TERMS OF REFERENCE

TITLE:

External Review of the Bangsamoro Community Policing Project

(2015-17)

2

1. BACKGROUND

The British Council: The British Council is the United Kingdom's international organisation for cultural relations and educational opportunities. We create friendly knowledge and understanding between the people of the UK and other countries. We do this by making a positive contribution to the UK and the countries we work with – changing lives by creating opportunities, building connections and engendering trust. We work with over 100 countries across the world in the fields of arts and culture, English language, education and civil society. Each year we reach over 20 million people face-to-face and more than 500 million people online, via broadcasts and publications. Founded in 1934, we are a UK charity governed by Royal Charter and a UK public body. Our work Society helps transform systems of governance builds more inclusive and open societies and increases young people’s opportunities. Strengthening the rule of law, ensuring access to justice and addressing and resolving conflict are fundamental to human security and the development of stable states where all citizens’ voices can be heard and economic opportunities realised. Our history and status put us in a unique position to be able to understand across a wide range of contexts, the needs, motivations and cultures of public servants, civil society and the private sector, all of whom play a part in negotiating and shaping the way in which justice, safety and security as public goods are administered and experienced in different countries and jurisdictions. In so doing the British Council builds links between UK people and institutions and those around the world, helping to create trust and lay foundations for prosperity and security around the world. We have been in the Philippines since 1978. Every year, we reach out to thousands of students, educators, policymakers, academics, researchers, creatives, entrepreneurs and community leaders in the Philippines. The Bangsamoro Community Policing Project The British Council initially received Overseas Development Assistance (ODA) funding from the United Kingdom in 2015 to implement a community policing project in the Autonomous Region of Muslim Mindanao (ARMM) of the Republic of the Philippines, called the Bangsamoro Community Policing Project (here after the Project). The Mindanao Island group has been experiencing armed conflict over the past 40 years, but on 27 March 2014 the Moro Islamic Liberation Front (MILF) signed the Comprehensive Peace Agreement (CPA) with the Government of the Philippines (GPH), strengthening the pathway to peace in the conflict-affected areas of Mindanao. In September 2014 the Bangsamoro Basic Law (BBL) – setting out the structure and organization of the new political entity - was submitted by the Government of the Philippines and the MILF to the Philippine Congress for the endorsement. The current BBL contains detailed provisions on Public Order and Safety, including the provisions of Article 11, as follows: The Bangsamoro Police shall adopt community policing as an essential mechanism in maintaining peace and order. It shall promote organization strategies that support the systematic use of

3

partnerships and problem solving techniques to immediately address public safety issues such as crimes and social disorder. Currently policing functions in the ARMM are carried out by the Philippines National Police (PNP). It is against this backdrop that the Project has been developed in order to support the aims of the BBL through the introduction of community policing in seven (7) provinces of the conflict affected Bangsamoro region. Phase I of the Project commenced in April 2015 with ODA funding from the UK and it concluded in March’16.Working with multi-stakeholders and non-state actors (including Security Reform International – SRI – and its Bantay Bayanihan network) during Phase I, the Project facilitated a change in the cultural relations between communities to prepare the Philippine National Police and the people in the Bangsamoro region for community policing. This was done through capacity building via training and coaching and mentoring, awareness raising, community consultations and strategy Toolkit development. From April 2016 to March 2017, Phase 2 of the Project – fully funded by the British Council - was able to implement 41 elements of the Community Policing Toolkit at a Pilot site within the Bangsamoro. This was done through training, mentoring, capacity building and community involvement (including local schools), awareness and update. An important element of the project has been the awareness raising, continual briefing and active involvement of the local communities in the pilot site in Parang, Maguindanao. Under Phase 3 – also fully funded by the British Council from April 2017 to March 2018 - the Project aims to implement the remaining elements of the Toolkit, mostly around partnership and consensus building amongst key stakeholders including the police, communities, and relevant government authorities. The wider political situation in the Philippines however has changed significantly since the May 2016 Presidential Elections and the priorities of the incoming Duterte administration. This continues to have significant effect on the priorities of the Philippines National Police and has resulted in a change in the time, resources and engagement invested in the Project by the PNP. For Phase 3, project planning, as in the previous phases, remains flexible out of necessity to accommodate an ever-changing situation. The contemporary political and security situation in the Bangsamoro and consequently the operating environment have both changed considerably over the lifetime of the Project – the 2017 declaration of Martial Law in Mindanao a key example. It has highlighted the Project’s continued need to be flexible in its focus and style of delivery - if it is to continue its valuable work and do no harm. The continued importance of the Project as part of the on-going peace process should not be under-estimated. Whilst the current context poses certain challenges it also presents opportunities for enhanced community involvement through responses that work in a culturally appropriate way in order to counter violent extremism and increase community resilience, as part of the post-conflict normalisation process. In order to respond better to the emerging context and its complex demands, the British Council will be conducting an external review of the Project and use the results to inform the design and scope of a possible Phase 4 (April 2018 – March 2019) of the Project.

4

2. DESCRIPTION OF THE ASSIGNMENT

2.1. Global objective

The over-all objective of this mission is to conduct an external review of the British Council’s Bangsamoro Community Policing Project (2015-18) in order to assess the achievement of its goals and objectives, as well as to advise on the scope and design of potential future interventions.

2.2 Specific objectives

Specifically, the mission is expected to achieve the following objectives:

a) To assess the overall performance of the Bangsamoro Community Policing Project against its anticipated results, using the following evaluation criteria: Relevance, Efficiency, Effectiveness, Impact and Sustainability;

b) Based on the findings from the review and mindful of the current context in the Bangsamoro, provide clear and actionable recommendations on the design and scope of feasible and context-specific interventions as part of a possible next phase of the project;

2.3 Requested services, including suggested methodology and required outputs

The scope of work of the consultant shall include the following:

a) A kick-off meeting with key British Council project team on the scope of the assignment;

b) Conducting a desk-review of background literature relevant to the specific objectives of the assignment e.g. British Council thematic guidelines, UK Government development policies, Government of the Philippines policy documents/regulations/draft legislation; Key project documents, including but not limited to project scoping studies, project business case, relevant project management plans, budgets, communication/visibility materials, internal project progress reports and reports from implementing partners;

c) Conduct key informant interviews, focus group discussions, and/or consultation meetings with project staff, implementing partners (SRI/CR), and project beneficiaries - including local community representatives – in a selection of project areas;

d) Interview key actors, counterparts and stakeholders in the peace, safety/security and policing sector in the Bangsamoro, including but not limited to the Philippine National Police, Local government (Municipal/Barangay) in pilot areas (including schools), the National Police Commission, relevant Peace Panel representatives, MILF representatives, the Philippine Public Safety College and representatives of Development Partners/donors active in this sector, particularly the UK and European Union;

5

e) Prepare a fist draft review report of the preliminary findings and future project options/scope/design and present these to the British Council project team during a half-day briefing session, facilitated by the consultant; and

f) Submit a final review report incorporating feedback from the British Council project team and other stakeholders;

The required Outputs of this mission are the following:

a) An Inception Report (containing a proposed methodology and workplan), submitted to the British Council no later than 5 days after the kick-off meeting.

b) The primary deliverable of this assignment is a Review Report, structured as follows:

Preamble/Background Executive Summary Main findings related to the overall and specific objectives of this

assignment (Review Criteria) Conclusions & Recommendations Lessons Learnt Annex: Logic Model outline of project phase 4 design, with supporting

text. (See Annex A to this terms of reference for an exposition of the evaluation criteria and suggested report layout and see Annex B for a Logic Model project outline example1.)

3 EXPERT’S PROFILE

3.1 Number of requested experts and number of days required per expert

The following type of expertise is required:

Position Designation Type of Expertise

Duration

(working

days)

1 Evaluator Post-Conflict, Peace Building,

Safety &Security/Policing 35

The indicative breakdown of the level of effort for the consultant is as follows:

1 The Logic Model Project Outline(Annex B) is simply a suggested approach to the conceptualization and design

of phase 4 of the Project. Consultants may suggest and agree with the British Council an alternative approach/model during the Inception Phase of the assignment.

6

Activity No. of Days

a) A kick-off briefing and discussion with the British Council on the scope of the assignment; 1

b) Desk review of background materials relevant to the specific objectives of the assignment and Inception Report; 10

c) Conduct key informant interviews, focus group discussions, and consultations;

15

d) Prepare first draft Review Report, including new project concept;

5

e) Present key findings to the British Council project team. 1

f) Prepare final Review Report and edits 3

Total 35

The expert should have the following skills and competences:

Fluent in spoken and written English;

Excellent analytical and research competence;

Excellent interpersonal skills;

Active listening skills and strong writing skills;

Ability to coordinate and communicate with key stakeholders.

Profile required (Education, General and Specific Experience)

Post-Conflict, Peace Building, Safety & Security/Policing Expert

Qualifications and skills

University degree in political science, peace building, governance, law or related field;

Proven ability and knowledge of conducting cross-disciplinary research, analysis, reviews, assessments and/or project design or formulation.

General professional experience

Minimum of 5 years of relevant professional experience in the field of governance, post-conflict development, peace-building and/or rule of law reform;

Proven experience in project reviews/evaluation and design, in a developing country context;

7

Specific professional experience

Strong knowledge and experience of the governance and rule of law sector in the Philippines, with a specific emphasis on the Bangsamoro region;

Extensive knowledge and insight in post-conflict socio economic development and conflict-sensitive peace-building efforts in the southern Philippines;

Knowledge and experience of safety & security or policing reform in the Bangsamoro region will be an added advantage;

Knowledge and experience of socio-economic development work with non-sate armed groups in the Bangsamoro;

4 LOCATION AND DURATION

4.1 Starting period

The estimated start date for this assignment is December 2017.

4.2 Foreseen finishing period or duration

The main mission period is two months from December 2017 to January 2018. The final Review Report and Annexes is to be completed not later than 31 January 2018.

4.3 Location(s) of assignment

The mission will be split between Manila and the Bangsamoro region of the Philippines. Travel requiring overnight stay shall be covered in line with British Council policy on travel and per diems.

5 REPORTING

5.1 Content

The content of the reports required for this assignment are described in section 2.3

above.

5.2 Language

All reports and correspondence must be in English.

5.3 Submission/comments timing

All reports must be submitted by the consultant electronically in the format provided at the start of the mission. Comments by the British Council and key stakeholders on the various reports (including the Inception Report) will be provided to the consultant as soon as possible.

8

6 ADMINISTRATIVE INFORMATION

For the purpose of this assignment, the consultant shall report to:

Maria Angela Abad, Head of Society, British Council, Manila, Philippines.

The list of persons to be consulted, their contact details shall be agreed upon with the British Council during the first week of the consultant’s engagement.

9

Annex A:

INDICATIVE FRAMEWORK FOR THE ANALYSIS AND SUGGESTED REPORT LAYOUT 0. PREAMBLE (1 page) The preamble should briefly describe: i) The principal features of the project at the time of the evaluation (including overall and

specific objectives, planned beneficiaries, main activities, commitments/disbursements, important dates/timetable, location, etc.); and

ii) The evaluations’ objectives, the evaluation methodology/process followed, the main questions to be answered, plan of work, dates and timing and names and roles of the evaluators; iii) the timetable of the evaluation.

1. EXECUTIVE SUMMARY (maximum 4 pages) The summary should be self-contained and cover the contents of chapters 2-9. 2. RELEVANCE OF THE PROJECT This chapter assesses the project objectives against the problems to be solved, and their physical and policy "environment", i.e. the main political, social and economic factors and pertinent policies (explicit and implicit) of the various actors e.g. Government, development partners, interest groups. The evolution of the context over time, and how the project adapted to this, should also be reviewed. General:

Structural characteristics and dynamics of the sector; linkages to other sectors and other reforms.

Government policies (e.g. coherence of macro-economic and related sector policies, attitude towards private sector) actions and commitment, the development partners country strategies and projects, and the Overall Objective(s) of the project, including the broader UK Government Development Agenda.

The consultant/team should evaluate the relevance of the project’s overall objectives and the overall approach to the needs of the project’s intended (+actual, if different) beneficiaries.

Specific:

Problems to be solved, beneficiaries (notably the poor and other vulnerable groups) and various actors involved in the project: parameters for technical, socio-economic and institutional analysis. Attention should be paid to any relevant gender issues, environmental aspects, poverty reduction and socio-cultural factors.

The evaluation should identify the problems resolved by the project and those that have not been, including problems that may have become apparent during implementation.

This analysis should include information on whether the project accurately identified and addressed the needs and problems of both women and men in the sector concerned, and whether it reflected the gender policies and priorities of the Government and development partners.

Other interventions of the Government or development partners, directly or indirectly related to the project, should be taken into account to the extent that they may have contributed significantly to meeting the same needs.

10

3. PROJECT PREPARATION AND DESIGN This chapter assesses the logic and completeness of the project planning and design process from the initial project idea to the final project document. It establishes which preparatory activities (pre-feasibility and feasibility studies etc.) were undertaken by which actors, how relevant they were and how well the results were incorporated into the final project document – and which preparatory activities (e.g. studies) should have been done but were not – and explain why. The chapter in particular assesses the internal logic or coherence of the project design. Identification and formulation process (origin of project idea, identification of beneficiaries both men and women, interest groups, studies such as environmental impact, institutional appraisal, poverty profile) is a crucial part of this chapter, but the depth of the analysis undertaken in this section will vary according to the nature and size of the project. Intervention Logic : Coherence and realism of project design.

In this chapter the overall objectives and impacts and the purpose and results to be achieved (as defined in the project document) should be considered – were they proportionate to and consistent with each other, and how appropriate were the activities to the results expected?

The discussion in this section should focus on the coherence of the initial intervention logic in the conditions and perceptions then prevailing. The analysis in the subsequent sections below should however take account of changes in the project context – whether or not they were anticipated in the original intervention logic and how the project adapted to them (flexibility).

Interviews with beneficiaries and stakeholders in the field may be necessary to reveal differences in the perception of the project between project promoters and different groups of beneficiaries and other stakeholders (men, women, disadvantaged groups etc.).

4. EFFICIENCY This chapter relates to the relationship between the activities and the results of the project. It is devoted to the evaluation of the cost, speed and other aspects of “management efficiency” with which the activities have been undertaken in order to yield the project results. Have the means of the project been efficiently transformed through the project's activities into the various project results? Could the same or similar results have been achieved at lower costs? Were the activities carried out on time, and at the best time? Basically asking “Were things done right?” This will require an assessment of the following factors which affect efficiency: Means and Costs:

This section should contain whenever possible appropriate cost-benefit or cost-effectiveness (Unit cost, least cost) analysis, including comparisons with cost indicators of projects with similar objectives, taking into account differences in context. The adequacy of the project budget should be assessed.

Organisation and Management:

This section summarises and analyses the general organisational set-up (structures, responsibilities) relating to the project (e.g. National Authorities, ) and the project specific organisational framework (e.g. Technical Facilitation Unit (TFU), Counterpart Ministries, national institutional framework, beneficiary structures, and other relevant Technical Assistance).It assesses this set-up and the actions undertaken by the various actors during implementation in relation to the results planned (whether achieved or not), as well as the capacity of management to adapt to changing circumstances.

11

Issues to be analysed will include, but not be limited to the annual workplans and timetable, financial management/budgeting systems, phasing of activities, internal information flows, costs and outputs of technical assistance, co-ordination with development partners, risks taken, institutional capacities/culture, and operational accompanying measures by the Government.

Intervention Methods:

The methods used for implementation are assessed here. Were there other ways of achieving the same or better results? Among other things, this section should take into account the degree of involvement (participation) of the beneficiaries in the activities initiated under the project.

Did the project activities reflect the different roles of women and men, and their different access to and control over resources? Were there differences in the services provided by the project to women and men?

Monitoring and Evaluation:

The external monitoring carried out at the level of the project by both the Government and development partners should be reviewed.

How appropriate and verifiable were the indicators? Was a baseline study done? How well? Were baseline and monitoring data gender-differentiated?

The monitoring should also be examined in the wider context of conditionality and risk and impact monitoring.

Comments should be made on the preparation of, and follow-up given to, monitoring and/or evaluation reports.

5. EFFECTIVENESS This chapter concerns the relationship between the Results (immediate outputs) of the project and the Project Purpose. It gives an assessment of the extent to which the project results have contributed towards the achievement of the Project Purpose, or whether this can be expected to happen in the future on the basis of the current results of the project. Basically asking “Were the right things done?” Attention should also be paid to results or effects – both positive and negative - not included in the original/reconstructed intervention logic. Particular attention should be given to the assessment of the actual outcome for the beneficiaries (intended and unintended), differentiating between men, women, the poor and vulnerable groups of society. Other questions to be answered, referring where possible to the Objectively Verifiable Indicators of the log-frame, will include:

Have the assumptions required to translate project results into project purpose been realised? If not, why and how did this affect the project and how flexibly did it adapt? Are the assumptions likely to be realised in the future or should they be changed?

Which accompanying measures have been or should have been taken by the Government, and were they? With what consequences as regards the project?

6. OVERALL OUTCOME AND IMPACT This chapter, applicable in the case of completed projects or projects which have been running for several years, assesses the contribution of the project in a broader context (relationship between the Project Purpose and the Overall Objectives). Both qualitative and, where possible, quantitative assessment should be made. Starting from the project purpose and the degree of effectiveness achieved (Chapter 5), this chapter analyses the overall (macro-economic, social, etc - depending on the nature of the project) and more long-term effects of the project, be they positive or negative, expected or unforeseen. Included in this section should be an assessment of the extent to which the project results have delivered benefits back to the UK.

12

7. OVERALL QUALITY/SUSTAINABILITY/REPLICABILITY This chapter assesses the sustainability/replicability of the project. The evaluator should, in the first instance, give an assessment in global terms of the sustainability prospects for the project. The weighting of the six principal sustainability factors referred to below will depend upon the nature of the project. It would also be useful to examine the manner in which the concern for/neglect of one or other of the six factors may have affected achievement of sustainable results. The possibility of replicating successful outcomes should also be analysed. Particular attention will be given to: Policy support measures:

Correspondence between priorities of GoP and development partners. Extent to which the project has support in the GoP's budget, price and subsidy

policy, regional/district policy, sectoral policies, etc. Changes in overall priorities and policies: how will these affect the project? Degree of agreement on objectives? Support from relevant organisations (political, public, business, etc.)and willingness

to provide resources (financial and personnel), and cost-recovery prospects (N.B.: this overlaps partly with the next point, on financial and economic analysis).

Economic and financial sustainability:

The consultants should present the findings of an appropriate economic, financial and/or cost-effectiveness analysis for an appropriate period which could be the current period (on-going year), the "cruising speed" year or the entire duration of the project, thus possibly extending beyond the period of the intervention.

Socio-cultural embedding – gender issues: Verify whether social-cultural and gender aspects may endanger the sustainability of

the project interventions during project implementation or, especially, after termination of donor assistance. Is it likely that the opportunities for men and women to benefit equally from the project will continue after its implementation (e.g. through women’s and men’s participation in decision making)?

The issue of 'ownership' of the project activities by the various beneficiary groups and implementing agencies should also be discussed.

Appropriate technology:

Did the technology offered correspond to needs (problems to be solved, technological environment, level of technological skills of the beneficiaries and technical support services, was it culturally acceptable, have the beneficiaries been involved in the choice of technical solutions ...)? More particularly, were the intended beneficiaries, or will they be, able to adapt to and maintain the technology acquired without further project assistance?

Institutional and management capacity, public and private:

The commitment of all parties involved, such as Government (e.g. through policy and budgetary support), counterpart institutions and beneficiaries should be examined. How far have the project activities been embedded in local institutional structures to ensure sustainability? Were counterparts adequately prepared for the handing-over of the project/continuation of the project activities (technically, financially, from a managerial point of view)?

8. CONCLUSIONS AND RECOMMENDATIONS Under this heading the consultants should, drawing on the conclusions, summarise the overall outcome and formulate proposals for future actions. The conclusions should cover all important aspects requiring such action, as identified under points 2 to 8. Each

13

conclusion should lead to a corresponding strategic and operational recommendation. Recommendations should be relevant, targeted to the intended users and actionable within the responsibilities of users. The following points merit particular attention: Overall outcome:

What were the main successes and failures of the project to-date? (Notably as regards poverty alleviation, if this was an objective of the project) What were the causes underlying the outcomes?

Do the effects/impacts identified justify the costs involved? Were the objectives achieved within the specified time and budget?

Sustainability: Conclusions should be drawn and recommendations made regarding the key sustainability factors relevant to the project, for example:

Is post-project maintenance of infrastructure and support for institutional structures likely to be adequately funded and executed?

Is the policy environment likely to ensure the sustainability of the project’s benefits?

Alternatives:

Could the same effects/impacts have been achieved at lower costs? Would there have been different ways of achieving the same outcome? Should the project be re-oriented, and in particular: should all activities continue?

If not, describe how the project should be re-oriented. 9. LESSONS LEARNED

Under this heading lessons learned, which are generalisations of conclusions applicable for wider use/benefit, should follow logically from the conclusions made above:

What policy, organisational and operational lessons can be drawn specifically in relation to the project for both the local implementing partners, and for the development partners ?

What general development lessons might be drawn from the evaluation in relation to, for example, policies, instruments, and sectoral, country or regional strategies?

Annex B: Logic Model project outline

1

Reduced

incidences

resulting to

negative impacts

on the community

Communities

working together

to maintain peace

and order.

Situation

Renewed

commitment of

Philippine

Government to

the Peace

process

Strong

involvement of

the UK as part

of the

International

Contact Group

Resources

and

Expertise

Key experts

and staff

Track record

in East Asia

ODA Golden

Thread

Funding

NGO

Partners

Peace panel

endorsement

Priorities: Increase UK

recognition as a thought

leader in in justice,

security and conflict

resolution, and position it

as a partner of choice by

government and civil

society in the long-term

Activities

Training of

facilitators/

trainers

Awareness-

raising activities

Community

consultations

Technical

working group

workshops and

meetings

Strategy and

toolkit

development

Delivery Quality/

Stakeholder

Engagement

1. Establish a

mandate for

project

2. Establish base

line for

community

confidence and

participation in

the policing

process.

3. Develop

collaborative

partnerships

4. Develop an

integrated

Communication

Strategy

5. Develop a robust

key stakeholder

networking

strategy

Built capacities in

facilitating

awareness

sessions on

community

policing

Increased

community

awareness on

community

policing

Established

common

understanding of

community

policing among

key stakeholders

Increased support

and readiness for

the adoption of

community

policing in

Bangsamoro

areas

Strengthened

participation of

the community in

policing

Communities

prepared to work

in partnership

with PNP and

vice-versa.

Vision

Strengthening

the rule of law,

ensuring

access to

justice and

addressing and

resolving

conflict are

fundamental to

human security

and the

development of

stable

economic

states where all

citizens’ voices

can be heard

and economic

opportunities

realised.

PROGRAMME OUTCOMES

Deeper and Longer-term

Who we work

with

Bangsamoro

communities

Peace panel

Philippine

National Police

and other

policing

authorities

NGO and civil

society

Academe

British Embassy

Manila

Inputs Who and What Positive Change

Monitoring Evaluation