Country

United Nations Development Programme (UNDP) Philippines Crisis Prevention and Recovery Component 2006 CPAP Annual Review ACRONYMS ACT for Peace ARMM CCAGG CCF CO Multiversity CPAP CPLA CPPB CPP-NDF-NPA CRP CSO DDR DILG DILG-ARMM DND DSWD DSWD-ARMM FAO GPPAC GZO-PI ILO IP IP ISDS JBIC JICA KAF KALAHI LPAC MDG MEDCo MILF MNLF MTC NGO NICA NPD NSC NUC OIA OPAPP PA PCIA PDA PDAL PDC PEG PMO PRINCE2 QCIC Action for Conflict Transformation for Peace Programme (GOP-UN-MDP) Autonomous Region of Muslim Mindanao Concerned Citizens of Abra for Good Governance Country Cooperation Framework Community Organizing Multiversity Country Programme Action Plan Cordillera Peoples Liberation Army Conflict Prevention and Peacebuilding Programme (GOP-UNDP) Communist Party of the Philippines - National Democratic Front - New Peoples Army Crisis Prevention and Recovery Civil Society Organizations disarmament, demobilization and reintegration Department of the Interior and Local Government Department of the Interior and Local Government (ARMM) Department of National Defense Department of Social Welfare and Development Department of Social Welfare and Development (ARMM) Food and Agriculture Organization Global Partnership for the Prevention of Armed Conflict Gaston Z. Ortigas Peace Institute International Labour Organization Implementing Partner Indigenous Peoples Institute for Strategic and Development Studies Japan Bank for International Cooperation Japan International Cooperation Agency Konrad Adenauer Foundation Kapit-Bisig Laban sa Kahirapan Local Project Appraisal Committee Millennium Development Goal Mindanao Economic Development Council Moro Islamic Liberation Front Moro National Liberation Front Maharlika Trade Center Non-Government Organizations National Intelligence Coordinating Agency National Programme Director National Security Council National Unification Commission Overall Implementing Agency Office of the Presidential Adviser on the Peace Process Presidential Advisers Peace and Conflict Impact Assessment Peace and Development Advocate PDA League Peace and Development Community Project Executive Programme Management Office Projects in Controlled Environments 2 Quezon City Islamic Cemetery 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 1 RBA RP RPMM RPM-RPA-ABB RRF SSRI TWSC UNDAF UNDP UNFPA WFP WFP rights-based approach Responsible Partner Rebolusyonaryong Partido ng Manggagawa ng Mindanao Rebolusyonaryong Partido Manggagawa-Pilipinas/Revolutionary Proletarian Army/Alex Boncayao Brigade Results and Resources Framework Security Sector Reform Indices Third World Studies Center (University of the Philippines) UN Development Assistance Framework United Nations Development Program United Nations Population Fund Work and Financial Plan World Food Programme (UN) 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 2 Reporting Agency: Country: No. and title: Reporting period: United Nations Development Programme (UNDP) Crisis Prevention and Recovery Component Philippines CPAP Annual Review 2006 METHODOLOGY & REPORT OVERVIEW 1. The 2006 Annual Review of the Crisis Prevention and Recovery Component/Portfolio of the UNDP Philippine Country Programme was conducted using a combination of methodologies. Inputs of the Implementing Partner or IP (the Office of the Presidential Adviser on the Peace Process (OPAPP), non-state partners involved in Portfolio implementation, and community participants were solicited and surfaced through focused group discussions and key informant interviews. Relevant documents were examined and two project sites were visited. The reviewer had also been involved in previous review and planning activities of the two programmes under the Portfolio. 2. The draft version of the report was circulated to the Portfolio management team, the IP and the Programme Management Office (PMO) of the GOP-UNDP Conflict Prevention and Peacebuilding Programme (CPPB) due to time constraints and in the absence of a Project Executive (PEG) or an equivalent body. It was also presented to the UNDP-GOP Outcome Board during the November 6-8, 2006 Annual CPAP Review. The inputs of the Outcome Board and other experts have been incorporated in this version of the report. 3. This report will review the purpose of the Crisis Prevention and Recovery Component/Portfolio, its progress in the achievement of planned outputs and outcomes results, verify financial performance, analyze the Portfolio through the lens of peacebuilding as well as through the development drivers identified by the United Nations, and account for factors that had impact on operations as of the second year of the 2005-2009 CPAP. The report will also tackle emerging concerns and put forward indicative recommendations to address them. Perspectives on relevant opportunities and risks, and suggestions for refining the Component results framework are also included. PURPOSE 4. The Crisis Prevention and Recovery Component of the Country Programme contributes to the creation and maintenance of a secure and peaceful environment, especially for the poor and marginalized. It addresses conflict prevention and peace building; recovery; and small arms reduction, disarmament and demobilization. 5. The component is managed by the Peace and Development Portfolio of UNDP. There have been discussions in UNDP and with NEDA to adjust the Component and Portfolio title to reflect the current thematic focus, which is Conflict Prevention and Peacebuilding. This report shall continue to use Crisis Prevention and Recovery referring to both the Component and Portfolio. 6. The Portfolio supports the commitment to the prevention of violent conflict as articulated in the Millennium Declaration, and contributes to the achievement of Outcome 5 of the UN Development Assistance Framework (UNDAF), which seeks to reduce the level of violent 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 3 conflict and foster human security and the culture of peace nationwide by 2009. 7. The Component outcomes in the approved Country Programme Document and Country Programme Action Plan (CPAP) are as follows: a. Peace building, conflict prevention, and human security mainstreamed in development processes b. Key actors are better able to prevent, manage and resolve conflict and to build peace and human security c. Conflict affected communities have improved access to basic services, increased incomes, and participate in governance 8. Towards attaining the component outcomes and contributing to the achievement of UNDAF Outcome 5, UNDP adopted the following strategies: a) fostering an enabling policy environment for sustainable peace; b) building capacities of key actors for peace building and conflict prevention; c) strengthening access of conflict-affected communities to basic services and increased incomes and fostering their participation in local governance; d) supporting government-civil society partnerships to build a nationwide constituency for peace, with heavy involvement of women given they are proven to be effective peace educators; and e) establishing strategic partnerships towards mobilizing resources for sustained nationwide peace-building. 9. The Component builds on the gains of the previous Country Cooperation Framework (CCF) by expanding assistance for peace and development beyond Mindanao to cover nationwide peacebuilding and conflict prevention. 10. It establishes points of convergence and collaboration with other UNDP programmes, in particular good governance, empowerment of the poor and environmental sustainability, towards addressing the root causes of conflict and enhancing national efforts to pursue a just, comprehensive and lasting peace. 11. The planned results for the Crisis Prevention and Recovery Portfolio are being achieved through partnerships with a range of stakeholders by means of the GOP-UNDP Conflict Prevention and Peacebuilding Programme (CPPB) and the GOP-UN-MDP Action for Conflict Transformation for Peace Programme (ACT for Peace). The Office of the Presidential Office of the Presidential Adviser on the Peace Process (OPAPP) is the implementing partner for the CPPB; Mindanao Economic Development Council (MEDCo) is the overall implementing agency for ACT for Peace. 12. Other programs that contributed to the achievement of the Component objectives are the GOP-UNDP-EC Rehabilitation of Internally Displaced Persons in Southern Philippines Programme, and the Rehabilitation of Pilot Muslim Communities supported by the Government of Bahrain. 13. Responsible partners or service providers for the CPBB come from peace groups, civil society and academic organizations, local government units and government agencies such as the Concerned Citizens of Abra for Good Governance (CCAGG), the Gaston Ortigas Peace Institute (GZO-PI), the Third World Studies Center of the University of the Philippines (UP-TWSC), and the Departments of Social Welfare and Development (DSWD) and of the Interior and Local Government (DILG), among others. 14. Among the programme partners of the ACT for Peace are the Office of the Regional Governor of the Autonomous Region of Muslim Mindanao (ARMM), DSWD-ARMM, DILG-ARMM, civil society organizations like the Community Organizing Multiversity (CO Multiversity) and members of the academe. 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 4 15. Security institutions such as the Department of National Defense (DND), National Security Council (NSC), National Intelligence Coordinating Agency (NICA) and legisl ative bodies in particular, the House of Representatives and the Senate, were engaged in activities supported by the Component. 16. Former combatants from the Moro National Liberation Front (MNLF) and the Communist Party of the Philippines - National Democratic Front - New Peoples Army (CPP-NDFNPA) were also involved as participants in project implementation. RESOURCES 17. The approved CPAP indicated that funding for the Crisis Prevention and Recovery Component would come from UNDP, both from Core Resources and Other Resources from the Core in the amount of US$2 million; and US$18.442 million from Other Sources including third-party cost-sharing as detailed in Table 1 below: Table 1. CPAP Resource Plan Portfolio UNDP Core Resources (in US$) Other Other Sources Resources of Funds2 from the Core1 Total Resources Achieving the MDGs and reducing human poverty Fostering Democratic Governance Managing energy and environment for sustainable development Supporting crisis prevention and recovery TOTAL 2,100,000 2,100,000 1,000,000 1,000,000 6,200,000 1,000,000 1,600,000 1,000,000 1,000,000 4,600,000 2,950,000 4,710,000 19,850,000 18,442,830 45,952,830 6,050,000 8,410,000 21,850,000 20,442,830 56,752,830 18. Portfolio resources from TRAC 1.1.3 and third-party cost-sharing, such as the ACT for Peace Programme and the Rehabilitation of Pilot Muslim Communities, are specified in Table 2 below. Recently closed projects are included. 19. Support from the Governments of Australia, New Zealand and Spain for ACT for Peace total US$14 million. The Government of Bahrain contributed US$1 million to the Rehabilitation of Pilot Muslim Communities project. Table 2. Crisis Prevention and Recovery Portfolio Sources of Funds Implementing Partner/s Resources (in US$, 2005-2009) TRAC Non-TRAC Project Title/Duration Total Resources3 Status ACT for Peace (2005-2009) Conflict Prevention and Peace-Building Programme 1 2 MEDCO, ARMM OPAPP 0 2,000,000 13,151,360 0 13,151,360 2,000,000 Ongoing Ongoing Indicative Includes US$600K for initiatives on ODA Coordination and Management 3 Based on signed 25 April 2006 UNDP letter to NEDA on 2005-2009 AWPs for the four UNDP Portfolios 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 5 Project Title/Duration Implementing Partner/s Resources (in US$, 2005-2009) TRAC Non-TRAC Total Resources3 Status (2005-2009) Rehabilitation of Pilot Muslim Communities (2004-2006) Rehabilitation of Internally Displaced Persons in Southern Philippines (2004-2006) Joint Needs Assessment for the Mindanao Trust Fund (2004-2006) Environmental Protection of Lake Lanao Area (2003-2005) Third Phase of the GOPUN Multi-Donor Programme (2001-2005) Total Office of the President-Urban Asset Reform MEDCO, ARMM Ongoing 0 1,000,000 1,000,000 0 UNDP ARMM with FAO 0 MEDCO, ARMM, and participating UN Agencies 0 2,200,000 3,623,970 3,623,970 Operationally closed Operationally closed Operationally closed Operationally closed 200,000 0 420,000 247,500 18,242,830 200,000 420,000 247,500 20,442,830 RESULTS 20. The Portfolio’s progress towards the achievement of Country Programme outcomes will be measured using information primarily from the CPPB Programme and to a certain extent, the ACT for Peace Programme. The latter Programme significantly contributes towards Outcome 3 and to a lesser degree to the other two Outcomes. 21. The CPPB is funded under TRAC 1 while ACT for Peace operates under a cost-sharing arrangement with the support of the governments of Australia, New Zealand and Spain and has a separate Programme Coordinating Committee, which is perceived to be its de facto Outcome Board. Progress of CPPB and ACT for Peace Programmes 22. The CPPB Programme contributes to the creation and maintenance of a secure and peaceful environment, especially for the poor and marginalized. It is a five -year programme (2005-2009) pursued in partnership with the Government through the OPAPP, other related government bodies, civil society organizations, and c ommunity-based peacebuilders and is focused on Luzon and Visayas. 23. This Programme seeks to contribute to building a sustainable peace in the Philippines by achieving three interrelated outcomes: (1) peace-building, conflict prevention and human security mainstreamed in development processes, (2) key actors are better able to prevent, manage and resolve conflict, and build peace and human security and (3) conflict -affected communities have improved access to basic services and increased incomes, and participate in local governance. 24. The Programme is implemented through strategies that include: (1) fostering an enabling 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 6 policy environment for sustainable peace, (2) building capacities of key actors for peacebuilding and conflict prevention, (3) supporting government -civil society partnerships to build a nationwide constituency for peace, and (4) empowering communities for peace. 25. A total of 28 projects (or activities in the context of Atlas) were supported by CPPB for 2006, including the seven new ones that got approved during the 3 rd quarter. 26. CPPB fast tracked the implementation of key activities to ensure the attainment of target outputs and outcomes. Among the key accomplishments 3rd quarter of the second year of its implementation were:             Supporting the implementation of the National Peace Plan Supporting government efforts on security sector reform Mainstreaming of peace promoting planning in local governance Promoting citizens’ ownership of national peace policies Building conflict prevention and peace building capacity of government personnel Building civil society conflict prevention and peace building capacity Establishing and strengthening a nationwide peace constituency Adoption of indigenous peacebuilding mechanisms Continuing knowledge and experience-sharing among conflict-affected communities Transforming conflict-affected areas into peace building communities Institutionalization of mechanisms for participation in governance Development of programs for the reintegration of former combatants 27. The Action for Conflict Transformation (ACT) for Peace Programme is a peacebuilding and conflict transformation programme. It seeks to strengthen peacebuilding effo rts and sustain the gains for peace and development in Southern Philippines by working with multiple stakeholders to promote peace initiatives at different levels. Social capital, which is essential to peacebuilding, shall be strengthened through the consolidation of people’s organizations and other community-based social formations. To support the promotion of human security objectives, the Programme assists people affected by violent conflicts; provides access to basic services; promotes good governance, articulates common goals while recognizing and strengthening distinct cultural identities; and encourages strategic alliances for peace work involving civil society organizations, communities, religious groups and government. The conflict transformation c apacities of local governments are also being enhanced. 28. The Programme is being implemented by the United Nations through the Mindanao Economic Development Council (MEDCo) as the Overall Implementing Agency (OIA), in partnership with the ARMM Regional Government. 29. ACT for Peace is also on its second year; support is being provided to about 80 projects (or activities) for the current programming year. The 3rd quarter was marked by adjustments in the Programme’s 2006 WFP as well as the preparation of a Programme Catch-Up Plan. Among the key accomplishments were as follows:  Continuing community organizing and social preparation activities in 170 Peace and Development Communities (PDCs)  Completion of the Programme’s Baseline Study  Continuing efforts in building partnerships as well as providing capacity building and skills enhancement programs and activities for key stakeholders, particularly the LGUs, regional line agencies, PDALs/PDA Alliances and civil society organizations (CSOs) to create an enabling environment as well as to contribute to the institutionalization of support mechanisms for peacebuilding and the promotion of human security 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 7 Progress towards Country Programme Outcomes 30. The details concerning the accomplishment of the Crisis Prevention and Recovery Component/Portfolio planned outputs and outcomes are documented in Annex A. 31. CP Outcome 1: Peace building, conflict prevention, and human security mainstreamed in development processes Portfolio initiatives are generally on track in terms of meeting 2006 targets at the outputs and outcome level. Current achievements are focused on integrating conflict prevention and peacebuilding approaches in frameworks, processes and programs at the national and local levels; and on tracking reforms and reviewing progress of government action on the national peace process framework (National Unification Commission Report). OPAPP is finalizing the conceptual framework on peace indicators and started gathering data from concerned agencies to track government's progress in addressing NUC policy recommendations made in 1993. The abilities of strategic national and local actors and institutions to mainstream peacebuilding and human security in development policies and processes are increasing. GZO-PI mobilized civil society input and dialogued with policy makers in the crafting of the House Bill No. 5767 or the National Peace Act of 2006. OPAPP is piloting use of conflict-sensitive and peace-promotive modules for local development planning in four conflict-affected provinces. Technical Working Groups in nine Mindanao provinces are able to conduct multi-dimensional analysis of conflict and identify entry points for action and programming interventions. The Security Sector Reform Indices or SSRI were validated by the Institute for Strategic and Development Studies (ISDS) with security sector and policy institutions towards pilot testing and setting the baseline of the SSRI. 32. CP Outcome 2: Key actors are better able to prevent, manage and resolve conflict and to build peace and human security Portfolio initiatives in this outcome are proceeding well, with indications that expectations in peace constituency building would be exceeded. The expertise of institutions and individuals are being improved and harnessed to promote peace and prevent, manage and resolve conflicts, and to widen peace constituency nationwide. There is growing awareness of peacebuilding and human security among public officials in the provinces of Bohol and South Cotabato. Academe-based institutions at the primary, tertiary and graduate levels are incorporating the culture of peace in their curricula and research activities. Mass media institutions and the internet are being optimized as channels for peace advocacy and education even as efforts are underway to develop more proactive advocates from among media practitioners. Youth involvement in peacebuilding is picking up, including the planning efforts of the MNLF Junior Officers. More public and voluntary institutions are involved in introducing peace and conflict impact assessment, conflict prevention, problem solving and agenda-building to communities nationwide. In particular, government officials and staff, and CSOs involved in designing and managing peace and development interventions in North Cotabato, South Cotabato, Davao del Sur, Sultan Kudarat, Cotabato City, Caraga and ARMM are appreciating and initially applying the PCIA. 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 8 Community leaders in Bondoc Peninsula, Quezon, Sorsogon, Tarlac, Negros and Iloilo are beginning to analyze conflicts and formulate peace and development roadmaps or action plans. Former combatants in Leon, Iloilo province have a better grasp of the potentials of barangay special bodies as mechanisms for addressing peace and development concerns in an integrated manner. They are also aware of the role that they can play in dialoging with both state and nonstate armed groups to prevent, to the extent possible, armed encounters in their areas. Core Group members in San Jose, Tarlac coming from religious leaders, educators and local government officials note that there have been no reported armed confrontations between the military and the NPA in their locale since the Core Group made known its intentions of declaring a peace and development sanctuary in three barangays. Indigenous peace and conflict management systems in Mindanao are being documented and contextualized to promote appreciation from young members of the IP communities, develop their skills in using and managing the system, leading to its recognition and integration in the formal barangay justice system. Community awareness of laws concerning indigenous peoples is being strengthened. A 3-Year IP Women Peace and Development Program, which includes the strengthening of conflict management mechanisms in IP communities with active participation of women, has been developed by the University of the Philippines Baguio Educational Foundation based on consultations conducted in eight ethnic communities and will be presented in a Funders’ Forum. If Portfolio-supported activities proceed as planned for the rest of the year, accomplishments may involve more than the targeted 413 key peace-building actors and institutions. 33. CP Outcome 3: Conflict affected communities have improved access to basic services, increased incomes and participate in governance Members of 169 Peace and Development Communities (PDCs), including women, in 100 municipalities in 15 provinces in Mindanao are involved in activities that will improve access to shelter, water, nutrition, health and livelihood opportunities. Efforts are underway to expand in 51 conflict-affected areas out of the targeted 86 communities, to undertake social preparation activities and reach out to former combatants, the displaced, indigenous peoples and other marginalized sectors. Proposals for livelihood support to former combatants in the Cordilleras have been finalized. Ten barangays in the provinces of Bohol and Mindoro affected by armed conflict were provided with small-scale and quick impact community level enterprises/agricultural and water system projects. Time and other constraints may hinder the achievement of the targeted number of communities (250 for 2006). Affirmative action for Muslim communities was supported to spur trade and employment, and showcase Muslim culture and art through the construction of the Maharlika Trade Center (MTC) in Taguig City. The 1.5 hectare Quezon City Islamic Cemetery (QCIC) in Montalban, Rizal was recently constructed as an alternative burial ground. It is expected that more than 12,000 individuals in Barangay Maharlika will directly benefit from the MTC and 20 Muslim communities in Quezon City will be served by the QCIC. Both duty bearers and communities are developing skills and mechanisms for the participation of conflict-affected communities and former combatants in local governance processes, such as membership in local special bodies. In Leon, Iloilo three conflict-affected barangays are looking to integrate peace and development by creating local peace and development councils and to further mainstream their plans through active involvement in the local governance. Religious scholars and activists are dialoging on the dynamics between Islamic concepts of governance and the principles, practices and processes of western democracy, which at present remain a source of conflict among people in Southern Philippines. 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 9 Nineteen government agencies and NGOs identified key areas of consideration in enhancing the reintegration program for former combatants; including strengthening the role of LGUs in implementing the program, “demilitarizing” delivery of services, and reintegration in the context of conflict transformation and social reform. Traditional and cultural forms, including the arts, are being harnessed to support community healing, dialogue and reconciliation processes; and foster increased awareness of rights. FINANCIAL IMPLEMENTATION 34. Details on the financial performance of the two programmes under the CPR Portfolio for the period 2005-2006 are provided in Table 3 below. Both Programmes had less than a year of implementation for their first year of operations. 35. CPPB is funded by UN Core Resources (core and non-core) while ACT for Peace is funded under cost-sharing terms with the Governments of Australia, New Zealand and Spain. 36. UNDP records indicate that a total of US$634,538.38 was expended from Core Funds for the GOP-UNDP Conflict Prevention and Peacebuilding (CPPB) Programme representing a delivery rate of 66% in relation to the approved two year budget of US$958,578.67. Direct services accounted for 12% (US$77,576.15); and technical assistance was 63% (US$399,371.34). Strictly speaking, administrative costs accounted for 16% or US$98,838.72. Overall Programme Management (M&E, trainings and meetings, equipment, admin, forex gain and loss) stood at 25% (US$ 157,590.89). 37. A total of US$2,302,708.58 was spent by the ACT for Peace Programme which accounts for 57% of its two-year budget of US$4,029,172.74. Of the total expenditures Direct Service was 39% or US$898,435.35; TA expenditures 32% or US$733,761.14; and administrative costs, 11% at US$247,494.84. Overall Programme Management, which covered a number of expense items such as forex gain/loss, was 29% (US$670,512.09). 38. The Support to the Muslim Pilot Communities in the Philippines project funded under costsharing terms with the Government of Bahrain utilized US$263,702.25 of the budget for the year US$609,692.38 or expenditures of 43%. Table 3. Crisis Prevention and Recovery Status of Project Delivery (in US$) 2005-2006 US$ 2005-2006 Programme under CPR Portfolio GOP-UNDP Conflict Prevention & Peacebuilding ACT for Peace Total Approved Budget A Total Expenditures B (B/A) Direct Services C (C/B) Technical Assistance D (D/B) M&E E (E/B) Trainings & Meetings F (F/B) Programme Management Admin Equipment H G (G/B) (H/B) F&A I (I/B) Gain/Loss J (J/B) 958,578.67 100% 4,029,172.74 100% 634,538.38 66% 2,302,708.58 57% 77,576.15 12% 898,435.35 39% 399,371.34 63% 733,761.14 32% 5,082.20 1% 24,942.02 1% 27,810.52 4% 68,864.74 3% 98,838.72 16% 247,494.84 11% 29,086.25 5% 225,281.37 10% N/A N/A 72,209.08 3% (3,226.80) -1% 31,720.04 1% 39. Based on Table 4, the CPPB PMO reported that as of October 2006, PhP14,560,420.39 of the annual budget was expended. This represents 50% of its total budget for the year (PhP29,165,855.31). In relation to actual cash downloaded to the Programme (a total of PhP15,357,727.39), 95% had been spent. 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 10 Responsible Partners already received and expended a total amount of PhP8,376,003.50. In relation to their total approved budget for the year (PhP15,266,354.60 ) the delivery rate is 55%. On the other hand, OPAPP disbursed PhP2,020,830.08, or 75% of the advances it received (PhP2,683,447.08) but only 26% of its total approved budget (PhP7,795,380). There is concern over the PMO rate of utilization, particularly of the advances already released to it. The PMO expended a total of 4,163,586.81 for operations, monitoring and evaluation, and training activities. This is 97% of the amount released to it (PhP4,298,276.81) and 68% of its approved budget (PhP6,104,120.71) 40. Revisions have had to be made to the CPPB Annual Work Plan and Budget for CY 2006 in view of additional TRAC funds allocation from UNDP and in consideration of the budget adjustments for Programme activities. Table 4. Summary of CPPB Fund Utilization (in PhP) according to Modality as of 30 October 2006 Status of Fund Release Project Title Approved Budget Cash Downloaded Disbursed Balance Remaining Balance (from Approved Budget) Delivery (Exp vs. Cash Download) Delivery (Exp vs. Approved Budget) Responsible Partners OPAPP Projects PMO TOTAL 15,266,354.60 7,795,380.00 6,104,120.71 29,165,855.31 8,376,003.50 2,683,447.08 4,298,276.81 15,357,727.39 8,376,003.50 2,020,830.08 4,163,586.81 14,560,420.39 662,617.00 134,690.00 797,307.00 6,890,351.10 5,111,932.92 1,805,843.90 13,808,127.92 100% 75% 97% 95% 55% 26% 68% 50% FINDINGS 41. The succeeding observations discuss Portfolio performance in relation to recognized principles, practices and standards of peace work in particular four of the standards advocated by the Active Learning Network on Accountability and Performance in Humanitarian Assistance (ALNAP). The findings also speak to the UNDP development drivers: developing national capacities; enhancing national ownership; advocating for and fostering an enabling policy environment; seeking south-south solutions, promoting gender equality, and forging strategic partnerships. The discussion on relevance, connectedness, appropriateness, coherence, developing national capacities, enhancing national ownership, advocating for and fostering an enabling policy environment, seeking south-south solutions and promoting gender equality are meant to assist the governing bodies of the Portfolio 42. Context. There is general agreement among state and non-state on the broad strokes of the analysis that underpin the continuing situation of armed conflict, as the major challenge to sustainable peace, development and human security in the Philippines, and of the root causes. It is recognized that armed conflicts in the country mainly involved a communist insurgency affecting most of the country, and a secessionist rebellion largely confined to the south.5 Both rebellions are rooted on issues of social inequity, injustice, poverty, 4 5 This analysis on the Philippine context and conflicts was derived from the CPPB Project Brief. OPAPP estimates that the CPP-NPA-NDF is active in 71 out of 79 provinces. 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 11 exclusion, and the perpetuation of power and economic resources in the hands of an elite few, while the majority of Filipinos live in poverty. Growing assertion of Muslim selfdetermination and an Islamic way of life further fuel t he secessionist movement. In addition, the re-emergence of a politicized and restive military, localized political/clan or inter-community conflicts, as well as peace and order problems particularly the threat posed by the bandit Abu Sayyaf group exacerbate threats to human and national security and frustrate efforts to build peace. Indigenous communities are especially affected. Effects of international developments such as globalization and terrorism make the situation more complex. Further it is acknowledged that an infrastructure for peace has existed in the Philippines since the re-establishment of democratic rule in 1986; and that multi-stakeholders, specifically government and civil society and grassroots-based peacebuilders, constitute its core. There is also wide support for the basic principles of the peace effort and the “Six Paths to Peace” set forth by the National Unification Commission (NUC) through nationwide public consultations. However, there obviously are differing opinions on the means and progress of, and the extent to which the six main strategies for a just and lasting peace are being pursued, particularly the path concerning reform. This is discussed further in the finding concerning the enabling environment. Moreover, as a national undertaking, the Portfolio is dealing with different conflicts which are at varying stages (pre-conflict/conflict formation, ongoing, post-conflict/latent). This underscores the need for the Portfolio to invest in partnerships and projects that are able to address conflict at different stages, well informed by an understanding of the situation and the dynamics among actors, causes and the context of the conflict. 43. Relevance. The Portfolio is informed by Agenda #9 (“A Just End to the Peace Process”) of the government’s 10-Point Agenda. It supports the implementation of the national Comprehensive Peace Process and its “Six Paths to Peace”, as well as the National Peace Plan embodied in Chapter 14 of the Medium-Term Philippine Development Plan. The Crisis Prevention and Recovery Component/Portfolio of the CPAP invested in projects and partnerships that built peace and prevented conflicts in the country in both a specific and broad sense. A few projects involved working with communities that declared a cessation of armed hostilities in their area through peace zones or sanctuaries. Others projects covered communities of former combatants, their families and other vulnerable sectors such as in the areas identified by the Moro National Liberation Front (MNLF) which has a peace agreement with the Philippine government. Working in and with these communities involved building capacities, processes and structures that would foster peaceful co-existence and decrease the likelihood of the outbreak of violence. Some projects were oriented at pushing reforms in policies, institutions and programs to address structural injustice that were perceived to be at the roots of conflicts; and at broadening the constituency for peace and human security through organizing, capacity building and advocacy. The Portfolio relevance to national objectives is further highlighted, among others, by its encouragement of the six ongoing peace processes in the country. In a direct way, communities of the MNLF are assisted through organizing, capacity development and focused service delivery. Indirectly, through policy research, peace constituency building and advocacy, the processes involving the Communist Party of the Philippines – National Democratic Front – New People’s Army (CPP-NDF-NPA), the Rebolusyonaryong Partido Manggagawa-Pilipinas/Revolutionary Proletarian Army/Alex Boncayao Brigade (RPM-RPA-ABB), the Moro Islamic Liberation Front (MILF) and the Rebolusyonaryong Partido ng Manggagawa ng Mindanao (RPMM) are being advanced. Social preparation and other activities that involve non-state actors are ongoing in many conflict-affected communities, and in areas where former combatants operate. 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 12 The reintegration of the Cordillera Peoples Liberation Army (CPLA) is being supported by regular funds of OPAPP. Of the six processes, only three (CPLA, MNLF and RPA) have concluded in signed peace agreements to date. While these six are the prominent peace processes in the country, it is not the intention of this report to limit the Portfolio’s scope. After all, the Philippine peace framework as defined by the NUC “shall be community-based, defined not by government or the contending groups only, but by all Filipinos as one community.” A UNDP study further defines the peace process as “the totality of structures and processes, actors, roles and relationships, strategies, programs and activities involved, created and pursued in a nonviolent manner by various sectors of Philippine society in response to armed conflicts, political violence and social unrest.”6 The objectives and results structure of the Conflict Prevention and Recovery Portfolio are aligned with the identified international and national policy instruments. The Outcomes are highly relevant. CPR outputs, while providing a comprehensive “roadmap” in terms of change areas, are numerous and can be tightened up further, particularly in consideration of fiscal limitations. 44. Connectedness. Based on a limited review, the Portfolio appears to be the only ODAsupported comprehensive peacebuilding and conflict prevention programme that has a nationwide scope. Other programs, while oriented towards peace work, concentrated on Mindanao, or on other specific geographic focus (such as ARMM) or theme (i.e. humanitarian action). The 2003 Portfolio Review recommendation to expand the cover to non-Mindanao areas and concerns has thus been addressed. The Portfolio, through its partners, is also in the position to ensure that peace efforts of various sectors in various areas and at different levels are linked to achieve larger-scale results. 45. Appropriateness. On the whole, it can be said that to date Portfolio interventions and investments addressed themes and supported strategies that are recognized as coherent with peace work. It is, too early to tell whether the results are “durable.” However, it should be noted that the ACT for Peace Programme in particular is built on achievements of the previous phases of the multi-donor programme which continue to be observable on the ground . Moreover, the dynamics of conflict and peace do not function in a linear manner; the situation can often dramatically change depending on the actors and other factors, and could lead to the reversal and loss of achievements. Effective peace work is linked to the ability to formulate responses based on an understanding of the situation, roots and factors that fuel conflicts. In this context, a concern was raised by CPPB stakeholders that haphazard disarmament, demobilization and reintegration (DDR) initiatives run the risk of being perceived as “counter-insurgency” measures and might not be viewed positively by non-state armed groups and set back peace efforts. While the Portfolio is committed to support DDR of former combatants, it is important to do so in a manner that is consistent with peacebuilding and that complements the initiatives of government; while at the same paying attention to sensitivities of nonstate actors on the connotations of DDR. In a related vein, efforts to localize the peace process are in keeping with the precept s that the peace process in the country is inclusive and community-based. On the one hand, there 6 Palm-Dalupan, 2000 cited in Ferrer, 2005 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 13 should be recognition of the concern that the localization efforts may have the effect of fragmenting and weakening peace talks between the armed groups and the government. On the other hand, local peace efforts can motivate both armed groups and government to resume and vigorously pursue peace talks to their successful conclusion. 46. Coherence and Accounting for Results. Portfolio partners applied a range of interventions, combining organizing strategies (of communities, of advocates themselves); engagement strategies intended for the parties in conflict; campaign strategies to mobilize communities, sectors or the general public; and responsive strategies combining humanitarian, peacebuilding and development initiatives. The PMOs of the CPPB and ACT for Peace Programmes developed and are refining peaceoriented performance measurement systems. The CPPB is in the course of fine-tuning its Results and Resources Framework (RRF) to further hone programming and performance management. The draft version of the revised CPPB RRF is annexed to this report. AusAID is assisting the ACT for Peace Programme in enhancing its monitoring and evaluation system. The Portfolio and the two PMOs regularly conduct monitoring activities and discuss and resolve issues through the lens of conflict analysis and peace-sensitive planning. Interest was raised in the Outcome Board on accounting for “peace dividends.” 47. Developing National Capacities. The Crisis Prevention and Recovery Portfolio supported projects and activities that engaged Filipino peace and conflict stakeholders at different levels. Using Lederach’s pyramid as a model, top level actors such as legislators and their representatives; administrators, senior managers and representatives of government agencies in particular security institutions; local government officials were involved; as were middle level actors coming from the religious sector, academe, civil society and professionals; and certainly actors from the grassroots. Thus, the Portfolio is inclusive and able to address different conflicts at varying and more effective levels. This multi-level and multi-actor approach also contributes to the broadening of the constituency for peace in the country and further strengthens the peace infrastructure. Because it does not automatically limit the involvement of the public sector, the multi-actor approach is also consistent with the notion of “best sourcing” rather than mechanistic outsourcing. Depending on mandates, capacities, and the nature of the result being pursued, it might still be more strategic to work with publ ic institutions rather than mechanically engaging non-state delivery systems. 48. Advocating for and Fostering an Enabling Policy Environment. As indicated under the discussion on Outcome 1, Portfolio efforts to facilitate policy dialogue among key state and non-state stakeholders to build broad-based consensus around national and local peaceoriented goals and targets are significant. OPAPP initiatives to finalize the conceptual framework on peace indicators and to track government's progress in addressing NUC policy recommendations; legislators-CSO collaboration to legislate House Bill No. 5767, the National Peace Act of 2006, and Provincial Technical Working Group discussions on peace planning are key examples of the ongoing dialogue. Portfolio stakeholders pointed to the need to further pursue social, economic and political reforms to address the root causes of conflict, which i s one of the six paths to peace. It is thus important that the Portfolio and the partners enhance the involvement of other 7 8 Typology of strategies partially derived from Ferrer, 2005. Lederach’s ladder was cited in Working with Conflict, by Fisher, Simon., et. al., 2000 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 14 government institutions. Among these are the National Anti -Poverty Commission (NAPC), which is tasked with coordinating the implementation of the Social Reform Agenda recognized as an offshoot of the peace agenda building process, and the National Commission on Indigenous Peoples (NCIP). 49. Seeking South-South Solutions. UNDP and the lead national partners (OPAPP and MEDCo) in the Conflict Prevention and Recovery Portfolio are encouraged to foster more “south-south” interaction and learning among partners. It has been pointed out that Luzon and Visayas peacebuilders can learn from the experiences of the post-GRP-MNLF FPA multi-donor programmes in Mindanao the same way that rido-affected communities in Southern Philippines can benefit from the indigenous conflict resolution mechanisms of the Cordilleras. 50. Promoting Gender Equality and a Rights-Based Approach. The Portfolio took steps to promote the rights-based approach (RBA) and gender equality. For instance, RBA and gender equality were highlighted in CPPB proposal development process. To date, ACT for Peace efforts are in the areas of human rights advocacy, a rights-based approach to governance and development, and ensuring women access to assistance and services and participation in development processes. The Portfolio’s adherence to the human security framework – “the safety from such chronic threats as hunger, disease and repression, and protection from sudden and hurtful disruptions in the patterns of daily lives, whether in homes, jobs or communities”-- also made sound thematic links to the Millennium Declaration and the Millennium Development Goals.9 The integrated support (water, nutrition, herbal medicine and livelihood) provided by ACT for Peace to PDCs contributes to the achievement of the targets for MDG Goals 1 and 4. Portfolio initiatives are in support the principles and goals of the Millennium Declaration. Overall, gender equality mainstreaming and advocacy for the MDGs need to be further strengthened in Portfolio-supported programmes. Cognizant that women and men are affected by conflict differently, with the former most affected by its negative consequences, the Portfolio should endeavor to address the gender dimensions of conflict, addressing not just practical gender needs but more importantly the strategic ones, and to promote gender differentiation. The strategy initially identified by UNDP regarding the role of women (“Supporting governmentcivil society partnerships to build a nationwide constituency for peace, with heavy involvement of women given they are proven to be effective peace educators”) needs to be reformulated and redirected towards identifying other strategic roles of women lest they be stereotyped in the role of peace educators. 51. Forging Strategic Partnerships. Aside from UN-national engagement under the National Execution scheme, the Portfolio entered into strategic international partnerships and interagency collaboration to achieve CP objectives. The Portfolio is co-convenor of the UNDAF working group on conflict prevention and peacebuilding which involves a number of UN agencies. It also co-chairs with Japan the Mindanao Donors’ Group. The Food and Agriculture Organization (FAO), United Nations Population Fund (UNFPA) and the International Labour Organization (ILO) currently sit in the ACT for Peace Executive Committee. Although no direct projects have been implemented under the programme by these agencies to date, their participation has fostered complementation and provided strategic guidance to implementers. Discussions with UNICEF to coordinate initiatives in peace education are ongoing. 9 Human Security definition was culled from the Human Development Report 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 15 UNDP is a member of the Mindanao Trust Fund Steering Committee. It also engaged members of the Organization of Islamic Countries (OIC) Committee of the Eight in efforts to reinvigorate the 1996 GRP-MNLF Final Peace Agreement. In September 2006, a partnership agreement was signed between the ACT for Peace and the UN World Food Programme (WFP) for a Food for Work and Food for Education Program for PDCs. Further, the Portfolio also engaged in discussions with the Japan Bank for International Cooperation (JBIC) to develop a design of assistance for the Ligawasan Marsh; and with the Japan International Cooperation Agency (JICA) to further promote human security. The Portfolio cooperated with the Konrad Adenauer Foundation (KAF) for a lecture series on the assessment of the GRP-MNLF Final Peace Agreement. The Portfolio also collaborated with AusAID regarding the fine-tuning of the ACT for Peace Programme monitoring and evaluation system, and to conduct a national interfaith dialog on peace. 52. Financial Performance. The Portfolio financial performance needs to be fast tracked. Measures to guide the two Programmes in improving cost effectiveness and transaction costs can be best determined through audits and other management processes and will have to take into consideration not only UNDP and Philippine government guidelines but also industry standards, mindful that this particular industry (peacebuilding and conflict prevention) may not necessarily lend itself to the usual measures of performance . Factors that Affected Portfolio Implementation in 2006 Facilitating Factors 53. The Portfolio is viewed as a neutral and credible mechanism by stakeholders and communities. For instance, United Nations and Government support as embodied by the CPPB Programme is perceived to lend prestige and credence to local peace efforts, as attested by members of the San Jose Sanctuary of Peace and Sustainable Development core group in Tarlac. The Portfolio also has the potential to play a “third party” role in that it is viewed as an outsider to parties involved in conflicts. As an intermediary, t he Portfolio can provide a neutral character in the dialog between government and civil society groups towards resolving contentious issues. On a related matter, concern was raised over the implications of the perception that overly identified the CPPB Programme with UNDP. While it is recognized that government leadership is needed to ensure aid effectiveness, applying the UNDP driver on “developing national ownership” needs to be contextualized within the reality that conflict prevention and peacebuilding initiatives operate in an environment where tensions exist between and among different groups within a country, such as government and non-government actors. 54. CSO partners expressed appreciation of the CPPB Program Management Office (PMO) and its efforts to provide practical guidance in order to develop proposals partners that would not run counter to OPAPP priorities. An emerging concern is CSO apprehension over the risk that OPAPP, rather than serving the strategic role of integrator of peace initiatives, might end up becoming the gatekeeper of the CPPB, deciding on resource allocation and approving partnerships and projects. 55. The active participation of both government agencies and non-state actors such as civil society organizations and communities enabled the Portfolio to operate well in 2006. Concerned government agencies initiated or joined activities, provided information and supported policy development initiatives. Non-state groups made available counterpart resources and technical capabilities. 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 16 The UN Secretary-General Kofi Annan in his Report on the Prevention of Armed Conflict said that “Conflict prevention must have national ownership. The primary responsibility for conflict prevention rests with national Governments, with civil society playing an important role.” In light of the nature and dynamics of conflicts in the Philippines, t he Portfolio would do well to continue to take advantage of the following added value brought by civil society to conflict prevention and peacebuilding as culled by the Global Partnership for the Prevention of Armed Conflict (GPPAC) from actual experience:     Civil society can contribute depth and durability to peacebuilding They can wage conflict constructively Among the functions of civil society in peacebuilding is to be agents for change Civil society can help shift conflict attitudes; they have the power to re-frame and change perceptions  They can assist conflict-affected communities and combatants in envisioning a better future with their abilities to identify, to analyse and to propose  They can help make peace, leading to agreements  They can also promote security in that they can work to reduce violence and promote stability Limiting Factors 56. Both CPPB and ACT for Peace Programmes experienced delays in project implementation in 2006. CPPB partners had to refine project frameworks and adjust project targets to be responsive to field developments. ACT for Peace had difficulties in complying with processes and documentation requirements relating to administrative and financial transactions pending completion and approval of its Manual of Operations. It was also acknowledged that peace competencies of ACT for Peace staff required further strengthening. 57. While the Local Project Appraisal Committee (LPAC) had already defined targets and activities for the CPPB, the Programme had to focus on generating, receiving and acting on proposals from partners in its first year and a half of operations. Efforts are ongoing for CPPB to further sharpen programmatic coherence, implementing preferred strategies with partners, and achieving planned objectives and target results. 58. The receptiveness of the target groups, be they communities, government agencies, former combatants or civil society organizations, is important to the success of Portfolio interventions. The hesitance of some MNLF leaders to cooperate and participate in the implementation of ACT for Peace activities in view of leadership dynamics within the MNLF delayed the start of community interventions. Similarly, the readiness of government agencies to participate in dialogues is a critical factor in advancing the discourse on human security as a framework that informs government policies and plans. Receptiveness could be a function of different factors, among them the degree to which leaders or representatives of target groups are exposed and committed to peacebuilding and its processes. 59. The June 2006 “all-out war” policy pronouncement of President Gloria Macapagal-Arroyo against the CPP-NDF-NPA was assessed to have negatively affected the implementation of ACT for Peace Programme strategies particularly in the Caraga region. Overall, threats to individual security in the form of extra-judicial or unexplained killings were identified to be among the factors that affected the current climate surrounding peace and democratization work. 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 17 Emerging Concerns and Indicative Recommendations 60. There are emerging concerns regarding the roles of the CPPB Programme stakeholders (OPAPP, UNDP and the PMO). They are discussed here in the spi rit of providing “early warning” and of encouraging proactive action. 61. The finalization of the draft Letter of Agreement between OPAPP and UNDP might provide the avenue to thresh out roles and fund management concerns. The draft document was submitted to the IP for review. OPAPP’s Role 62. There are expectations from civil society and other non-state stakeholders for OPAPP, as Programme Implementing Partner, to play the more strategic role of being a programme integrator to further advance and secure the gains peace. Among others, this means harmonizing policy reform initiatives for coherence, stimulating collaboration and learning among responsible partners, and utilizing project successes and local initiatives to inform policy development. These recommendations support current efforts to implement CPPB programmatic targets set by the LPAC. Further, the ideas are consistent with the recommendations that peace stakeholders outlined to OPAPP, being the agency mandated to implement the government’s comprehensive peace process. In a previous workshop, peace advocates challenged OPAPP to further evolve its role in the peace process and to be more effective in its role as an internal advocate with respect to government.10 Related to this, civil society groups articulated misgivings regarding the decision-making powers of the Implementing Partner over projects. They cited possible conflicts with government priorities and OPAPP’s other role as a direct implementer of projects. For the year 2006, OPAPP is responsible for 12 projects with CPPB funding support in the amount of PhP7.8 million, representing 34% of total Programme commitments for the year. While no actual incidents have been reported, there seemed to be uneasiness on the part of responsible partners over the prospect that projects perceived to be incompatible with government’s priorities and position, or competing with OPAPP’s own projects would not be funded under CPPB. Some examples mentioned were civil society policy development and advocacy work on conflicts that are rooted on natural resource utilization such as mining and other conflict-generating issues. CSOs believe that for the Programme to continue to be effective, CPPB has to be insulated from politics-induced changes. 63. Indicative Recommendations. Three suggestions that revisit implementation arrangements were put forward in the spirit of preserving and optimizing the roles of civil society in peacebuilding.11 The first option is to create within the CPPB a window dedicated to civil society projects which would be managed by the PMO and not subject to approval by OPAPP. In effect, 10 OPAPP does not disagree with this. However, OPAPP’s view is that although the peace effort is a priority, it will still have to compete with other government policies and priorities; and balance must be observed between the objectives of security operations and peace efforts. OPAPP believes that it can play the lead role in internal advocacy, peace education and conflict transformation skills training specifically designed for the government service. 11 As cited in an unpublished work by Dalupan, civil society peacemakers are convenors of sectors, catalyzer of dialogs, the conscience of citizens, and critical and creative participants 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 18 there would be two windows, one for state institutions and the other for non -state groups. Second, the role of implementing partner would be vested on a public ac ademe-based institution, which in effect would have a semi-government character. The third suggestion entails maintaining the current arrangement with the proviso that a mechanism that involves a CSO representative in project review and approval would be set up. While there seemed to be openness on the part of OPAPP to further discuss the idea of a modified implementation arrangement, it did express uneasiness over possible unintended consequences. In particular, the existence of separate windows might defeat the call for integration and lead to inadvertent competition between government agencies and the voluntary sector for Programme resources and hamper engagement and coordination. Moreover, OPAPP posited that a sharpened programmatic approach, defined by both state and non-state partners, will institutionalize targets and approaches agreed on by stakeholders and insulate CPPB from political and other developments. These feedback and recommendations are indicative and merit further study and discussion. 64. Moreover, discussions on implementation arrangements should take into consideration the intent of UNDP to introduce and apply the Projects in Controlled Environments 2 (PRINCE2) system to its country programming. 65. Interestingly, the composition of the Project Executive Group (PEG), one of the mechanisms to be activated under PRINCE2, includes “an executive representing the project ownership, a senior supplier to provide guidance regarding the technical feasibility of the project, and a senior beneficiary to ensure the realization of project benefits from the perspective of project beneficiaries.” The PEG is “responsible for making executive management decisions for a project when guidance is required by the Project Manager, including approval of project plans and revisions.” 66. OPAPP said that the CPPB practice of providing resources for projects of the Implementing Partner on a cash advance basis per activity is time-consuming and adds to the agency’s administrative work. Earlier, low utilization in OPAPP advances was noted. 67. In the interest of streamlining programme management processes and to foster direct interaction with resource partners, OPAPP also expressed preference to “create a small office within its office” and to “make the PMO an office of OPAPP.” Currently, due to space limitations at OPAPP, the PMO is holding office outside of the IP’s premises. 68. Indicative Recommendations. The re-examination and refinement of CPPB programme management arrangements and practices have to be located within the context of PRINCE2. UNDP’s Role and Niche 69. Portfolio partners are also looking to UNDP to perform roles other than providing financial support. Thus far, the Portfolio has been participating in the activities of the two Programmes and providing advice through the two PMOs. Nevertheless, non-state stakeholders stressed that UNDP has the trust of and access to both government and nonstate peace actors, that it has worldwide presence, and that it has a unique role in coordination and forging partnerships. They also recognized that the current composition of the Portfolio is strategic in that it is able to provide institutional memory of the 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 19 Philippine peace process, and has the ability to grasp and synthesize both state and nonstate points of view. 70. Indicative Recommendations. In light of the above, UNDP is asked to further heighten its role as convenor, advisor, enabler and supporter to ensure successful Component implementation. UNDP’s international character and its reputation as a neutral and credible institution augur well for convening and facilitating dialogue between government and civil society groups towards resolving contentious issues. UNDP can use its global experience and vast resources to share insights and provide advice to peace act ors in the Philippines. It is encouraged to apply further its influence, resources and achievements to leverage further policy changes that would advance social, economic and political reforms and address the root causes of conflicts in the Philippines. Any further evolution in UNDP’s role needs to take PRINCE2 into consideration. Summary 71. As of the second year of CPAP 2005-2009 implementation, the objectives and results structure of the Conflict Prevention and Recovery Portfolio continue to be aligned with relevant international and national policy instruments. The Outcomes are highly relevant. There are concrete indications of progress towards the achievement of the Crisis Prevention and Recovery Portfolio outcomes. The Portfolio addressed themes and supported strategies that are recognized as coherent with peace work. It also mobilized and engaged a multi-actor approach, assisting them as they addressed conflicts at different levels. The Programmes under the Portfolio are consistent with accepted peace criteria and with UNDP development drivers. Portfolio ability to harness strategic partnerships in advancing objectives is noted. The Portfolio achievements should be appreciated within the complex milieu in which the Portfolio operates: the conflict environment, the political, policy and local contexts, and the dynamics among peace/conflict actors. It is also too early to tell whether the results are “durable.” However, it should be noted that the ACT for Peace Programme in particular is built on ac hievements of the previous phases of the multi-donor programme which continue to be observable on the ground . Specific concerns, particularly on gender equality mainstreaming and the promotion of the Millennium Declaration and the Development Goals, which could further improve Programme effectiveness and efficiency, were identified . FUTURE WORK PLAN Convergence Areas 72. There is obvious rationale for Portfolio to converge and collaborate with other UNDP programmes. The themes pursued by the other portfolios (good governance, empowerment of the poor, and environmental sustainability) are the same themes that need to be addressed to tackle the root causes of conflict and to enhance national efforts to pursue a just, comprehensive and lasting peace. What seems to be missing is a sense of “urgency” to accomplish reforms in these areas and contribute to the full conclusion of the peace process in the country at the earliest possible time. Perhaps Crisis Prevention and Recovery can be used as a “lens” to inform and focus the policy reform work undertaken by the other portfolios. 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 20 This approach is also a more realistic way of actually undertaking comprehensive and coherent policy reforms to achieve peace. The CPR Portfolio by itself can not hope to support national action on the comprehensive policy reform package identified by the National Unification Commission in 1993. 73. Mindanao is another logical area for convergence among the UNDP portfolios. However, the concern should go beyond ensuring that UNDP programming in Mindanao are coherent and are not competing. There are opportunities to ensure vertical and horizontal integration and further produce added value. Mindanao peacebuilding experiences can be used to inform national development processes, particularly in policy, planning and programming. Peace actors from Luzon, Visayas and Mindanao can learn from each other. 74. At the same time, it should be emphasized that armed conflicts affect other parts of the country, and not just Mindanao. Hence, there is need for a comprehensive, coherent, national peacebuilding programme. 75. Water, which intersects poverty, governance, peace, and the environment, was identified as another possible thematic convergence point among the different portfolios. 76. Beyond this, there are prospects for UNDP to foster “regional knowledge convergence/build-up and exchange” For example, learnings from developments in other conflict-affected/vulnerable countries in the region such as Timor Leste can be shared to Filipino and other peace actors. Priority Actions Planned for the Rest of 2006 and for 2007 77. Both CPPB and ACT for Peace Programmes have to ensure the vigorous implementation of Programme projects/activities to improve their financial performance and catch up on targets for the year. The two Programmes are revisiting their plans for the remaining quarter. To fully utilize the additional TRAC funds allocated to CPPB for this year, PMO identified and processed seven new project proposals. These are currently being reviewed and finalized by PMO along with the corresponding Terms of Reference and Memorandum of Agreement which are for National Programme Director approval. If and when approved, the implementation of these projects will most likely spill over to the next year. The ACT for Peace Programme declared that it will fast track implementation of planned activities especially in the delivery of tangible projects without undermining peacebuilding processes as well as Programme guidelines and procedures. It is aiming for a minimum delivery rate of 92%. 78. The CPPB and ACT for Peace Programmes are enjoined to take into consideration not only their specific project performance and contexts but also the following opportunities and risks in the preparation of their 2007 annual work and financial plans. 79. Further, the Portfolio is encouraged to consider the findings and recommendations with respect to management arrangements and other concerns identified in the review. Two concerns were further raised during the presentation to the Outcome Board: indigenous peoples and the internalization of the peace process. Indigenous peoples are among the most marginalized communities and most affected by 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 21 violent conflicts. UNDP is asked to provide advice and avenues to deepen discussion on ancestral domain given the perceived differences between the perspectives of Islamized IP communities (i.e. Muslims in Southern Philippines and their view of the ummah) and of other IP communities elsewhere in the country. UNDP also requested to identify and point to experiences and models that might help IP communities in the Philippines rehabilitate natural resources and benefit from (land) tenurial reform and the sustainable use of such. Stakeholders point to the need to promote internalization of the peace process and agenda among members of the public sector, particularly among security sector institutions. The abilities of OPAPP to lead in “internal advocacy” for conflict prevention, peacebuilding and human security require strengthening. This should be recognized as a strategic results area and thus merits further Outcome Board attention. 80. It is recommended that steps be taken to convene the Outcome Board for the Portfolio and the Project Executive Group (PEG) of the CPPB Programme. The notion of a four-party Outcome Board composed of representatives from NEDA, UNDP, CSOs and the Implementing Partner, was raised at the November 6-8 session of the Outcome Board. Changes in the implementation arrangements for the ACT for Peace Programme, which are already well-defined and established, will have to be discussed further. Opportunities and Risks 81. Executive Order 569 (“Defining the Role of the Regional Kapit-Bisig Laban sa Kahirapan [KALAHI] Convergence Groups in the Comprehensive Peace Process and Providing Funds for the Purpose”) which designates all Presidential Advisers (PAs) as Regional Peace Advisers is a new opportunity for the Portfolio. The issuance of the EO will be followed by the development of the Terms of Reference in coordination with the National Anti-Poverty Commission (NAPC). The PAs will be capacitated as part of efforts to enable the bureaucracy to see beyond peace and order issues. This regional level strategy will hasten complementation and interface with local initiatives. 82. There is a risk of heightened armed conflict with the CPP -NDF-NPA given the all-out war policy of government and the refusal of the former to pursue the peace talks. The NPA is active in some of the areas covered by the CBBP Programme such as Southern Luzon, and in Caraga region which is in the geographic coverage of ACT for Peace . 83. Latent conflict may erupt in specific areas due to the heightening of resource-based differences, specifically in mining areas and agrarian relations. The recently unveiled Super Regions strategy, which delineated areas based on their natural comparative advantage, clearly identified responsible minerals development and quarrying as strategic themes to be pursued in the North Luzon Agribusiness Quadrangle, Central Philippines and Mindanao Super Regions. 84. There is concern over the outcome of the 2007 election and how this will affect both local and national agenda. However, the elections and the development agenda-setting process that will follow it can be opportunities to continue to include and strengthen human security in the electoral and political agenda. 85. Current efforts to legislate a national peace policy also constitute an opportunity for the Portfolio to achieve a key result area. The Peace Bill may have to be re-filed if it is overtaken by the 2007 elections. 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 22 Adjustments in Key Results in the Country Programme 86. Based on discussions, there appeared to be common appreciation of and support for the Portfolio’s “results logic” among OPAPP and CPPB non-state partners. CP Outcomes 1 (“Peace building, conflict prevention, and human security mainstreamed in development processes”) and 2 (“Key actors are better able to prevent, manage and resolve conflict and to build peace and human security”) were perceived to be strategic change areas and deserved to be prioritized in terms of resource allocation. Outcome 3 (“Conflict-affected communities have improved access to basic services, increased incomes and participate in governance”) is perceived to speak to the substance of human security, and should benefit further from the achievement of Outcomes 1 and 2. Nevertheless, it is clear to the stakeholders that it is not a matter of choosing which outcome area to prioritize; and that Outcome 3 should not be viewed as a result area that would be achieved much further down the line, and only after the two other outcomes have been achieved. 87. It is recommended that for the Conflict Prevention and Recovery Portfolio the UNDAF results matrix be harmonized with the most recent version of the CPAP outcomes and outputs. The latter has benefited from additional technical input of peace practitioners. 88. UNDP and its partners are also expected to report on the progress towards the UNDAF outcomes. Specifically, the Portfolio must account for UNDAF Outcome 5 (“By 2009, the level of violent conflict has been reduced and human security and the culture of peace has been promoted nationwide”). Mindful of the inherent difficulties in tracking progress in peacebuilding and conflict prevention (i.e., direct attribution is contentious and leads to causality and attribution issues), it is encouraged that there be early discussion and agreement among the Outcome Board members on the preferred scope and focus of, and approach to outcomes monitoring at the UNDAF level. OPAPP efforts to develop peace indicators can be factored into this process. 89. The current phrasing of Outcome 3.1 has direct reference to “conflict-affected areas (Southern Philippine areas affected by communist insurgency).” This needs to be revisited and reformulated in light of the nationwide coverage of the Portfolio, and of the recognition that the transformation of conflict-affected communities is relevant to the entire country and not only to Southern Philippines. 90. Moreover, in the past it had been recommended that the Component title and Portfolio identity be revised to “Conflict Prevention and Peacebuilding” to reflect the current focus and scope of the Portfolio. However, any action on this should take into consideration other corporate developments within the UNDP global system. 91. On a specific note, it is suggested that multi-stakeholder input be solicited in the finalization of the draft version of the revised CPPB Programme Results and Resources Framework (RRF) to further polish target-setting and increase buy-in. 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 23 REFERENCES Barnes, Catherine. 2006. Agents for Change: Civil Society Roles in Preventing War & Building Peace. European Centre for Conflict Prevention, The Netherlands Dalupan, Ma. Lorenza. A Review of Selected Literature on Lessons from the Philippine Peace Process. Unpublished paper. Ferrer, Miriam Coronel. 2005. Framework and Synthesis of Lessons Learned in Civil-Society Peace Building. Volume I of Learning Experiences Study on Civil-Society Peace Building in the Philippines. UP Center for Integrative Studies (UP-CIDS) in partnership with the United Nations Development Programme (UNDP), Manila. Fisher, Simon, et. al. 2000. Working with Conflict: Skills and Strategies for Action. Zed Books Ltd., London, UK in association with Responding to Conflict, Birmingham, UK. Waging Peace in the Philippines. Strengthening Peace Movements and Instituting the Politics of a Just Peace. Conference proceedings. December 6-7, 2006. Gaston Z. Ortigas Peace Institute 2006 CPAP Annual Review Report: Crisis Prevention and Recovery Portfolio 24