Overview of APRM as a Governance Improvement Mechanism APRM-NPoA Monitoring and Evaluation- Case of Ghana By Samuel Cudjoe Executive Secretary NAPRM-GC Ghana

Outline of Presentation 1. Introduction/Background 2. Existing M&E Frameworks 3. APRM Governance Monitoring Framework 4. Participatory and Expert Monitoring 5. Role of NGC, CSOs and National Agencies 6. Evaluation of Governance Impact 7. Conclusion

1. Introduction Ghana acceded to the African Peer Review Mechanism (APRM) in March 2003 and completed the review in January 2006 in Khartoum, Sudan To ensure implementation of the National Program of Action (NPOA), it was mapped onto the national development plan, Growth and Poverty Reduction Agenda, 2006 – 2009 Implementation of the NPOA is financed through line Ministries annual budgets Budgets for implementation are tracked by the Ministry of Finance and Economic Planning

1. Introduction Ghana’s APRM M&E Framework was developed to conform to the APRM Guidelines on M&E. The principles underlying the framework were: Transparency and credibility, Participatory and inclusiveness Transformation The framework aims to track: Activities implemented under the NPOA Resources invested in the implementation Outcomes achieved in the implementation

1. Introduction To achieve the above objectives Ghana needed to address the following: Review existing data collection mechanisms to ascertain how well they respond to the data needs of the APRM Mechanisms/tools to collect data (ensuring quality, validity and accuracy) Uses of the data collected

2. Existing M&E Frameworks A. Institutional Framework The framework is informed by the decentralization system in Ghana National Development Planning Commission (NDPC) Ministry of Finance and Economic Planning (MoFEP) Ghana Statistical Service (GSS) Policy, Planning, Monitoring and Evaluation Directorates (PPMEDs) of Ministries, Departments and Agencies Regional Planning Coordinating Units (RPCUs) District Planning Coordinating Units (DPCUs)

2. Existing M&E Framework NDPC established by the National Development Planning (System) Act of 1994 (Act 480). NDPC develops and monitors the national development plans (Ghana Shared Growth and Development Agenda, 2009 – 2013) MoFEP plans, develops and monitors the national budget GSS established under the PNDC Law 135 monitors socio-economic indicators PPMEDs as the name implies develops and monitor line ministry plans

2. Existing M&E Framework RCPU – coordinates district development plans, and monitors and evaluates their implementation DCPU – develops, implements and monitors district development plans

2. Existing M&E Framework Sector Working Groups (Governance, Decentralization, Economic Management, etc) Multi-Donor Budget Support Review (MDBS) Civil Society Coalitions and Platforms (Corruption, Oil & Gas, Education, Health, Right to Information, Human Rights, etc) APRM Governing Council – develops and monitors the National APRM Program of Action

2. Existing M&E Framework Legal Framework Established by Acts of Parliament NDPC, (RCPU, DCPU), MoFEP, GSS, MDAs, Not established by Acts of Parliament SWGs, Civil Society Coalitions APRM-Council (Council established by Presidential Office Act, which permits the President to establish special committees for a specific activity). Were not made to swear an oath of secrecy/allegiance to the President

3. APRM M&E Framework The Council had three options to contend with Use exiting M&E frameworks Develop a new M&E framework (specifically designed for the APRM) Use existing with some modifications s far as possible. The use of the national planning, monitoring and evaluation system guarantees greater success in operationalizing and domesticating international commitments including the Programme of Action (POA) of the APRM;

3. APRM M&E Framework Option 1: Using existing frameworks Example: National Development Planning Commission’s M&E Frameworks Tried and tested Relatively cheaper since infrastructure already exist Sustainability assured Carry along inherent weaknesses (weak civil society participation and input) APRM progress reports not different from NDPC reports

3. APRM M&E Framework Option 2: Develop new framework Unique features pertaining to the APRM CS controlled process (just as during the Country Self Assessment) Enormous cost in putting together the needed infrastructure Sustainability of the infrastructure is questionable (unless innovative means are discovered)

3. APRM M&E Framework Option 3: Complement existing Identify gaps in the existing framework Develop framework to fill gaps (whist maintaining unique features of the APRM) Additional infrastructure not too costly Sustainability assured if “turf issues” are resolved

3. APRM M&E Framework Reports APR/Presidency Citizens (District Oversight Committees) APRM Secretaria t CSOs/TRI s/Experts NDPC/GS S/MOFEP /MDAs Governing Council

4. Participatory & Expert Monitoring Expert Monitoring: National Development Planning Commission (NDPC) monitors APRM indicators in the national development plan Ministries, Departments & Agencies – provides information via their PPMEDs National level CSOs (CDD-Ghana, IDEG, IEA-Ghana, CEPA, Private Enterprise Federation) – submit their annual reports and other studies to the APRM Secretariat Government-CSO-DP Platforms – reports to the APRM Secretariat Subject matter consultants – engaged for specific studies

4. Participatory and Expert Monitoring Reporting MDAs: report on progress of implementation of activities as indicated in NPoA. (same report submitted to NDPC).

4. Participatory & Expert Monitoring Participatory Monitoring: The Expert Monitoring is through participatory processes Role of civil society in M&E? Role of local level CSOs in M&E? Establishment of District APRM Oversight Committees Use of Citizen Report Cards to elicit citizen feedback on governance and service delivery Creation of platform for civil society – local authority dialogue Transformation in inputs into District Medium Term Development Plans

4. Participatory & Expert Monitoring Timing Time when NPOA is merged with development plans and MTEF is critical In cases where the NPOA development coincides with the development of the national development plan, APRM issues can easily be loaded on (in 2006 Ghana was preparing its GPRS II) Where the NPOA development occurs after the development of the MTEF, there are delays in merging the two documents, and in some cases the NPOA must wait for the next MTEF cycle, by which time short-term priorities may have changed.

4. Participatory and Expert Monitoring Spending quality Ghana’s MTEF process uses the ACTIVATE software which enables line items to be coded and tracked APRM indicators under the various thematic areas have been coded and hence it is easy to track expenditures made for each item Challenges: the MTEF captures Ghana’s commitments under various international agreements: NEPAD, MDGs, APRM, MCA. An item “promote gender equality” may be tagged for all these initiatives. Direct DP funding to CSOs to undertake activities under the NPOA cannot be captured Priority of MDAs (Ministers) for “hardware governance issues” as opposed to “software governance issues”

4. Participatory and Expert Monitoring Efficiency and completion Poorly designed NPOAs with loads of “lower level indicators” record high implementation completion levels. For example: Promote and protect rights of PWD 1. Pass the Disability Act

5. Role of NGC, CSOs and National Agencies MDAs/ GSS TRIs NGC DOCs CSOs/CS O Platforms NDPC

5.1: Role of NGC Coordinates the implementation of the Country Self Assessment (IT IS NOT AN IMPLEMENTER) Facilitates the preparation of the National Program of Action Supports the NDPC in merging the NPOA and national development plans Monitors and reports on the implementation of the APRM to the APR Secretariat Facilitates the decentralization of the APRM in Ghana Popularizes the APRM in Ghana Allows “the voices of the people” to be heard by duty bearers Represents Ghana at APRM events The NGC IS NOT AN IMPLEMENTER!

5.2: Role of Civil Society Civil Society actors have been at the forefront of the APRM process in Ghana. Indeed, all the seven (7) members of the Governing Council are non-state actors. Participate in the Country Self Assessment (by making inputs and validating the report) Implements activities in the NPOA that fall under their domain (no funding from Government) Participates in the Monitoring and Reporting of the implementation of the NPoA (holds government accountable to the implementation) Popularizes the APRM (esp. media)

5.3 Role of National Agencies NDPC – incorporates NPOA issues into national development plans, and monitors implementation MOFEP – budgets for NPOA activities in the national plans; monitors releases through the ACTIVATE software at its Budget Unit GSS – supports the Council to design data collection tools for its decentralization activity (GSS now monitoring governance indicators) MDAs implements NPOA activities (through their annual work plans) PPMEDS of MDAs provide progress on implementation of NPOA

5.4 Institutionalization of NGC, CSO & national agencies in APRM M&E APRM Focal Points in MDAs; DoCs for CSOs at local level but not in national level CSOs On-going efforts to institutionalise at the local level (social audit framework) Use of existing institutional arrangements: Sector Working Groups; CSO Coalitions and Platforms District, Regional and National validations of NDPC and APRM

6. Evaluation of Governance Impact Transformational capacity of the APRM Enhances citizen input during policy formation Before APRM NDPC used District Monitoring Teams and Consultants to collect and collate inputs for District Development Plans Limited consultations due to time and resource constraints Limited feedback to districts After APRM Establishment of District APRM Oversight Committee Creation of platform for right holders (civil society) – duty bearers (local government) dialogue Outputs from dialogues feeds into the District Medium Term Development Plans

Evaluation of Governance Impact Policy development Specific policy issues that came about as a result of the APRM Northern Development Fund (Savanna Accelerated Development Fund) Incorporation of a Corporate Governance component into the GPRS II Passage of key legislations: Whistle Blower Act, Internal Audit Agency Act, Financial Administration Act Constitutional Review Abolition of the Ministry of Parliamentary Affairs Establishment of Ministry of Chieftaincy and Culture

CONCLUSION M&E considerations (indicators, resources, reporting, use of information, etc) should be addressed during the development of the NPOA; Important to explore the possibility of using the national systems as far as possible. The use of the national planning, monitoring and evaluation system guarantees greater success in operationalizing and domesticating international commitments including the Programme of Action (POA) of the APRM; Involvement of stakeholders (AT ALL LEVELS) is critical to promoting a transformational society

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