote location of the project and dispersion of the sub-projects. Eight FM supervision missions were conducted on-site, and frequent ongoing (virtual) support provided by the FM Specialist. A supplementary measure taken was for the project Finance Officer to travel to Port Moresby on occasions for additional support when the FMS was in-country. The FM arrangements for this CDD project were relatively straight-forward and satisfactorily maintained, however there were risks as the project relied heavily on the dedication of the Finance Officer (key person) who maintained a spreadsheet-based accounting system. In addition to the close supervision/support, efforts were made by the Bank and the project to strengthen the FM arrangements by proposing the purchase of accounting software, outsourcing to a private audit firm (cloud-based), and integrating with DCD Finance, however these initiatives did not eventuate due to the capacity constraints, and hence are lessons learned for consideration in future projects. Acceptable Interim Financial Reports (IFRs) and Annual Financial statements were consistently presented over the life of the project. The project consistently received unqualified (clean) audit opinions but the audited financial statements were often submitted to the Bank late, largely due to the challenges in conducting audits in the remote locations and delays in issuing the audit opinion in the Auditors Generals Office (AGO). The AGO has responded and has accelerated the audit work for both the 2017 and the final audit for the (closed) project and is expected to issue the audit opinions soon. There were no compliance issues with procurement policies or the Bank’s safeguards policies. The project is categorized as environmental safeguard Category B and triggered the Bank’s environmental safeguards policies on Environmental Assessment (OP4.01) and Indigenous Peoples (OP4.10). The Environmental and Social Management Framework (ESMF) was disclosed in-country on November 25, 2014. Environmental checklists were part of the design of all subprojects. Again, the complexity of the instruments made them difficult to use. After approval of the AF, a specialist consultant to work on environmental and social issues was proposed for Phase 2 and procedures were simplified. Whilst the specialist consultant was never recruited, a simple checklist was developed and used. Community Land User Agreements (CLUA) for the donated land were signed for nearly all projects; projects that did not have a CLUA have been reviewed by the project team and deemed to have no outstanding land or other social impact issues. Risk to Development Outcome The overall risk to the sustainability of the development outcome is assessed as substantial. The project has made important gains in building capacity within women’s groups and testing the CDD model for delivering small infrastructure and services. These gains are fledgling however, and as evident in many other environments, several rounds of grants and engagements are necessary to build social cohesion and local community capacity. Without a follow on project, or financing from other sources, the momentum built by the project may wane. In addition, if tensions increase as Bougainvillians need to make a decision about whether they want independence and/or whether they want to restart various mining activities, this may undermine social cohesion and the collective gains of women. The upcoming referendum on Independence has placed a great deal of stress on the government and communities; the strength of women’s groups remains key to community resilience. Additionally, while the DCD, and its sister agency Department of Community Government, is very keen to continue using this model, it is not clear if they have the capacity or resources to undertake and carry this training beyond project life. Another risk to sustainability to the development outcomes is lack of attention to operation and maintenance (O&M) of the subprojects, which could serve to undermine long term functionality of Page 23 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) community prioritized services and income generating opportunities. To address this risk, the project worked with the women’s organizations implementing subprojects to have O&M plans. This was a requirement of formal completion and certification. All 112 completed sub-projects had O&M plans. The strong ownership the women showed in developing the projects, and often continuing to work on project expansion, also serves to mitigate against this risk. V. LESSONS LEARNED AND RECOMMENDATIONS Several lessons can be drawn from the experience of the IDIB project: The most important lesson from the IBID project is the need for simplicity and practicality in the design of projects in post conflict contexts. In such contexts, where capacity is usually particularly low yet building trust in government is extremely important, ensuring simple, realistic and achievable project objectives and results is key. Project processes, guidelines and operations need to be tailored for fragile, post conflict situations, allowing for a slow start-up, longer timeframes, and additional support to government counterparts. Projects overall also often require much longer timeframes, to build sustainable results and ongoing stability. In addition to the post conflict context, the project also highlighted the complexity of working in remote areas, which also require additional tailored resources and time. In such contexts additional Bank supervision, hand-holding and technical support are essential. In such complex contexts, different methods of operationalizing M&E need to be designed. For both low capacity and remote locations, easier means of results verification, progress and beneficiary assessment need to be designed. In such contexts technologies that capture real time information such as Geo Tagging (the process of adding geographical identification metadata to media such as photographs, video and messages) on cameras or mobile phones, using such information for project completion verification or using mobile phones for beneficiary assessments could be explored. At least, extremely simple monitoring tools are required. A second lesson, directly related to the first, is the need to adequately manage expectations around the pace and expected results of such projects. Expectations need to be managed both inside the Bank, and with clients and other stakeholders- all of whom are often very keen to see rapid positive progress or rectification of past grievances. Managing expectations around the pace of change is fundamental to supporting ongoing peace. Finally, the project highlighted the value of working with and supporting women groups in post conflict contexts. Bringing women into more traditionally male roles and spaces- by focusing on the provision of public goods and services, rather than specifically ‘women’s issues’- seems to have greater impacts on both self-empowerment and the perceptual change of others towards women and their organizations. Women drive inclusive development in a range of ways- including ensuring that all communities were covered, that various groups within a particular community benefit, and expanding the footprint of the project. Women were also seen to bring men and youth into the process and to ensure inclusion of all groups in the communities. The results of IBID demonstrate how women can be effectively mobilized as agents of change in rebuilding social cohesion and capital. . Page 24 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS a A. RESULTS INDICATORS A.1 PDO Indicators Objective/Outcome: (a) Strengthening the capacity of women’s organizations and civil society organizations that support the involvement of women in development activities and which advance the priorities of women in dev Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Sub-projects completed Number 0.00 41.00 123.00 112.00 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 Comments (achievements against targets): Out of 126 sub grants awarded, it is likely that only 5 problem projects will not be completed. While at the time of grant closure 90% of grants were complete, it is expected that another 7% will be completed by the communities in the next few months. Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Villages implementing grants Percentage 0.00 0.00 80.00 82.00 that report significant positive change in their perception of 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 the role of women in their Page 25 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) community Comments (achievements against targets): This was changed from the original indicator of "Communities report increased engagement of women in community development planning and project implementation", for which the original target was 50%. Changes in perception was see as more meaningful. Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Women involved in grant Amount(USD) 0.00 0.00 80.00 91.00 implementation and/or training that feel significantly more 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 confident in undertaking community development projects Comments (achievements against targets): Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Direct project beneficiaries Number 0.00 40000.00 80000.00 78336.00 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 Female beneficiaries Percentage 0.00 20000.00 40000.00 37523.00 Page 26 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 Comments (achievements against targets): A.2 Intermediate Results Indicators Component: Building capacity for Inclusive Community Development Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Participants trained in topics Number 0.00 390.00 1000.00 1333.00 related to inclusive development 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 Participants trained in topics Number 0.00 165.00 600.00 938.00 related to inclusive development who are women 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 Comments (achievements against targets): Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Increase in training participant Percentage 0.00 30.00 30.00 65.00 knowledge of topics related to inclusive development (pre and 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 post test) Page 27 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Comments (achievements against targets): Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Knowledge sharing and Number 0.00 0.00 19.00 34.00 networking events 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 Comments (achievements against targets): Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Residents of beneficiary Percentage 0.00 0.00 50.00 40.50 villages that participated in subproject consultation 02-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 meetings Comments (achievements against targets): not in original RF Component: Small Grants for Inclusive Community Development Indicator Name Unit of Baseline Original Target Formally Revised Actual Achieved at Page 28 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Measure Target Completion Residents of beneficiary Percentage 0.00 0.00 50.00 40.50 villages that participated in subproject consultation 02-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 meetings Comments (achievements against targets): not in original RF Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Community contribution in the Percentage 0.00 0.00 20.00 20.00 total project costs (percentage) 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 Comments (achievements against targets): Not in original RF. From all supervision reports is it clear that the contributions were much more than 20%- in most projects communities raised an/or contributed at least half of the costs of the project. However given there is no systematic data available to verify this the team has left it at 20%. Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Sub-projects with post-project Percentage 0.00 0.00 100.00 90.00 Page 29 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) community engagement or 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 O&M arrangements (%) Comments (achievements against targets): While key to sustainability, this result was not included in the original RF Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Female small grant bank Percentage 0.00 0.00 95.00 98.00 account signatories with check signing authority for the first 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 time Comments (achievements against targets): Component: Project Management and Knowledge Sharing Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Knowledge sharing and Number 0.00 0.00 19.00 34.00 networking events 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 Comments (achievements against targets): Page 30 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Grant projects facing Percentage 0.00 25.00 5.00 4.00 significant implementation problems 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 Comments (achievements against targets): Of 126 sub projects awarded, 112 were completed by project closing. Of the 14 not 100% completed, 9 are between 50-90% complete and expected to complete community projects. However 5 faced challenges that could not be resolved. Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Quarterly Financial Reports Number 0.00 0.00 31.00 31.00 submitted on time 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 Comments (achievements against targets): Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Annual Audit Reports Number 0.00 0.00 5.00 4.00 completed on time 31-Mar-2011 31-Mar-2011 31-Mar-2015 31-Dec-2018 Page 31 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Comments (achievements against targets): Page 32 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) B. ORGANIZATION OF THE ASSESSMENT OF THE PDO Objective/Outcome 1: Increased capacity of women and women’s groups to manage development projects Outcome Indicator Target Actual at Completion Comments Sub-projects completed by the end of the project 126 112 (89%)_ This is the number of projects completed of the 126 projects of approved community subprojects that were completed during the life of the project. Women involved in grant implementation and/or 80 91 training that feel significantly more confident in undertaking community development projects Villages implementing grants that report significant 80% 82% Based on mid term review and beneficiary positive change in their perception of the role of survey women in their community (Percentage, Custom) Female small grant bank account signatories with 95% 98% The majority of women’s groups had not check signing authority for first time previously had check signing authority Number of direct project beneficiaries 80,000 78,336 88.89% Intermediate Indicators Target Actual at Completion Comments Female beneficiaries 40,000 37, 523 Increase in training participant knowledge of topics 20 65 Based on training self-evaluations conducted related to inclusive development (pre and post test) pre-training and post training (Percentage, Custom) Participants trained in topics related to inclusive 1000 1,333 development Participants trained in topics related to inclusive 600 938 Female participation throughout the three grant development who were women rounds remained strong and consistently above 60% Key Outputs by Component (linked to the achievement of the Objective/Outcome 1) Component 1: • 126 sub-projects identified by the community, led by respective women’s Page 33 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) groups through a participatory process • 112 Subprojects successfully completed by the community • 90% of those completed sub-projects had O&M plans prepared by the end of the project. • 1,333 community members, including 938 women, trained on participatory planning processes, sub-project management, completion, and O&M. Component 2 • Training delivered to 1,333 people in the community’s covering the range of sib-project implementation areas from identification, design, implementation, and finally O&M. This included other stakeholders in the community including Community Government officers. Component 3 Knowledge sharing and networking events – 34 rounds of training conducted throughout the 3 grant rounds, Objective/Outcome 3: Increased implementation of inclusive community development activities a) Outcome Indicator Target Actual at Comments Completion Approved ward-level sub-projects completed by the 100% 89% This is the percentage of approved ward-level end of the project subprojects that were completed during the life of the project. Intermediate Indicators Target Actual at Comments Completion Community contribution in the total project costs 20% 20% Community contributions (in kind – through (percentage) time and labor, or in cash) was a requirement and built into sub-project budget. There was further support provided in kind support local MPs and business leaders as well as community fundraising activities, though this was not recorded consistently and so not reflected in Page 34 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) here. This points to a high degree of ownership at the sub-national level for this model. Sub-projects with post-project community 90% 64% O&M plans were drafted for all community sub- engagement or O&M arrangements projects during training, however PMU only verified 64% of of the O&M plans have been signed by Committee members hence completion rate is 64% Residents of beneficiary villages that participated in 50% 41% subproject consultation meetings Key Outputs by Component (linked to the achievement of the Objective/Outcome 3) Component 1: • 89% of 126 awarded sub-projects completed, which lead to improvements in quality of basic services, benefitting a total of 78, 336 people. Component 2 • Training provided to 1,333 people in the wards, to help with sub-project identification, design, implementation, and finally Operation & Maintenance activities. Component 3 Page 35 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) . . Page 36 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) ANNEX 2: List of Subprojects Phase 1 S. N Region District Group Name Project Title Completion 1 South Bana Kongarei Women’s Group Access Road 100% 2 South Bana Koro Women’s Group Aid Post 100% Taloba Mama Graun Women’s Water Supply 3 South Bana 100% Group 4 South Buin Ramea Women’s Group Water Supply 100% 5 North Buka Hahela Catholic Women's Group VVA Training 100% 6 North Buka Malasang 1 Women's Group Resource Centre 100% 7 North Buka Mounkoto Women's Group Water Supply 100% 8 North Buka Saput Women Care Group Water Supply 100% 9 North Buka Taiof Catholic Women's group Water Supply 100% 10 Central Kieta Bakakani Women’s Group Water Supply 100% 11 Central Kieta Maresina Women’s Group Water Supply 100% 12 Central Kieta South Nasioi Women’s Group Tailoring training 100% St Mary’s Star of Ocean Women’s Access Road 13 Central Kieta 100% Group Take Women’s Water Supply Water Supply 14 Central Kieta 100% Group 15 North Nissan Poriwon Women’s Group Water Supply 100% 16 North Nissan Siaken Women’s Group Water Supply 100% 17 North Nissan Siar Women's Group Water Supply 100% 18 Central Panguna Babarako Women’s Group Water Supply 100% 19 Central Panguna Itakara Women’s Group Haus Market 100% Vito Catholic Women’s Collective Resource Center 20 Central Panguna 100% Group 21 North Selau/Suir Dorcas SDA Women's Group Water Supply 100% 22 North Selau/Suir GateWay Women's Group Water Supply 100% 23 North Selau/Suir Kokopau CLC Women's Group Water Supply 100% Elementary 24 South Siwai Hukoha Women’s Group 100% Classroom Korikunu Rupumoiku TAA Resource Center 25 South Siwai 100% Women’s Group 26 South Siwai Kunnu Women’s Group Haus Market 100% Elementary 27 South Siwai Pamosi Women’s Group 100% Classroom 28 North Tinputz Hanatana Women’s Group Resource Centre 100% 29 North Tinputz Peniel Women’s Group Resource Center 100% 30 North Tinputz Wasinobus Women’s Group Handy Craft 100% 31 South Torokina Bagana Women’s Group Tailoring training 100% Food production 32 South Torokina Bisirauvu Women’s Group 100% training 33 North Selau/Suir Aravia Women's Group Aid post 100% Lifestyle disease 100% 34 North Atolls Atolls Women's Group awareness Page 37 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Hahalis Healthy Community VIP toilets 100% 35 North Buka Concept Group Petats Community Women's Resource Center 100% 36 North Buka Group Food production 100% 37 North Tinputz Wasutea Women’s Group training 38 South Wakunai Govite Women’s Group Water Supply 100% 39 North Kunua Kepui Women's Group Literacy classroom 95% 40 Central Wakunai Tavera Women’s Group Resource Center 95% 41 North Atolls Carteret’s Women's Group Resource Center 50% Phase 2-Round 1 S. N Region District Group Name Project Title Completion 1 Central Kieta Kavema Women’s Group Water Supply 100% 2 North Kunua Bansia Women’s Group Aid Post 100% 3 South Siwai Siwai Circuit Women’s Fellowship Classroom 100% 4 Central Kieta Dongeta Women’s Group Water Supply 100% Uruawa Community Women’s 100% 5 Central Panguna Water Supply Project Group 100% 6 Panguna Oune Women’s Group Resource Centre Central Maintenance and 100% 7 North Buka Bartania Women’s Group Water 8 North Buka Matsungan Women’s Group Water Supply 100% 9 South Buin Sinuropo Women’s Group Resource Centre 100% Capacity Building 100% 10 Central Panguna Amatato Women’s Association Training 11 North Selau Tuzan Women’s Group Water and Sanitation 100% 12 North Tinputs Raosara Women’s Group Resource Centre 100% 13 South Buin Wisai Women’s Group Water Supply 100% 14 South Siwai Konga Women’s Group Classroom 100% Morokaimoro United Church 100% 15 South Siwai Water Supply Women’s Fellowship 16 North Selau/Suir Batan Women’s Group Resource Centre 100% 17 South Buin Maluoku Women’s Federation Water Supply 100% 18 North Buka Hagus Women’s Group VIP toilets 100% 19 North Tinputs Teop Women’s Water Supply S 100% Teacher house/ 100% 20 Central Kieta Boona Katholik Women’s Group classroom 21 Central Kieta Upper Aropanari Women’s Group Resource Centre 100% Harvest catering & Floral Services Home Economic 100% 22 Central Wakuna Group Centre Bougainville Integrated Classroom/Solar 100% 23 South Buin Community Learning Centre system 24 North Nissan Nehan Women’s Federation Water Supply 100% 25 Central Wakunai Togarao VCC Women’s Group Flush toilets 100% Water Supply 100% 26 North Atolls Iangain Catholic Women’s Group Skillions/Sanitation Page 38 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) 27 North Atolls Nukumanu Women’s Group Aid Post 100% Elementary 100% 28 North Atolls Tantua Women’s Group Classroom 29 North Buka Pororan Women’s Group Water and Sanitation 100% 30 North Buka Tankahi Women’s Group Water Catchment 100% 31 North Kunua Kamuka Women’s Federation Resource Centre 100% 32 South Buin Ibirai Women’s Group Aid Post Project 100% 33 South Buin Lenoke Women’s Group Resource Centre 100% 34 South Buin Tantareki Women’s Federation Water Supply 100% Early Childhood 100% 35 South Torokina Virao Women’s Group classroom 36 North Buka Sinatina Women’s Group Resource Centre 100% 37 North Atolls Hauma Women’s Group Water Supply 70% Women’s Learning 38 Central Kieta Donsiro Women’s Group 25% Centre 39 North Atolls Amotu Women’s Group Water Supply 0% PHASE 2 ROUND 2 S. Region District Group Name Project Title N Completion 100% 1 Central KIETA Davena Women's Group Water Supply 2 Central KIETA Potui Women's Group Resource Centre 100% 3 Central KIETA Karudu Women's Group Water Supply 100% 4 Central KIETA Siedua Women's Group Water Supply 100% 5 Central KIETA Kurai Women's Group Water Supply 100% 6 Central PANGUNA Kopani Women's Group Water Supply 100% 7 Central PANGUNA Orami Women's Group Water Supply 100% 8 Central WAKUNAI Wakunai Women’s Group Water and Sanitation 100% Awareness on Peace 100% 9 North ATOLLS Nukumanu Women’s Group & Reconciliation Early childhood 100% 10 North ATOLLS Pateyo Women’s Groups classroom 11 North ATOLLS Lesila Women's Group Water and Sanitation 100% Nutritional & Bakery 100% 12 North ATOLLS Teanaka Women’s Group (1) Training 13 North BUKA Immaculate Women’s Group Resource Centre 100% 14 North BUKA Kulubou Women’s Group Water Supply 100% Banis Community Women’s Haus Market 100% 15 North BUKA Group Renovations 16 North BUKA Hapan Women's Group Water Supply 100% 17 North BUKA Kahule Women's Group Water Supply 100% 18 North KUNUA Torotsian Women's Group Water Supply 100% 19 North KUNUA Tohei Women's Group Resource Centre 100% Wananglel Area Women’s 100% 20 North NISSAN Federation Water Supply 21 North SELAU/SU Melelup Women's Group Aid post 100% Page 39 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) 22 North SELAU/SU Kavex/Merko Women’s Group Water Supply 100% 23 North TINPUTZ Iris Women's Group Water Supply 100% 24 North TINPUTZ Kotoita Women's Group Resource Centre 100% 25 South BANA St Peter Women's Group Aid post staff house 100% 26 South BANA Addulam Women’s Group Water Supply 100% 27 South BANA Sipasi Women's Group Water Supply 100% Classroom 100% 28 South BANA Asipeta Women’s Group Renovation 29 South BANA Tomau Women’s Group Haus Market 100% 30 South BANA Marau Asples Mama Group Haus Market 100% 31 South BUIN Salataru Women’s Group Water Supply 100% 32 South BUIN Komirogu Women's Group Resource Centre 100% 33 South BUIN Pakokuma Women’s Group Water Supply 100% Yamamoto Crash site Women’s 100% 34 South BUIN Group Resource Centre 35 South SIWAI Ramu Women's Group Water Supply 100% Elementary 100% 36 South SIWAI Komararu Women’s Group Classroom 37 South SIWAI Haisi Parish Women’s Group Resource Centre 100% 38 South TOROKINA Atsinima Women’s Group Water Supply 100% 39 Central PANGUNA Tekana Women's Group Aid post 90% 40 South BUIN Ipisaro Women’s Group Resource Centre 70% 41 North ATOLLS Teanake Women’s Group (2) Double Classroom 50% Elementary 50% 42 North BUKA Telatu Women’s Group Classroom 43 Central PANGUNA Domana Women’s Group Resource Centre 25% 44 South BUIN Upamuu Women’s Group Water Supply 0% 45 South BUIN Kararu Women’s Group Resource Centre 0% 46 Central WAKUNAI Tokuma Women's Group Resource Centre 0% Page 40 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) ANNEX 3. DFAT PACIFIC WOMEN PROGRAM12 MTR CASE STUDY The Inclusive Development in post-conflict Bougainville (Inclusive Development) project uses small public infrastructure projects as a vehicle to improve quality of life in remote rural areas and to strengthen capacity of participating communities to prioritise, design, manage and maintain the infrastructure. The Inclusive Development project delivers infrastructure by working with community- based women’s groups. The project has built water supply systems, water and sanitation systems, community resource centres, classrooms, aid posts and feeder roads. The Inclusive Development project uses a regional approach to train women’s groups in participatory planning covering community mapping, needs analysis, conflict management, project management and implementation, good governance, monitoring, and evaluation. Meeting other groups in the training areas has proved to be a form of empowerment. Trained groups prepare expressions of interest. After pre-screening by Inclusive Development, these are screened by a committee of officers from community government, including women and youth representatives, and the Autonomous Bougainville Government Department for Community Development. From a shortlist of five the committee selects one. Successful proposals are funded as sub-projects. Before funding is released the group is required to open a bank account for management of the funds and each community is responsible for providing 10 per cent of the value of the sub-project in kind. Technical support and guidance is provided to each women’s group to manage their sub-project through to successful completion. When they begin training most women are shy, but they gain confidence. They procure their own materials, identify their own technical specialists and do all the administrative work. The Illiterate women in the groups are also involved. A man might accompany the women for security reasons. The Inclusive Development project facilitates affiliation of women to the Bougainville Women’s Federation and access to Human Rights Defender training by the Nazareth Centre. Sub-project management experience builds confidence and some women have been inspired to stand in community government and Autonomous Bougainville Government elections. The review team visited three sub-projects in the villages of Gohi, Munius and Malasang 1, North Bougainville District. In Gohi and Munius women’s groups implemented the installation of community water storage tanks. In Malasang 1, the construction of a community resource centre and two water storage tanks. Before the installation of the tanks women and children walked long distances, and up and down steep cliffs, to fetch water for drinking, cooking, and washing clothes. They walk from one to three hours daily. During the dry season water shortages caused severe hardship. Eight tanks were installed at Gohi and six at Munius with tank sizes ranging between 5,000 and 9,000 litres. The tanks at Gohi and Munius are shared by several villages and access is controlled by the women’s groups. Although the tanks are not enough to meet all water needs they are sufficient to meet basic needs for drinking and cooking, and have considerably reduced women’s domestic burdens. The improved water supply is also making difference to health. In Malasang 1, the resource centre project has been more transformative. The centre generates income for shareholders through rental to users from other communities, serving as a hub for meetings and transit accommodation, and by supporting a variety of local income generation 12The Department of Foreign Affairs and Trade organize and fund all their Gender programming in the Pacific through an umbrella organization call Pacific Women. Pacific Women PNG is the largest program, and given DFAT support for IBID, Pacific Women supported ongoing monitoring and evaluation efforts for the project- as noted in the main ICR. Page 41 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) schemes. Shareholders also earn dividends from exports of cacao. The centre also serves as a venue for women’s capacity building events, and for fund raising for community needs and school fees. Capacity-building programs carried out to date include financial literacy and training on cooking, baking and cacao farming and training by the Nazareth Centre for women human rights defenders. Membership has risen to 3,000 and there are plans to build an extension to the centre. The women’s resource centre in Malasang 1 is an example of a transformative project creating more ripple13 effects for women, their families and communities. Figure 1: Ripple effects of the Malasang 1 Resource Centre 13 Ripple effect mapping (http://tiny.cc/ygnyly. Accessed 10 June 2017) was introduced to implementing partners at the Pacific Women Annual Learning Workshop by the Family Teams project. A rapid version has been used here to summarise intended and unintended outcomes reported during interviews. Page 42 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) ANNEX 4. BANK SUPERVISION CASE STUDIES Itakara Women’s Group _ Market Haus, Round 1 Arawa District (Morgan’s Junction), Central Bougainville The village of Itakara stands between the town of Arawa, once the bustling capital of Bougainville, and Panguna, the location of the mine which was at the heart of the conflict. Arawa itself is dotted with hollow skeletons of then prominent buildings – shopping centers, banks, government buildings – which were destroyed. The ruins remain a feature of everyday life as people go to work or market. Under the IBID project the women’s group in the area decided to build a new market house. The women chose this project to allow more women to have access to a quality market and help generate critical income for their families. Women coming together for the good of the community in Bougainville is not new. The involvement of groups such as this in helping to broker peace during the crisis is renowned – they are known as the women who “talked� for peace – and women would perform tasks that men couldn’t when mobility was constrained. Tina Dikis, Secretary for the Itakara Women’s Group describes them as “powerful ladies�. They take on immense tasks every day – they look after extended families, they tend to the land, they earn income for their children. The market not only creates an economic hub for the women, it provides a place where they can come together and talk through community concerns and differences. Page 43 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Malasang Women’s Group – Resource Center, Round 1 Buka District, North Bougainville Two women from Malasang village, Celestine Tomie and her younger niece Florence Tomiets, brought local women together to develop a resource center. Today it is a site for training in leadership, financial management and computer skills, as well as social events. Celestine explains that she envisaged the resource center as a site where people could come and talk about their problems. “At present, there is a culture of silence,� says Celestine. “I believe that open discussion, in a safe space, is a critical step towards working together, men and women, to find solutions within the community, and ensuring women’s voices are heard in these conversations.� https://www.facebook.com/commdev/posts/the- malasang-hatokaweesil-resource-center-in-buka- north-bougainville-is-fast-bec/1722550171206818/ ANNEX 5. PHOTOGRAPHS OF VARIOUS PROJECTS Atsinima Women’s Group – Water Supply Project, Round 3 Torokina District, Central Bougainville Page 44 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Davena Women’s Group Gravity-fed water supply project, Round 3 Kieta District, Central Bougainville Page 45 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Lenoke Women’s Group – Resource Center, Round 2 Buin District, South Page 46 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Konga Women’s Group – Primary Class Room, Round 2 Buin District, South Bougainville Page 47 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) Page 48 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) ANNEX 5. CLIENT AND STAKEHOLDER COMMENTS Comments and feedback were requested from Borrower and partner stakeholders including: • Department of Community Development DCD, Autonomous Bougainville Government • Dept of Community Government, Autonomous Bougainville Government • Dept of National Planning & Monitoring, Government of PNG • Dept of Treasury, Government of PNG • Dept of Finance, Government of PNG • Pacific Women, PNG Program Office Despite repeated email and phone call follow ups from May 27th to June 16th – the only written response received was from Pacific Women (full comments included below). The team was able to meet with Secretary Mana Kakarouts of Dept of Community Development and Ms Juanita Sundie of Dept of National Planning and Monitoring on Friday June 21st. Secretary Kakarouts, DCD, ABG stated that ABG had taken the project on as it’s won, despite struggling with limited staff and resources. The secretary is hoping to carry on using the CDD model for implementing development projects from their own resources. The main reaction from the PnG national planning commission was to agree that the project had been fulling own by ABG, with the national government having little involvement; given this the national government had no specific comments on the ICR. ------------------------------------------------------- Partner Comments: Pacific Women From: Richelle Tickle Sent: Wednesday, May 29, 2019 12:53 AM To: Dodi Doiwa Cc: Caroline Mary Sage ; Summerville Kave Subject: RE: VIRTUAL REVIEW for the Inclusive Development in Post-Conflict Bougainville Project (P125101) [External] Dodi, I’ve had an opportunity to read the documents. I have a few comments and questions. Some of which are probably due to my lack of familiarity with World Bank processes. The description of the Beneficiary Survey (p.22) indicate that it reached a significant number of people. The December 2018 progress report was very hopeful re. the data the Survey would provide. But it appears from the ICR that the survey was not able to contribute much to the assessment of the IDIB’s progress toward the Development objectives/outcomes. There is very limited drawing on it, the assessment of perceptions of women’s roles in communities harkens back to the Independent Monitoring Team reports undertaken in 2013–2014. There was presumably an opportunity to assess through the Beneficiary Survey to see if positive perceptions of women’s roles had continued to be positive after round 1 project were finished. Page 49 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) This is very disappointing. I’m interested to discuss why this is the case ahead of plans we are still progressing to undertake a broader evaluation. Rating of Moderately Satisfactory. I assume the scale is unsatisfactory / moderately unsatisfactory / moderately satisfactory / satisfactory / ? If this is the case, it would help me to understand what would be required to meet a rating of satisfactory. Given the project was rated satisfactory in Dec 2014 (presumably on the back of the initial IMT reports) but at the time, there were 20 of 41 projects with concerns. As I understand this report, the assessment is there is good evidence of achieving improved inclusive community development and the confidence of women executive members to deliver community development projects. The Phase 1 monitoring reports and Beneficiary Survey are both referred to, so presumably this assessment covers the entire period of the project and as many as possible of the 126 projects. The description of the subprojects undertaken and the inclusive benefits they have delivered seem to strongly support the achievement of inclusive community development objective (Component1). 4 of the 126 projects have been reported to police as there has been no work but the money is gone (FYI not in the report itself), and an additional (1) project will be cancelled. This means that you are expecting a 96% completion rate of subprojects. (Component 2) FYI. There is no reference to the % of funds tied up in these 5 projects to be cancelled. However, the ICR says there was an ineffective monitoring framework or that the effective framework was not implemented. Ongoing perception-focused data was not collected, and it seems that the beneficiary survey was unable to completely fill this gap? Delays in fund disbursement negatively impacted perceptions of women’s organisations (at least initially in Phase 1) but there was no discussion for the twice as many projects in Phase 2. The project was chronically understaffed/under- resourced and the original project design ill-fit the post-conflict, low resource context and not all of these issues were corrected in Phase 2. (Component 3). Is this why the assessment overall is moderately successful? If so, I think this could be more clearly stated. Ie, that the project substantially met its development objectives to the extent possible to measure, in some cases despite design flaws and implementation challenges. Issues not clear to me from the ICR report: • I don’t understand the financing amounts – how can the original amount be the same as the revised amount. • There are inconsistencies between the narrative, targets and the results framework. For example, there are different references throughout to the number of completed activities (at different dates). • The results framework doesn’t seem to make sense in relation to some of the units of measures. For example, it says USD amount where I would think it should be % – according to the AF Paper for women involved with greater confidence. There are other examples too. • The justification for the number of women beneficiaries is not clear – it is less than 50% of total beneficiaries without explanation. • There is no reference in the ICR to the fact that the ABG did not provide the K2 million which it hoped to do so (referred to in the AF Paper). Should it be? • What’s the basis and what does it mean to weight the original PDO Intermediate indicators at 45% and Revised PDO at 55% when so much of the evidence referred to in the latter was also Page 50 of 51 The World Bank Inclusive Development in Post-Conflict Bougainville Project (P125101) referred to in the former? I think the ICR would benefit by being clearer that it is an assessment of the project over the full duration and the sources used to reach these judgments. Independent of the review, I would appreciate an opportunity to discuss the beneficiary survey experience and data, and to discuss who owns and whether or not there has been any assessment of the value and appropriateness of the training materials and processes created by URS for the project. We are thinking about whether or not the same training/processes could be used in other community projects across PNG. Thanks Richelle Tickle Papua New Guinea Country Manager Pacific Women Shaping Pacific Development (Pacific Women) Support Unit The Pacific Women program is supported by the Australian Government in partnership with the Government of Papua New Guinea Page 51 of 51