Timor-Leste National Police (PNTL)

Strengthening Governance and Service Delivery

(2016-2018)

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Programme Period: 36 months (01/16 – 12/18) Key Result Area (Strategic Plan): Democratic Governance Atlas Award ID: 00072017 Start Date: January 2016 End Date: December 2018 PAC Meeting Date: 11 May 2015 Management Arrangement: DIM

United Nations Development Programme Timor-Leste

Project Document

Project Title: Timor-Leste National Police - Strengthening Governance and Service Delivery

Related UNDAF Outcome: By 2019, state institutions are more responsive, inclusive, accountable and decentralized for improved service delivery and realization of rights, particularly of the most excluded.

Related CPD Output: Capacities and systems of justice sector institutions and police enhanced to provide access to effective and efficient justice and protection to the citizens, particularly for rural women, children and vulnerable groups.

Implementing Partner: Timor Leste National Police (PNTL)

The ‘Timor-Leste National Police – Strengthening Governance and Service Delivery’ project builds on previous support to key PNTL managerial and administration functions by supporting systemic changes at the central level and ensuring this translates into delivering tangible results at the local level.

To enable the key National Police administration departments improve their governance and service delivery role, the project will strengthen the capacity of the national police to manage human, financial, logistical and ICT resources, along with improving transparency and community engagement.

Key components of finance, legal services, internal audit and inspection, and gender have been included in this reformulated project, in order to strengthen key PNTL governance functions. This will allow for improvements in capacity to be monitored and reported on and to facilitate compliance with existing legislation and development of a legal framework. Legal services will be phased in subject to establishing agreements on how PNTL legal services will complement those provided at the Ministry of Interior level. A service delivery output targeting district level will ensure a community level focus, particularly in the priority area of service delivery to victims of gender based violence.

These reformulated project outputs are aligned with the strategic priorities outlined in the National Police Strategic Plan (2014 – 2018) and will be accompanied by a capacity building strategy to ensure sustainability. This will entail limited and focused use of international advisors, increased use of national advisers, and creation of permanent PNTL funded civilian positions in specialist administrative areas.

Agreed by: PNTL General Commander Date: 11th May 2015

Agreed by: (UNDP Timor Leste) Date:11th May 2015

Total resources required: USD 7,037,488

Total allocated resources: USD

Regular (TRAC) USD

BCPR:

Donors:

Unfunded: USD 7,037,488

CONTENTS

This document outlines the need for support to policing in Timor-Leste by strengthening governance and service delivery. It comprises the following sections:

1. Executive summary

2. Background

3. Situation Analysis

4. Key UNDP Engagement in the Rule of Law

5. Programme Strategy

6. Outputs in Brief

7. Narrative Description of Outputs

8. Partnerships Strategy

9. Management Arrangements

10. Monitoring and Evaluation Strategy and Legal context

11. Risk logs

Annex I: Results and Resources Framework

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I. EXECUTIVE SUMMARY

The ‘Timor-Leste National Police – Strengthening Governance and Service Delivery’ project builds on previous UNDP support to key PNTL managerial and administration functions by supporting systemic changes at the central level and ensuring this translates into delivering tangible results at the local level.

To enable the key National Police administration departments improve their governance and service delivery role, the project will strengthen their capacity to manage human, financial, procurement and ICT resources, along with improving transparency and community engagement. Key components of finance, legal services, internal audit and inspection, and gender are included in project design. The effective administration of these key corporate service functions is essential to ensure that improvements in capacity development of other administrative units are fully realised. A service delivery output targeting district level has also been included. This will ensure a community level focus, particularly in the priority area of improving services to victims of gender based violence. To facilitate these efforts support will be provided at the central level to address identified barriers to gender equality within the PNTL, and at the district level through the provision of female specific facilities in support of female police officer recruitment, retention and career development.

The project outputs are aligned with the strategic priorities outlined in the National Police strategic plan (2014 – 2018). To develop proper governance within administrative and managerial areas, there are several interlinked critical functions that need to be supported simultaneously. Without attention to planning and budgeting, securing sustainable funding for PNTL Strategic Plan initiatives is unlikely. As a rule of law institution, establishing a coherent legal framework and the availability of quality legal services to the PNTL is also essential. Without developing the oversight mechanisms to ensure compliance with existing legislation and guidelines, good practices are likely to fade. Therefore this project extends its capacity development support to include finance legal services and internal audit and inspection functions. These areas are considered essential to ensure long term improvements to the governance functions within PNTL.

The service delivery output, targeting two pilot districts, will commence by firstly improving the understanding of how police services are delivered at the district level through commissioning local research. Gaining a proper appreciation of what and how services are delivered, along with the obstacles to success, will be essential prior to formulating an action plan on how best to improve services. This knowledge will also inform district level capacity development planning along with guiding the practical implementation of delivery of services to the community. A key aspect of service delivery is to improve the provision of information and assistance by all police officers to victims of gender based violence. The inclusion of a service delivery output will assist to address two reported challenges,1 faced by the government, namely; decline in the quality of citizen - state relations, and decreasing public trust in government.

Due to the complexities concerning the establishment of a legal services function within the PNTL that complements the existing function within the Ministry of Interior (formerly Secretary of State Security), this activity result will be phased in during years two and three, subject to a decision by the project management board. 1 Comments from Civil Society to Timor Leste Development Partners Meeting 2014 By Ana Paula Sequeira,

Forum Tau Matan for FONGTIL (East Timor NGO Forum) Governance/Institutional Development Sector 25 July 2014

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Project assistance will be guided by a capacity building strategy to ensure sustainability of progress and a phased withdrawal of project support over the life of three years. This will entail limited and focused use of international advisors, increased use of national advisers, and creation of permanent PNTL funded civilian positions in specialist administrative areas to address key capacity gaps in the PNTL. Annual work plans will be aligned with the annual priorities identified by the PNTL in accordance with its strategic plan.

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II. BACKGROUND

The Timor-Leste National Police Policia National de Timor Leste (PNTL) consists of 3,584 officers of which 16% are females. 2 These officers are located in each of the country’s 13 districts and specialised units and departments. In 2012 Timor Leste held national elections, formed a new government, and saw the drawdown and completion of the United Nations Mission in Timor (UNMIT). Subsequently, UNDP has taken steps to assume larger responsibilities in supporting capacity development of the national police service in select areas.

The history of UNDP assistance to the PNTL was defined by the need to build on the assistance provided by UNMIT police advisors who left at the end of 2012. International advisors and national staff have assisted the administrative units to improve functional capacities. The project Strengthening National Police Capacity in Timor-Leste, commenced in January 2013 and is dedicated to institutional capacity development of the PNTL. Assistance focuses on several key governance areas: 1) Strategic planning, 2) Information technology (IT) and database management, 3) Asset and procurement management, 4) Human resource management, 5) Public information and 6) Fleet management. In a relatively short period of time the project has managed to gain the trust of the PNTL command structure and confidence of the key development partners (Australian Federal Police, USAID, Japan and New Zealand). There are several reasons for this including co-location in the PNTL Head Quarters, a sound understanding of its institutional set up and daily operations; national project management, select use of international expertise, and a focus on ensuring technical assistance translates into practical results.

In 2014 the PNTL launched its five-year strategic plan for the period 2014-2018 and is establishing its capacity to more effectively co-ordinate its work with international development partners. UNDP was requested to provide capacity development to support the implementation of the strategic plan objectives. Accordingly a review was conducted of current and past project support with a view to aligning future support with the objectives of the strategic plan through identification and development of the new programming areas. The existing project is scheduled to run until the end of 2015. Given the launch of the PNTL strategic plan, it was considered prudent to re formulate the existing project to align both outputs and time lines with the strategic plan.

III. SITUATION ANALYSIS

Lessons from Assessment of Development Results UNDP Timor-Leste

The Evaluation Office of the United Nations Development Programme (UNDP) conducts country evaluations to capture and demonstrate evaluative evidence of UNDP’s contributions to development results at the country level, as well as the effectiveness of UNDP’s strategy in facilitating and leveraging national effort for achieving development results. An Assessment of Development Results (ADR) was conducted in 2012 covering the Timor Leste country programmes from 2003 – 20133.

Several lessons identified and observations made in the ADR have informed the development of this project document, namely:

1. It is not possible to evaluate results from short term interventions and longer time frames for project support should be the standard.

2 PNTL web site http://www.pntl.tl/pntl-iha-tl/ accessed 8

th August 2014

3 Evaluation of UNDP Contribution, Assessment of Development Results – Timor-Leste (draft) 2012: 83-95

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2. For sustainable human resource capacity development, a deliberate strategy is needed to transfer skills and expertise, along with an exit strategy when deploying international advisors. Capacity building providing through the three pillars of; skills and knowledge, systems and processes, and attitudes and behaviours is recommended.

3. Delays in recruitments can result in failures to mobilise funds and downsizing of projects.

4. Security sector institutions remain weak with respect to capacity, discipline respect for human rights, civilian oversight and clear mandates between the police and the army.

5. In the governance area, UNDP’s neutrality and programme support without a political agenda was positively perceived.

6. Performance monitoring generally, and monitoring and capturing gender disaggregated data requires a systematic approach.

UNDP Country Programme 2015 – 2019

The UNDP Timor Leste Country Programme Document (CPD) for the period 2015 – 2019 was ratified by the executive board in its September 2014 sessions. The CPD priorities for this period are: resilience building, sustainable development and inclusive and effective democratic governance. PNTL capacity development falls within democratic governance Output 3.1: Capacities and systems of justice sector institutions and police enhanced to provide access to effective and efficient justice and protection to the citizens, particularly for rural women, children and vulnerable groups. This is related to UNDP strategic plan outcome two: Citizens expectation for voice, development, the rule of law and accountability are met by stronger systems of democratic governance.

Timor Leste Strategic Plans

The mandate for PNTL is enshrined within the Timor-Leste Constitution, Article 147 (1):

“The police shall defend the democratic legality, guarantee internal security of citizens and shall be strictly non-partisan.”

The Timor-Leste Strategic Development Plan 2011-2030 sets the 2020 target for the security sector, including PNTL, as:

“Fully reformed and operating with skilled and committed professionals supported by modern infrastructure and equipment, and governed by regulations that support the sector’s effectiveness, accountability and good governance.”

In order to fulfil the mandate and achieve the target, the Programme of the Fifth Constitutional Government 2012 – 2017 4 provides two core objectives for PNTL:

1. Reform and Develop the Institution

2. Consolidate Public Order and Community Security.

The Strategic Plan of the Secretary of State for Security (SoSS) 2011-2030, identifies specific focus areas for PNTL within each objective:

1. Reform and develop the institution (focus on the legal framework, development of human resources, infrastructure and logistics).

4 http://timor-leste.gov.tl/wp-content/uploads/2012/09/Program-of-the-5th-Constitutional-Government.pdf

Accessed 26th July 2014

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2. Consolidate public order and community security – stability and public security (including control of violence and crime, intelligence, investigation and road safety, community policing, border management and cooperation with external agencies).

The PNTL Strategic Plan is the principal reference document for planning in PNTL at all levels, and the basis for identifying priorities through an annual business plan. Each year the PNTL will produce a separate business (activity) plan to concentrate on the strategic objectives and specific priorities for each year. Across the five years, actions within the business plan will contribute to the general objectives of the strategic plan. PNTL Annual Action Plans (AAP) detail more specific actions at district and unit level.

The strategic plan, business plans and annual action plans are aligned to budgets to enable the PNTL to deliver desired organisational performance and meet responsibilities and expectations of the Government of Timor-Leste.

Strategic Objective 1 - LEGISLATION

Increase the skills of police members through strengthening implementation of the PNTL Organic Law, personnel terms and conditions, internal regulations, and Norms of Organisation and Procedure (NOP).

Strategic Objective 2 - TRAINING

Increase the technical and professional capacity of PNTL members through training activities.

Strategic Objective 3 – ADMINISTRATION

Develop PNTL skills to manage human, financial, logistical and ICT resources to provide adequate support for policing activities.

Strategic Objective 4 – DISCIPLINE

Develop PNTL’s capacity to act in a disciplined and accountable manner.

Strategic Objective 5 – OPERATIONS

Maintain security, public order and peace which are favourable for political stability and socio-economic development of Timor-Leste.

Human Rights

The Universal Periodic Review of Timor-Leste in 2011 by the Human Rights Council made recommendations which apply to the security sector and the capacity development needs of the PNTL5. Timor-Leste government accepted recommendations concerning the governance of the PNTL include; strengthening accountability regarding use of excessive force and abuse of authority by the police, enhance capacity effectiveness, credibility and functioning of the police, and further attend to the recruitment and training of the police.

Gender

UNWOMEN are supporting a PNTL institutional gender assessment which is expected to be completed by October 2014 and will guide future programming on gender issues. To date the PNTL reform process has been criticized for the limited extent to which it has integrated a gender perspective.6 While early in the development of the PNTL, a recruitment quota was

5 Timor-Leste: Cooperation with the UN Human Rights System. Compilation of recommendations to Timor-Leste by UN

human rights mechanisms. UNMIT Human Rights and Transitional Justice Section in collaboration with the Government of Timor-Leste and the Provedoria for Human Rights and Justice 2011, chapter 7. Security Sector 6 See Bu Wilson, Smoke and mirrors: institutionalizing fragility in the Policia Nacional Timor-Leste (Paper

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established that sought 20% of recruits to be women, this has fallen to 10% in its latest recruitment.7 In 2011, female officers constituted 18% of the force, and as at July 2014 they constituted16%,8 with very few positions in the upper ranks.

Within the PNTL, there are two Units that deal explicitly with gender issues, the Vulnerable Persons Unit (VPU), and the Office of the Gender Advisor.9 The Vulnerable Persons Unit was set up in 2001, as a response to the significant number of gender-based violence cases received by the PNTL. The VPU is mandated to deal with crimes including domestic violence, rape, child abuse, child neglect, incest and sexual harassment. A National VPU is located at the PNTL Headquarters in Dili, and District VPUs are located in every District headquarters, within the Criminal Investigation Section. Although gender-based violence continues to be one of the biggest challenges faced by the PNTL, the VPU remains an under-resourced unit, facing deficits of capacity and resources.10 One of the challenges faced by the VPU is the retention of training and skills, caused by the regular rotation of officers within the VPU.11

The PNTL Gender Advisor was established in July 2009, located under the Office of the PNTL General Commander. Its purpose is to develop a strategic vision and activities for gender mainstreaming within the PNTL. In 2011, with the support of UNPOL, the Unit initiated a Gender Self-Assessment of PNTL policies and regulations, which will be used to inform the drafting of an SOP/NOP on Gender Mainstreaming and Equality within the PNTL. The policy hopes to address gender as a cross-cutting issue in the PNTL and will touch on issues identified by female officers in round-tables convened to discuss challenges women faced by female officers.

In May 2014, The Asia Foundation in partnership with Timor-Leste’s Ministry of Social Solidarity (MSS) and Secretariat of State for the Promotion of Equality (SEPI) launched the Ending Violence against Women (EVAW) programme.12 Funded by the Australian Department of Foreign Affairs and Trade (DFAT), the programme is an eight year intervention aimed to reduce the proportion of and better meet the needs of women and children who experience violence.

The EVAW programme will strengthen existing government and non-government services for women and children affected by violence, working with the Ministry of Social Solidarity. The programme will also support research and national strategies for prevention,

presented at the ‘Conference on Democratic Governance in Timor-Leste: Reconciling the National and the Local’, Charles Darwin University, Darwin, 7-8 February 2008); and Myrttnen, Poster Boys 7 Concerns have also been raised about a regulation (Diploma Ministerial N. 2/2011, Ministry of Defence and

Security) governing the PNTL recruitment which stipulates that new recruits cannot be married or pregnant. See: UNMIT, A Brief Overview of Implementation of Gender Policies in UNMIT Police Component (2012). Internal

UNMIT Brief. 8 PNTL web site http://www.pntl.tl/pntl-iha-tl/ accessed 29 July 2014

9 Myrttnen notes that gender issues are not mentioned at all in the new Organic Law of Timor-Leste’s National

Police (Decree Law No. 9/2009), nor is there mention of the VPU or Office of the Gender Advisor. Myrrtnen, Poster Boys, 23 10

VPUs are habitually in need of resources such as vehicles and investigation tools. Human resource concerns include investigation and communication skills necessary for detail-oriented work and liaison between police and prosecutors. See: UNMIT/Office of the High Commissioner for Human Rights, Periodic Report on Human Rights in Timor-Leste 2011, 32; Chris Styles-Power, Carolyn Hamilton and Erica Hall, The Vulnerable Persons Unit in Timor-Leste: An Independent Assessment of its Role and Function (2008) Commissioned by UNICEF 11

2nd

and 3rd

Combined Timor-Leste Government report to CEDAW Committee (2013) 12

The Asia Foundation website http://asiafoundation.org/news/2014/05/the-asia-foundation-launches-ending-violence-against-women-programme-in-dili/ accessed 29 July 2014

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acknowledging the important work done to date by the government and civil society to prevent violence against women and children.

The commencement of this programme provides opportunities for improved PNTL service delivery at the district level. This can be through provision of information to the community as to services available and fostering the development of closer professional relationships between the police and partners in order to improve services to women and children. The established UNDP support to administrative areas such as Human Resources allows the opportunity to include the recognition of gender issues in future capacity development approaches.

PNTL Development Partners

a) Australian Federal Police (AFP) The AFP-Timor Leste Police Development Programme (TLPDP) has been operating since 2004 and is the largest police capacity building programme remaining in Timor-Leste since the withdrawal of the United Nations Integrated Mission in Timor-Leste (UNMIT) in December 2012. The Government of Australia made provision in its May 2014 budget for ongoing funding of the AFP-TLPDP for another four years from 2014 to 2018. In the past four years achievements of AFP-TLPDP include13:

• Establishment of a modern Police Training Centre (PTC), providing the foundations upon which a professional PNTL is being built. The PTC is positioned to be nationally accredited in Timor-Leste as a higher learning institution delivering a suite of nationally accredited policing programmes. This includes Diploma level programmes in the areas of executive police management and police investigations.

• Forty six (80%) of the Superintendent category in the PNTL have completed a 12-month Diploma of Executive Police Management at the PTC, Thirteen (13) police officers have completed the 12-month Diploma of Investigations Management, while more than 200 police officers have completed various Certificate levels of nationally accredited investigations training.

• With direct Adviser assistance and practical support to enable design and production of a professional product, PNTL have produced their first fully autonomous Strategic Plan 2014-18 and PNTL Business Plan 2014 and have commenced a structured process of implementation.

• PNTL mobile response patrols are being conducted 24 hours a day, 7 days a week in the capital Dili, consistent with their approach to community policing.

• PNTL have established a quality control system for police investigations and implemented an Integrated Information Management System (IIMS) to record and report crime in Timor-Leste. Both systems contribute to better quality investigations and better outcomes for victims of crime.

The next four years of assistance by the AFP-TLPDP to PNTL will focus on sustaining policing capacity outcomes so they become standardised in the workplace. The AFP-TLPDP will build on the growing public confidence in PNTL by supporting workplace application of skills and knowledge delivered by TLPDP. Mentoring and advisory arrangements, targeting operational practices within community policing in Dili, command and control systems and investigations, as well as senior PNTL officer development in leadership and management skills will be the main strategies utilised. Gender based violence will continue to be addressed in joint initiatives between the AFP-TLPDP and the PNTL, particularly those initiatives that provide sensitive, responsive and timely police and justice services to women and children. Improvements will be made to

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Correspondence from Graham Waite, Commander of the AFP TLPDP, 18th

June 2014

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the Intelligence functions of the PNTL as part of an inter-agency and international collaborative approach to local and international threats.

The Australian Federal Police (AFP) provided funding to the UNDP PNTL project in order to strengthen the governance functions within the PNTL which they have identified as being essential and complementary to their own programme of assistance. Participation of the AFP in the UNDP PNTL project management board at the strategic level and effective co-ordination at the working level has assisted in creating close collaboration, and harmonisation between the respective programmes. This arrangement has added considerable value to both programmes and created efficiencies for the PNTL by reducing the transaction costs in managing support and maximising the benefits received through both programmes.

b) New Zealand Police The New Zealand Police managed Timor-Leste Community Policing Programme (TLCPP) is a four year bilateral programme14 which began in July 2011. The specific purpose of TLCPP is to support and facilitate the implementation of Community Policing by PNTL across Timor Leste, in order to contribute to two outcomes:

o improved community trust and confidence in the PNTL; and

o a sustainable Timorese model of community policing practiced by PNTL.

The TLCPP coordinates closely with the HAKOHAK Polisia ho Komunidade project, implemented by The Asia Foundation with funding from New Zealand and USAID. The two programmes operate with unified governance arrangements and use aligned reporting frameworks.

Important strategic pillars and outputs within PNTL strategy all of which link closely to community policing activities include; Community partnerships, Police community engagement, and Police visibility. At operational and tactical levels, the PNTL planned activities place emphasis on the need to increase and enhance; PNTL visibility within communities; community engagement and crime prevention, information management and responsiveness to community expectations, partnerships, trust and confidence.

The active creation of Suco (village) Police Posts by PNTL within Police Districts is a significant development and enabler of proving community policing activities. TLCPP will actively contribute in support of PNTL to maximise the effective operation and delivery of benefits arising from Suco Police Posts. TLCPP provides support, advice and practical assistance to enable PNTL to deliver credible, consistent, relevant and reliable community policing services. In 2014 the general principles involve:

o Implementation of problem solving approaches in consultation with communities o Transparent decision making o Commitment to continued improvement in service delivery, professionalism, and

accountability for performance o Implementation to a whole-of-policing approach where community policing is a

foundational philosophy and the practical responsibility of all police officers o Partnership approaches with other government agencies, non-government and

community groups, community leaders and individuals to address safety and security issues and provide focus to the prevention and reduction of crime

o Effectively identify, manage and mitigate critical risks within the operating environment.

14

TLCPP Draft 2014 Annual Work Plan dated 23 October 2013, John Rivers, Assistant Commissioner and TLCPP Team Leader

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TLCPP adopt a three-tier strategic approach to the delivery of planned activities in districts. This is to manage the expanded geographical area of operation and ensure a realistic approach commensurate to the levels of TLCPP resourcing available. On this basis the tiered approach will involve:

Tier 1 (high priority) - involving the following districts currently within the TLCPP sphere of activities (Liquica, Aileu, Baucau, Manatuto) and also Viqueque and Dili Districts.

Tier 2 (less frequent but still regular visits by advisors) – involving those districts where Hakohak will expand to - Ainaro and Ermera Districts.,

Tier 3 (occasional visits, look for opportunities to engage district commanders in workshops, visits to other districts, etc.) – involving the remaining districts - Oe-cusse, Lautem, Covalima, Manufahi Districts and also Bobonaro District.

It should be noted that the UNDP project support to strengthening governance and service delivery directly supports efforts by New Zealand and other international development partners to strengthen the community policing approach adopted by the PNTL. This is because the strategic human resource implications of community policing needs to be considered so that officers representative of the community with the right skills and aptitude to be recruited, retained and professionally developed. The Information Technology Unit should play a central role in providing and maintaining the systems that allow for effective gathering and use of information which is necessary to ensure police managers understand and deploy resources to respond to community concerns. Deployment of police vehicles and a well maintained fleet is essential to respond to and prevent crime. Keeping the public informed on the role of the police, how to access police services and providing examples of police service delivery is also essential to build confidence and demonstrate transparency. Likewise other governance function such as internal audits and inspections, proper budgeting and fiscal responsibility are all necessary to demonstrate state resources are being used in a responsible manner to provide professional police services to the community. These are all essential components of a professional community oriented police force.

c) Government of Japan The Government of Japan have contributed funding to the UNDP PNTL project which forms one component of their programme to support peace building in Timor-Leste through effective and accessible justice system, social dialogue and policing service. The Japan International Cooperation Agency (JICA) has been strengthening PNTL’s community policing in Timor-Leste since 2008. The current project (April 2013 to March 2017) objectives are; 1) PNTL high commanders understand the concept of community policing and acquire the skills and knowledge to establish a functional community policing system, and 2) PNTL middle level commanders acquire the skills and knowledge on community policing to implement it in the districts. For this purpose, study tours will be conducted for 5-7 high commanders to Japan and for 30-40 middle commanders to Indonesia every year. JICA facilitates bringing Japanese police officers to Timor-Leste for technical advice and support of community policing as well as for coordination with Indonesian Police.

d) United States of America The United States embassy has allocated funds for the deployment of a PNTL logistics advisor for two years until September 2015. The advisor has recently completed an assessment of the logistics and asset management functions within the PNTL. In the interests of harmonising support to the PNTL, it has been agreed that the US will focus

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on logistics and asset management and UNDP will focus on fleet management and procurement management. The United States also funds UNODC who provide material and training support to the PNTL Border Police Unit and the Maritime Police Unit.

USAID have deployed a legal advisor to the Ministry of Interior (formerly the Secretary of State Security) until February 2016, to work with their Office of Inspection and Audit. The main objective is to strengthen the awareness and implementation of the disciplinary system and related legal statutes that govern the Timorese law enforcement community15. The focus of the work is on strengthening the disciplinary process within the PNTL. It will be important to link future capacity development in both the legal services and internal audit and inspection area with existing support through the Secretary of State Security. The USAID funded legal advisor has underlined the importance of working closely with both the PNTL Inspector General and the Secretary of State Office of Inspection and Audit, and highlighted the following areas as being worthy of future UNDP support:

a) The improvement of budgeting, procurement and contracting, b) The consolidation and improvement of the PNTL disciplinary process c) The application of doctrines on legal and technical requirements regarding audit and

inspection

USAID also fund The Asia Foundation community security programme (referred to below), Foundation Mahein who provides security sector monitoring, and Belun who provide conflict prevention policy advice and community monitoring.

e) The Asia Foundation The Asia Foundation HAKOHAK16 Polisia ho Komunidade (Embrace Communities and the Police) programme, jointly funded by USAID and New Zealand is helping the PNTL develop the concept of Community Police Councils (CPCs) to implement the principles of community policing, by providing training to council members on setting safety and security agendas and improving coordination. The programme’s activities reduce resentment, apathy, and opposition to police in target communities and discourage the public from taking the law into their own hands. At the same time, these activities help bring the PNTL closer to communities and help identify and resolve community problems in a proactive rather than reactive manner.

HAKOHAK is creating mechanisms to strengthen cooperation between police and communities by facilitating dialogues, problem-solving forums, and training to enhance the capacity of community policing officers and their commanding officers. The programme helps build stronger ties between local organizations, government agencies, community leaders, and the PNTL to increase awareness and understanding of local security concerns.

15

2014 Work Plan – Accountability strengthening in the PNTL, Carlos Alberto Simões de Almeida, Office of Inspection and Audit, Secretary of State for Security, Senior Legal Advisor USAID

16

The Asia Foundation, Community Policing in Timor Leste Fact Sheet http://asiafoundation.org/publications/pdf/644 accessed 29 July 2014

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IV. UNDP ENGAGEMENT IN RULE OF LAW

Since 2003, UNDP has been supporting the development of the Rule of Law in Timor Leste through; security sector reform, and institutional strengthening of the justice sector, police and Provedor for human rights and justice.

UNDP’s Justice System Programme (JSP) has focused on supporting the justice sector to develop institutional and human capacity. It has worked with all the key institutions: the Courts, Prosecution, Public Defenders, the Ministry of Justice (including the Corrections component) and the Legal Training Centre.

Building on the positive results achieved to date, the current project phase (JSP Phase IV: 2014-2018) systematizes and improves mechanisms for policy-making, coordination, and strategic planning. This means more focus on consultative law-making practices, improved planning, management and administration, with a more evidence-based approach. This is complemented by introducing a new “district pilot” approach where innovative solutions for improving the management and access to justice can be tested. This “district pilot” approach targets interventions that can contribute to better administration of criminal justice between agencies and stakeholders such as the District Prosecutor’s Office, National Police (PNTL) and local communities. On the demand side, innovative approaches will be tested to increasing peoples’ awareness of, and ability to access their rights. With a particular focus on the most vulnerable populations, successfully demonstrated innovations and lessons will inform national planning and policy making for wider application scale up or institutionalization.

The overriding objective of this current phase is to systematize and consolidate capacities of the justice sector to support the rule of law in particular for a new phase of development and transformation. For this purpose the JSP consists of four outputs:

Output 1 - Coordination, management and oversight capacities of justice institutions enhanced for more effective and efficient formulation and implementation of laws, plans and overall administration of justice;

Output 2 – Capacity of justice sector strengthened and expanded to provide quality services and uphold the rule of law;

Output 3 – Improved access to justice and dispute resolution mechanisms for all with a focus on women and more vulnerable populations;

Output 4 – Coordination, co-operation and integrated systems between justice, police, communities and corrections supported in a “pilot- scale up access to justice district model”;

The Provedoria for Human Rights and Justice (PDHJ) is the national human rights institution (NHRI) for Timor-Leste. The original UNDP/OHCHR human rights capacity building project (2007 – 2009) was tailored to build the capacity of PDHJ to carry out its human rights mandate during the nascent stages of the institution’s development. At that time, most staff had little or no background in human rights and few of the relevant skills for their work. That project focussed on providing a basic grounding in human rights and training in skills for the monitoring, investigation and education activities at the core of PDHJ’s human rights mandate.

The current project (2010-2014) works to build upon the existing human rights knowledge and skills with a focus on broadening human rights knowledge and developing analysis and application of that knowledge. Investigation, monitoring and education skills, having been developed during the first project will be consolidated and development of report writing, training material development and advocacy skills will be a focus of the present project.

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This project also addressed a new area of support to PDHJ institutional structures and institutional management and knowledge management, in recognition of the impact that these institutional issues currently have on the ability of PDHJ to fulfil its human rights mandate. For these purposes, PDHJ project consisted of 3 outputs;

Output 1 - PDHJ staff are knowledgeable about human rights concepts and understand how these concepts are applied in their work, including the ability to conduct legal analysis.

Output 2 - PDHJ has effective and efficient institutional structures and management systems.

Output 3 - PDHJ has effective information and knowledge management systems.

Currently UNDP’s rule of law projects work together in order to promote synergy between their individual efforts. For instance, JSP, PNTL and PDHJ projects are supporting case management system for incidents which includes a unified numbering system throughout the justice chain, from police to prosecutors and courts to prison. Joint training on investigation with prosecutors and police is also periodically conducted. The future collaboration on human rights violation reporting of police and internal audit with PDHJ project can also promote accountability of police actions.

V. PROGRAMME STRATEGY

UNDP’s assistance to the PNTL governance structure in its initial stage was predominantly marked by the need to fill in the gaps created with UNPOL/UNMIT advisors’ phase out at the end of 2012. During the 3 year period, UNDP’s PNTL support programme in partnership with PNTL command structure and staff, and in coordination with the key development partners (Australian Federal Police, USAID, Japan and New Zealand), has successfully managed to advance PNTL HQ administrative service provision and internal oversight capacity. Building on the lessons learned from the initial stage, the phase II of the programme will aspire to provide a focused use of inputs, a small footprint; co-location of the UNDP project team in the PNTL HQ, and consequently, strong understanding of its institutional setup and daily operations; national project management; and considerable international experience of all advisors in specific area of assistance that UNDP provides.

In spite of the progress made, several hurdles still remain for making PNTL governance fully self-sustainable and will require continued support throughout the 2015-2018 period. A major shift in strategic focus of the phase II will be from overall institutional capacity development of the previous UNMIT and UNDP assistance to gradual sustainability and independence of national capacity. Within the spectrum of varied assistance modes, we have initially moved away from substituting capacity in institutions towards providing capacity development of PNTL staff and facilitating transfer of knowledge. We are now at the point when we need to start planning for the moment when particular services within PNTL HQ will be able to operate independently of international assistance, and effectively with required volume and quality of service provision. One of the key objectives of this programme will be to develop a sustainability strategy in the first phase of its implementation. The strategy will map out the steps for gradual introduction of national capacity in managerial and technical roles, transfer and sustainability of services.

The long-term support for the governance functions in the HQ, provided by UNDP, will also be complemented by assistance for enhancing service delivery at the district level. Most of the current capacity development of law enforcement is directed either at the HQ level to strengthen normative framework and internal oversight or at the community level to enhance

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service provisions at the grassroots, i.e. suco level. The capacity of law enforcement at the district level has been neglected both in terms of ability to implement national policies and to enhance their service provision. International assistance is currently concentrated through two robust programmes; PNTL HQ (AFP) and more recently on community policing at sucu level (New Zealand, Asia Foundation). No adequate programmes exist that aim to ensure capacity at district level including for implementing HQ policies, and collecting intelligence from sucos and servicing community policing. Given that district stations suffer from some of the similar operational challenges as the HQ, this programme will ensure that knowledge related to procurement, IT, vehicle maintenance and outreach capacity trickles down to the district level. The programme will also include user-oriented services (e.g. Help Desks), community outreach, human rights protection and engaging in local networks set up to prevent and sanction violence against women.

At the request of the PNTL, the new 4 year programme (2015-2018) will maintain technical support related to human resources, procurement, communications, fleet management and IT but with a changed technical assistance modality, utilizing national expertise, where feasible.

Newly identified programming areas in phase II are aimed at complementing and completing support for governance, and introducing assistance for service delivery in currently under-supported capacities for district level police stations. Several areas have been identified for additional support to strengthening governance and internal oversight in the PNTL including legal counsel, financial management and budgeting, and gender mainstreaming capacity. Currently there is no legal advisor in the PNTL, while there are a range of varied needs for this service including: to review and input into relevant legislation; to draft internal by-laws and regulations; to support human resources, public tenders and contracting work; and to assist with internal disciplinary mechanisms. The strengthening of financial management will also benefit from an integrated system and for increased capacity for streamlined annual budgeting as recently introduced by the Ministry of Finance. Finally, in recent years the number of women who enter the police force has been decreasing and a renewed effort to develop new policies, create incentives and reach out to potential applicants will be needed to reverse this trend.

The programme strategy therefore assumes three main approaches: 1) planned exit and gradual self-sustainability of capacities and services; 2) decentralization in the sense of ensuring that HQ, district level and grassroots policies and initiatives are well communicated, coordinated and followed through; 3) gradual introduction of civilian capacity and service-orientation towards the end users.

A. GENDER STRATEGY

To address gender issues related to law enforcement and support women’s empowerment through their incorporation in the PNTL, the programme may pursue the following:

i. Seek to ensure that gender issues are incorporated into all relevant PNTL

policies and legislation, and that internal processes are gender equal and fair. ii. Advocate for increased participation of women in the policing sector at the

institutional level. iii. Conduct local level sensitization on gender and women’s rights and public

role, especially aimed at provision of security services.

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iv. Ensure that reform processes are consultative, participatory and actively encourage the involvement of women, marginalized or vulnerable groups, and that plans and services are sensitive to their specific needs.

v. Increase women’s participation in rule of law institutions, and develop capacities of PNTL for gender analysis based on disaggregated data, so to understand the gender-based causes of discrimination.

vi. In developing curricula and training materials, ensure that gender and its different constituents are addressed.

vii. Support specific initiatives aimed at supporting a critical mass of women in active public life in the rule of law arena, such as leadership and advocacy training, orientation in human and women’s rights, and strengthening of women’s networks.

viii. Ensure close co-ordination and collaboration with other gender-specific activities and closely related projects with mutual interest in gender issues.

B. HUMAN RIGHTS AND DUE DILIGENCE STRATEGY

The project follows human rights based approach (HRBA) and will be implemented in line with the UN Human Rights Due Diligence Policy. Additionally, the project will actively promote human rights in a cross-cutting approach. It actively works to strengthen the knowledge of security providers of human rights principles and the responsibilities of duty-bearers to uphold respect for human rights and protect communities. In order to enable duty bearers to develop their capacity, so as to be held accountable for their work performance and meet their obligations as far as possible to respect, protect and fulfil human rights, and to empower rights-holders to claim and exercise their rights, the project may pursue the following:

i. Ensure that policies, laws and by-laws promote equality and are non-discriminatory, but contain positive measures (affirmative action) where considered critical.

ii. Advocate and monitor that security services are available, affordable, accessible and acceptable.

iii. Advocate voluntary, meaningful and effective participation, inclusion of, and outreach to minority and marginalised groups in the sector, including staffing and other forms of engagement.

iv. Ensure human rights are incorporated in policing curricula and training materials, as well as civic initiatives.

v. Develop capacity of rights-holders in certain specific rights related to the rule of law, including special measures for marginalised groups and minorities, as well as women, in the justice and security sector merit-based recruitment system and strive to support coaching.

B. SUSTAINABILITY STRATEGY

Sustainability of development assistance to the PNTL is at the heart of all interventions envisaged under the phase II of the PNTL support programme. One of the key objectives of this programme will be to develop a sustainability strategy that maps out the steps for gradual introduction of national capacity in managerial and technical roles and sustainability of services.

In designing the Strengthening Governance and Service Delivery of the PNTL project, there is a strong focus on gradual transfer of roles and development of

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sustainable mechanisms. International expertise will be used sparingly and with narrow-focus on expertise related to particular skill sets and business processes (e.g. to capacitate human resource, procurement, legal, financial, communications, fleet maintenance and IT departments respectively). For the three year life of the project the standard is to use international specialists for a two year period, supported largely by national staff professionals on UNDP contracts for the four year duration. Accordingly, two years funding is provided for national specialists on government PNTL contracts, which allows sufficient time for the PNTL budgetary process to take over. In developing internal national capacity in technical areas, UNDP will support PNTL to introduce permanent civilian posts in the HQ as a part of modernization of the police force. Some civilian staff are already present on temporary contracts, at levels and salaries in compliance with the civil service commission, in the IT and communications departments. The introduction of civilian capacity could be a first step in sustainability and in promoting a modernization of police force towards a more service oriented approach.

Furthermore, in the first year of its implementation the programme will formulate a comprehensive sustainability strategy for phasing out its support in consultation with national actors. The exit strategy will contain concrete recommendations for incorporating programme outcomes into relevant strategic plans including national development plans and institution-based plans and budgets. It should be responsive to continuing development of institutional capacities and structures and flexible in applying the strategy based on an ongoing consultative process with security institutions and civil society actors. It will thus be discussed regularly and revisited with beneficiaries, national counterparts and international development partners.

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VI. OUTPUTS IN BRIEF

Output UNDAF/CPD Outcome 4: Vulnerable groups benefit from strengthened legal and policy frameworks and have improved access to security and rule of law institutions. UNDAF/CPD/CPAP Output 4.1: Judicial, legislative and administrative authorities have improved capacity to draft, reform and implement legislation that protects people’s rights and constitutional guarantees.

Output 1: PNTL Headquarter Capacity for Management and Administrative Systems Strengthened.

Output 2: PNTL Management and Service Delivery in Pilot Districts Improved.

VII. NARRATIVE DESCRIPTION OF OUTPUTS

Output 1: PNTL Headquarter Capacity for Management and Administrative Systems Strengthened

This output consolidates previous work in strengthening the central management and administrative capacity of the; human resource, information technology, procurement, public relations, and fleet management units. In order to build on this work the finance, budgeting, legal services, and internal audit and inspection functions are also targeted for capacity development.

It was identified during earlier project support that to develop proper governance within administrative and managerial areas, there are several interlinked critical functions that need to be supported simultaneously. Without attention to planning and budgeting the chances of securing sustainable funding for project facilitated initiatives is unlikely. As a rule of law institution, establishing a coherent legal framework and the availability of quality legal services is also essential. Without developing the oversight mechanisms to ensure compliance with existing legislation and guidelines, good practices are likely to fade. Therefore this project extends its capacity development support to include; finance, legal services and internal audit and inspection functions. These areas are considered essential to ensure long term improvements in the governance functions within PNTL.

An institutional gender assessment was completed in late 2014 so this output also includes a gender component. Support in this area will support whole of government efforts to address gender based violence and facilitate the implementation of PNTL specific recommendations arising from that assessment.

Under output 1, PNTL Strengthening Governance and Service Delivery project will provide capacity development in the following ten areas:

1. Technical capacity for implementation of the PNTL Strategic Plan 2014-2018

Co-ordination between international development partners supporting the police is limited to informal arrangements. To ensure international support is targeted to key priorities and is properly harmonised, a strong co-ordination mechanism is necessary, a need recognised in the strategic plan. A key requirement for the PNTL to measure progress towards strategic plan objectives is to start with a baseline.

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Therefore assistance will be provided to identify and gather key baseline data upon which future progress can be measured. Using available information to ensure proper oversight of the implementation of plans is critical in order to assess progress. The use of information technology to facilitate the extraction of key work force management, crime, and traffic data will be promoted under this component, and the implementation of the necessary systems will be reported on under component two, Information technology and data management.

2. Information technology and data management

Scoping, developing, and implementing adequate IT services, is one of the strategic priorities of the PNTL. Some progress has been made on establishing a network and hardware which will be the foundation for an adequate IT service. This work needs to continue and management controls need to be instituted to ensure network and data security, and responsible use. Access to the PNTL network and user controls need to be linked to the human resources system. Capturing and utilizing accurate and relevant information relating to workforce management, crime and traffic statistics is also a strategic priority which requires the IT unit capacity to be further developed to achieve. Internal regulations need to be developed to promote the electronic transmission of instructions to address reliance on manual dispatch systems, and to ensure responsible use.

3. Human resource management

Establishing a human resources management plan which includes topics like recruitment, career development, postings and retirement is a major PNTL objective. The Human Resources Department has focused on processing transactions and in order to meet strategic plan objectives needs to take a stronger policy development approach. Components of this objective include developing and implementing policy to ensure the recruitment, training, retention, and performance management of personnel with the skills, ability and diversity consistent with the community policing standards adopted by PNTL. Capacity will also be developed so that the department can produce data and reports on human resource issues to guide corporate planning and monitoring. Implementing the Timor-Leste Government welfare system for disability and death pensions within PNTL, developing and upgrading the human resource database with verified personnel information, implementing the Performance Evaluation System, provision of inputs into the PNTL personnel statute, which is to include; terms of employment, staffing table, discipline, salaries, career development and retirement are also objectives of this component. Many of these objectives are reliant on legislative reform, therefore this component will be supported by the provision of legal services under component eight.

4. Procurement management

The Procurement unit was established in mid-2013, and in early 2014 was delegated authority to procure goods and services up to a value of $250,000. Only one of the nine officers assigned to the unit has received formal instruction on the procurement process and guidelines. Extensive training will be provided to raise the skill level of all officers to enable procurement services to be delivered. Management controls and succession planning will be put in place to ensure that once the required level of expertise is reached it is retained. In conjunction with the office of the Inspector General a systematic audit and inspection will be provided in order to provide quality assurance of procurement services.

5. Fleet management

The recurrent cost of the vehicle fleet consumes 13% of the PNTL budget, and feedback from the majority of district based officers is that lack of access to transport

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is the main reason which will impact on their ability to achieve strategic plan objectives.17 Yet in spite of this significant cost, vehicles are not maintained in accordance with preventative maintenance schedules, there are no management controls over fuel consumption, and there is a lack of policy to guide vehicle allocation. Guided by recommendations arising from the UNDP assessment of the PNTL fleet management system, technical assistance will be provided to the vehicle establishment committee, which will be charged with implementing recommendations. This covers the functional areas of; vehicle maintenance, vehicle allocation and usage, and fuel management. Technical support will include a cost benefit analysis of outsourcing versus in house maintenance, implementing management controls over vehicle allocation, use and supply of fuel, implementing environmental management practices, and establishing an internal audit function to monitor and report on compliance.

6. Public relations, media relations & internal communication

The PNTL Public Relations Office has been making sound progress in its ability to produce a variety of information products about the work of the PNTL in order to increase transparency and promote public confidence. This includes provision of information through regular magazines, an updated web site, and media campaigns on priority issues. The success at the central level needs to be consolidated and translated to the regional level, initially at two proposed district pilot sites. The provision of technical support to guide the development of a PNTL wide internal communications strategy will be provided to ensure each officer at every level of the PNTL is aligned with the strategic direction of the PNTL. This will also assist address a regular theme that has emerged, that of compliance with legislation, regulations and guidelines. Regular and consistent communication will also highlight and reinforce the values of the community policing model.

7. Financial management and budgeting

Development and implementation of financial strategies was a business priority for PNTL for 2014. However due to delays in launching both the strategic plan and annual business priorities, aggravated by a lack of technical support, this was unable to be progressed in 2014. Project technical support will be provided to assess the finance department and its ability to comply with existing financial regulations and guidelines and its ability to achieve planned strategic objectives. This work will guide capacity development initiatives but will also be consistent with, and support PNTL prioritised activities of; a) Identify, review and implement improvements to current key business processes with emphasis on managing cash payment vouchers and the budget process. b) Conducting a structural review of the Department of Finance to ensure client service emphasis, work flows are efficient and workloads are equitable. c) Conduct training for finance focal point personnel to improve service delivery. d) Complete the budgetary component of the annual action plan process in accordance with government requirements. e) Annual budget submissions are prepared based on PNTL strategic and annual priorities.

8. Legal services

Subject to a decision by the project management board and the availability of funding, support will be given to establish a legal office responsible for the provision of professional legal services to the PNTL. The reason for not making a clear

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PNTL strategic plan district socialisation workshops. Participant Feedback July – October 2014. UNDP PNTL Project October 2014

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commitment at this stage reflects the complexity of establishing a legal office function within the PNTL that complements the existing legal services role established in the Ministry of Interior (formerly Secretary of State Security). The proposed role of the office within PNTL will include; reviewing and providing inputs into relevant legislation including the PNTL organic law, drafting internal rules and regulations, and providing legal inputs into public tender and contracting work and internal disciplinary mechanisms. Currently no legal capacity for any of these functions exists in PNTL. This lack of capacity severely impacts on their ability to progress a key strategic objective concerning the review of existing laws and regulations and the drafting of new laws, regulations and standard operating procedures. The development of assistance in this area will involve close liaison with the Ministry of Interior which does have legal advisors. It has been identified that there are a number of PNTL officers with legal qualifications that could form the foundation of a legal office.

9. Gender Three areas have been identified to strengthen gender equality within PNTL; 1) ensuring gender issues are identified and addressed within the administrative service areas, 2) provision of information to assist victims of gender based violence through the project service delivery output, 3) provision of facilities at pilot districts which will attract and retain female police officers. Project support to administrative areas will include a focus on ensuring gender considerations are taken into account. This will include performance evaluation, staffing tables, recruiting, access to professional development, access to equipment and vehicles, and legal inputs into policy development including internal investigations into sexual harassment. Service delivery at district pilot sites will include the provision of information to the community concerning accessing police services and broader justice and social services to support victims of gender based violence. District pilot sites will be provided with infrastructure and equipment support which will assist attract and retain female police officers. This will include change room, toilet and nursing facilities. PNTL Gender Unit’s capacity to raise legal awareness of police officers regarding domestic violence legislation will be strengthened.

10. Internal audits and inspection

A common theme in project support to managerial and administrative departments has been the lack of compliance with existing regulations, guidelines and standard operating procedures. To address this, a systematic approach to conducting internal audits and inspections will be initiated to allow compliance to be monitored and feedback provided to responsible managers. The PNTL Office of the General Inspectorate will be supported with training and technical assistance in order to systematically conduct internal inspections and audits into operational, administrative, financial, disciplinary and technical matters. This will be provided in close cooperation with the Ministry of Interior Office of Inspection and Audit and the independent Office of the Inspector General, in order to support the implementation of their respective mandates. A strong focus will be on identifying those areas most at risk of non-compliance and to reinforce good practices concerning the early identification of issues and the initiation of corrective actions.

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Output 2: PNTL Management and Service Delivery in Pilot Districts Improved

Under output two, PNTL Strengthening Governance and Service Delivery project will facilitate the application of central functions at the district level. This will commence by firstly improving the understanding of how police services are delivered at the district level through commissioning local research. Gaining a proper appreciation of what and how services are delivered along with the obstacles to success will be essential prior to improving services. This knowledge will inform capacity development planning along with guiding the practical implementation of delivery of services to the community. This output will consist of the following sequenced activities:

1. Functional review of police services in two pilot districts conducted

In order to understand what and how police services are delivered at the district level, a study will be conducted in two pilot districts. The objective will be to gather information on; the district policing structure and roles of staff, community engagement mechanisms, what services are provided to the community, how existing strategic objectives at central level are communicated and translated into action, and the barriers to service delivery.

2. Capacity development plans for two district police stations

Based on the findings of the functional review, capacity development plans will be designed and implemented in two district police stations based on their specific requirements. The results of these plans will allow for consideration of expansion to other districts.

3. Management and administrative services in pilot districts strengthened

It is essential that central level capacity development gains at the central level are translated into service delivery gains at the district level. Therefore linkages and the identification of barriers specific to project supported areas of; human resources, procurement, IT and fleet management, will be included in the district level review. The findings will inform the development of specific actions to strengthen district level compliance with centrally issued instructions and guidance.

4. Help desks, and community outreach programmes in pilot district police stations developed and implemented

In order to build trust and confidence in the police it is imperative that the role of the police and how they can help the community is understood and publicised. This extends beyond the role of Community Policing Units. Practical information on the role of the different specialised and general police units, citizen rights and obligations, and how to access police services is important. The development of activities under this component will be based on the community service delivery aspects of the functional review.

5. Support mechanisms for victims of domestic and gender based violence established in pilot district police stations

The provision of information on rights concerning domestic and gender based violence, and how to access police services, is currently not easily accessible and is aggravated by literacy issues. This will be attended to in coordination with both the Vulnerable Persons Unit, Public Relations Office, and district officials in two pilot districts. The provision of information will also include strengthening the coordination with justice and social service providers at district level. Attention will also be given to improving the facilities for female police officers to improve the attraction and retention of female police officers, which are necessary to improve service delivery to female victims of crimes.

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VIII. PARTNERSHIP STRATEGY

In addition to the PNTL, close working partnerships will be established and maintained with other key government partners, UN agencies, and international development partners of the PNTL. This will ensure annual work planning targets national priorities, and maximises project impact through effective harmonisation. Formal engagement with partners will be fostered through participation in the project management board meetings and international PNTL stakeholder co-ordination meetings. Informal engagement will be pursued through regular consultation meetings and briefings with the following range of partners.

Government partners

The PNTL engagement on a day to day basis will be through co location of project team members within the offices of the units and districts being supported. As per the project management arrangements outlined in part IX, the PNTL Commander General will chair the project management board meetings, and a senior PNTL officer, currently the Commander Administration, will be appointed to coordinate and work with the Senior Technical Advisor and National Project Manager on project planning and implementation.

Representatives of the Ministry of Interior will participate in the project management board meetings. While the Ministry of Interior has management oversight over all aspects of the PNTL, close liaison will be maintained with this office with particular reference to the project components of; human resources, procurement, fleet management, legal services and internal inspection and audit. This reflects the expertise, oversight role, and close interest demonstrated to date by the Ministry of Interior (formerly SoSS) in these areas.

The office of the Secretary of State for Promotion of Gender Equality and Ministry of Social Solidarity, along with UNWOMEN, will be consulted to inform the development of service delivery activities concerning gender promotion and addressing gender based violence at the district level. In May 2014, both these offices in partnership with the Asia Foundation launched the Ending Violence Against Women (EVAW) programme.18 The programme is an eight year intervention aimed to reduce the proportion of and better meet the needs of women and children who experience violence. The commencement of this programme provides opportunities for improved PNTL service delivery at the district level. This can be through provision of information to the community as to services available and fostering the development of closer professional relationships between the police and partners in order to improve services to women and children.

United Nations

Co-ordination with other UNDP projects, including; Justice Support Programme and Capacity Building of the Provedoria for Human Rights and Justice will be facilitated through the UNDP Democratic Governance Unit. Planning will be coordinated with UNWOMEN, UN Human Rights Adviser’s Unit, UNICEF, and UNODC in respect to their programmes which impact on the PNTL. UN Human Rights Adviser’s Unit supports the Provedoria for Human Rights and Justice so close links will be maintained to strengthen the application and use of training which is consistent with the PNTL strategic objective concerning discipline.

International Development Partners

The international development partners of the PNTL are;

18

The Asia Foundation website http://asiafoundation.org/news/2014/05/the-asia-foundation-launches-ending-violence-against-women-programme-in-dili/ accessed 29 July 2014

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Australian Federal Police through the Timor Leste Police Development Programme,

New Zealand Police through Timor Leste Community Policing Programme,

United States of America, through advisor support to maritime police, logistics department, funding of Border Police through UNODC, and funding of The Asia Foundation community security programme and security sector monitoring non-government organisations Foundation Mahein and Belun,

Government of Japan, through community policing training and through funding the Support to Peace building in Timor-Leste through effective and accessible justice system, social dialogue and policing services.

Government of Portugal through advisory support and recruit, tactical and management training from the National Republican Guard (GNR),

Government of Indonesia through sponsoring of training for PNTL officers in Indonesia

International Development partners will be formally engaged by inviting them as observers to project management board meetings, and through international stakeholder co-ordination meetings. UNDP will support the PNTL to establish these co-ordination meetings with a view to ensuring stakeholders can harmonise their development support and target assistance to PNTL priorities in accordance with their strategic plan.

IX. MANAGEMENT ARRANGEMENTS

The overall management of the project will be undertaken by UNDP under the Direct Implementation Modality (DIM).

Project Management Board A Project Management Board (PMB) will be responsible for project oversight and making key decisions on project implementation, to ensure that the project remains relevant and responsive through changing circumstances. The PMB is responsible for: a) reviewing activities and guiding project management on any impending issues; b) approving work-plans, budget, and risk log; c) approving project revisions based on changes in the situation. The PMB will meet on a six monthly basis. The PMB will be co-chaired by the Commissioner of PNTL and UNDP Country Director or their delegates. Contributing donors will be members of the PMB. A senior PNTL officer will be appointed by the PNTL Commander General as the senior national counterpart, to coordinate and work with the Senior Technical Advisor and National Project Manager on project planning and implementation. He/she will also be responsible for facilitating joint evaluations and assessments of relevant activities and proposing adjustments to implementation strategy or approaches as appropriate. Observer status may be granted to another institution or NGO representative either on a regular basis or on an ad hoc basis depending on the agenda to be decided by the Project Board. Board meetings will be held every six months, however, they can also be convened when needed, upon the request of the Project or the Board members.

National Project Manager: The National Project Manager (NPM) will manage the project on a day-to-day basis on behalf of the Project Management Board. S/he will ensure that the project produces the results specified in the project document, to the required standard of quality and within the specified time and cost. In addition, his/her role will be to ensure coherence and coordination of all project components in accordance with project strategy and objectives. The NPM will be responsible for project administration, human resources, finance, procurement and recruitment. The NPM will work closely with the STA and PNTL senior counterpart to achieve project objectives and resolve identified issues. The NPM will

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monitor the performance of National Civilian Officers, and ensure contractual requirements are complied with.

Senior Technical Advisor (International): The Senior Technical Advisor (STA) will have the primary responsibility for the technical oversight of the project. He/she will report to the Project Board every six months or as required, and will present the annual work plan, progress reports, as well as critical issues to the Board, seeking its direction as necessary. The STA will also assume an international development partner coordination role: ensuring that the project is well coordinated with other police projects implemented by other donors, UN agencies, and international organisations. S/he will promote coordinated international support to the PNTL strategic plan.The STA will ensure effective planning and implementation of project activities outlined in the project document and annual work plans, mobilization of inputs and performance management of project staff. For this purpose, the STA will have a supervisory role over personnel funded by the project regardless of their contractual status and will ensure quality project management, in accordance with the project document, annual work plans, Project Management Board decisions, and in compliance with UNDP rules and procedures. The STA will be supported by a National Project Manager, Project Analyst and a Project Assistant.

.

Management and Administrative Systems

(Staffing table to be confirmed)

Management and Service Delivery in Pilot Districts

Project Management Board

Commissioner PNTL

UNDP Country Director

Donor representatives

Project Management Team

National Project Manager (SB-5)

Senior Technical Advisor (P-5)

Quality Assurance

UNDP Democratic Governance Unit

Project Organizational Structure

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X. MONITORING AND EVALUATION STRATEGY

Monitoring and evaluation will determine the achievement of objectives and improve project efficiency, effectiveness, impact and sustainability. Monitoring and evaluation activities will take place according to UNDP standard policies and procedures. Monitoring and evaluation data and techniques will comprise; a) Use of PNTL data, b) project specific data where no PNTL data exists and 3) qualitative data using the most significant change technique. PNTL Measures of Success The data management systems used by the PNTL will be the primary source of monitoring data. Where baseline data is lacking, or there is an absence of data collection by the PNTL, then project specific measures will be implemented. The following extract from the PNTL Strategic Plan

19 concerning monitoring progress, reproduced below, outlines measures of

success intended for use by the PNTL. Strategic Objective 1 – LEGISLATION: Increase the skills of police members through strengthening implementation of the PNTL Organic Law, personnel terms and conditions, internal regulations, and norms of organisation and procedure (NOP). • Improved alignment of key legislative documents and PNTL institutional developments. • Increased PNTL adherence to documented work duties and practices. Strategic Objective 2 – TRAINING: Increase the technical and professional capacity of PNTL members through training activities. • Increased capacity of PNTL to fulfil the requirements of their role. Strategic Objective 3 – ADMINISTRATION: Develop PNTL skills to manage human, financial, logistical and ICT resources to provide adequate support for policing activities. • Increased capacity to manage human and physical resources to meet PNTL operational requirements. Strategic Objective 4 – DISCIPLINE: Develop PNTL’s capacity to act in a disciplined and accountable manner. • Increased confidence of the community in the PNTL service. Strategic Objective 5 – OPERATIONS: Maintain security, public order and peace which are favourable for political stability and socio-economic development of Timor-Leste. • Increased community trust, feelings of safety and cooperation with PNTL. • Increased capacity to prevent, investigate and prosecute crime domestically and internationally. • Enhanced coordination and response to special operational situations. • Reduced road and traffic accidents and inconvenience for road users, and increased compliance with traffic and

road safety laws. • Improved land and sea border management. Each year the PNTL publishes a business plan which will identify annual priorities and measures of progress. These annual measures of progress will be aligned to each project annual work plan. Where PNTL measures of success are consistent with project objectives, PNTL data will be captured and reported on. Most Significant Change Technique The Most Significant Change (MSC) technique will be used on an annual basis to gather qualitative data to complement existing quantitative data. MSC technique is a form of participatory monitoring and evaluation, without using indicators. The method can also be characterized as “Monitoring without indicators”, “The story approach” or “Evolutionary monitoring”. Some advantages of this approach are: o suitable for identifying unexpected changes o helps to identify prevailing values o easy to use, does not require special professional skills o encourages analysis and data collection o useful for conceptualizing impact o delivers a rich picture of what is really happening

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PNTL Strategic Plan 2014 – 2018, PNTL General Command, Department of Administration and Planning

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o It allows for monitoring and evaluation of bottom-up initiatives, not foreseen in the project design Reporting The following monitoring and evaluation documents will be produced;

Quarterly Progress Report: UNDP will provide quarterly narrative progress reports to the Project Board and donors within one month of the end of the semester reported. The progress report shall directly relate to the project document and shall include: 1) Introduction; 2) Financial summary; 3) Main activities and achievements; 4) Monitoring and Evaluation; 5) Challenges and Limitations; and 6) Conclusion and way forward.

Issue Log: An issue log will be activated in Atlas and updated by the Project Analyst in consultation with the Senior Technical Advisor and National Project Manager to facilitate tracking and resolution of potential problems or requests for change.

Risk log: Based on the initial risk analysis submitted (see above), a risk log will be activated in Atlas and regularly updated by reviewing the external environment that may affect the project implementation.

Annual Report: An Annual Review Report shall be prepared by the Senior Technical Advisor and National Project Manager and shared with the Project Board. As a minimum requirement, the Annual Review Report shall consist of information covering the whole year as well as a summary of results achieved against pre-defined annual targets

Evaluation A mid-term review evaluation will be conducted in the second year of the project. A final evaluation will be conducted at the end of the project, and included in the final annual report. The evaluations will engage national and international partners and stakeholders, and will focus on project impact, sustainability, and degree of national engagement Audits All UNDP Direct Implementation Modality projects are subject to audit at least once in their lifetime.

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PNTL Strategic Plan 2014-2018, Measures of Success, aligned to strategic objectives (SO), p.16 21

These measures of progress are listed in the PNTL Business Plan 2014. As at August 2014 this Business Plan had not been socialized throughout the PNTL. Annual measures of progress are documented in each annual PNTL Business Plan. The measures listed are from Objective 1: Reform and develop the institution, Priority 1: Budget, Finance and Administration

Results Indicator(s) Baseline Target Means of verification

Output 1: PNTL Headquarter Capacity for Management and Administrative Systems Strengthened

PNTL Indicator:

Not established

PNTL Baseline:

Not established

PNTL Strategic Plan20

Target:

SO 1. Improved alignment of key legislative documents and PNTL institutional developments

SO 2. Increased capacity of PNTL to fulfil requirements of their role

SO 3. Increased capacity to manage human and physical resources to meet PNTL operational requirements

SO 4. Increased confidence of the community in the PNTL service

SO 5. Increased community trust, feelings of safety and cooperation with PNTL

PNTL Annual Business Plan 201421

Progress will be measured by:

1. Accurate budget and financial information available on request to facilitate informed decision making, including costing and forecasting.

2. Budget consistent with service delivery requirements.

3. Decisions and processes transparent and accountable, able to withstand external scrutiny.

4. Staffing, facilities and equipment are sufficient to meet functional needs and service delivery requirements.

5. Recruit course compliant with timeline and budget.

6. Accurate workforce information available on request to facilitate informed decision making.

7. 112 emergency line and IMS operational.

8. Police Academy is established by Decree-Law.

9. PNTL responsibility for delivering accredited courses increases.

10. ‘Friends of PNTL’ established and meetings conducted.

Output 1:

Component 1: Technical capacity for implementation of the PNTL

1. Submission of annual activity plans by district and unit commanders that reflect annual PNTL priorities

2. Provision of feedback to

Baseline not established 1. Baseline established from which progress towards PNTL strategic plan objectives can be measured

2. Standardised reporting system

1. Survey report 2. Reports from PNTL Planning

Department 3. Reports from PNTL Planning

Department

30

Strategic Plan 2014-2018 put in place

district and unit commanders on the implementation of annual activity plans

established at national, district and unit level which captures data on implementation of PNTL annual priorities

3. District and Unit commanders comply with established standards and timelines for reporting on implementation of corporate plans

4. District and Unit chiefs provided feedback by their commanders on plan implementation

5. Internal Audit and Inspections conducted to measure compliance with corporate reporting requirements

4. District/Unit surveys 5. Reports from PNTL Inspector

General

Results Indicator(s) Baseline Target Means of verification

Output 1

Component 2:

PNTL capacity in IT/data management improved and sustained

1. % of IT system uptime

2. % of districts and units using central servers

3. % of help desk complaints resolved within 48 hours

1. 2013 Average 53% uptime 2. 2013 0% 3. 2013 0%

1. Administration Departments use centralized secure systems that meet PNTL data requirements

2. Interface established between PNTL IT systems which allows for extraction of key management data for oversight purposes

3. IT Unit is able to independently plan for the future PNTL IT requirements, and implement and maintain established IT standards for PNTL

PNTL IT Unit reports

Output 1 Component 3:

PNTL capacity in human resource management improved and sustained

1. Recruitment policy developed and implemented which facilitates recruitment of people with the skills, ability and diversity consistent with community policing

1. No policy in place 2. Human Resources strategy developed, implemented and used by PNTL to ensure the recruitment, training, retention, and performance management of personnel with the skills, ability and diversity consistent with the community policing

31

standards standards adopted by PNTL

3. Human Resources Department produce data and reports on human resource issues to guide corporate planning and monitoring

Output 1:

Component 4:

PNTL capacity in in procurement management improved and sustained

1. % of PNTL Procurement Plan executed

2. Internal audit rating

1. 2014 data not available 2. 2014 No audit conducted

3. Procurement Unit is able to conduct procurement planning and manage procurement processes in accordance with established standards in a sustainable manner

4. Procurement Unit produces data and reports on procurement issues to guide corporate planning and monitoring

5. Through demonstrated compliance with established procurement and management standards the PNTL Procurement Unit has its delegated procurement authority increased from $250,000 to $1,000,000

1. Report from PNTL Inspector General 2. Feedback from PNTL Commander

Administration 3. Delegation of Authority from

Secretary State Security

Output 1:

Component 5: PNTL capacity in fleet management improved and sustained

1. Vehicle allocation ratio established and implemented

2. % of Vehicles maintained in accordance with government guidelines

3. Monthly fuel reports and analysis per vehicle and district/unit generated (yes/no)

1. 2013 no ratio established 2. 0% 3. No fuel reports & analysis

1. Logistics Department produces accurate data and reports on the allocation, use, and maintenance of vehicles and the use of fuel

2. The data and reports produced by Logistics Department is used to ensure effective vehicle allocation and management control of vehicle assets and fuel within PNTL

1. Report from PNTL Inspector General 2. Feedback from PNTL Commander

Administration

32

Output 1: Component 6: PNTL capacity in public relations, media relations & internal communication improved and sustained

1. PNTL web site updated on a weekly basis (yes/no)

2. Internal Communications strategy developed and implemented (yes/no)

3. Number of interactions between spokesperson and media

1. 2013 web site not operating 2. 2013 no strategy 3. 2013 no spokesperson

1. PNTL disseminate factual, timely, regular and accessible information to the public on the activities and policing services provided to the community

2. An internal Communications Strategy is developed and implemented resulting in members of the PNTL receiving regular, timely, accurate and consistent information from supervisors, managers and commanders in various formats in accordance with established values and corporate plans

1. PNTL Website review

2. PNTL staff survey

Results Indicator(s) Baseline Target Means of verification

Output 1: Component 7: PNTL capacity in financial management and budgeting improved and sustained

1. Production of templates to guide district/unit budgeting (yes/no)

2. Production of monthly reports on budget compliance (yes/no)

3. Number of days to process payments

1. 2013 no 2. 2013 no 3. 2013 not known

PNTL at national, district and unit level produce costed annual budgets, consistent with corporate priorities

- Finance department produces accurate data and generates reports on compliance with budget forecasts

- Finance department processes payments in accordance with established time frames

Feedback from Commander Administration

Output 1: Component 8: PNTL legal capacity for legislative drafting and administrative services developed and sustained

1. PNTL inputs provided into legislation

2. Legal framework and processes for the creation of internal regulations and standard operating procedures developed

3. PNTL regulations drafted 4. Public tender and contracts

prepared in accordance with established guidelines

5. internal complaint investigation mechanisms accord with established legal processes

1. 2014 no input provided 2. 2014 no framework or process 3. 2014 no regulations drafted 4. 2014 no inputs provided 5. 2014 data not available

Legal office established in PNTL which; provides inputs into legislative reviews, legal advice ensuring PNTL compliance with legal requirements

Feedback from MoI

33

Output 1: Component 9: PNTL capacity to improve gender equality at central and district level strengthened

1. % of female officers disaggregated by rank and location

1. 2013: PNTL 16% female 2. 2013: data to be established

on % female at agent, sergeant and officer level

1. 20% 2. TBD

HR Department statistics

Output 2: PNTL Management and Service Delivery in Pilot Districts Improved

PNTL Indicator:

Not established

PNTL Baseline:

Not established

PNTL Target:

SO 1. Improved alignment of key legislative documents and PNTL institutional developments

SO 2. Increased capacity of PNTL to fulfil requirements of their role

SO 3. Increased capacity to manage human and physical resources to meet PNTL operational requirements

SO 4. Increased confidence of the community in the PNTL service

SO 5. Increased community trust, feelings of safety and cooperation with PNTL

PNTL Annual Business Plans

XI. RISK LOG

Risk Brief description of risk.

Impact Potential effect if risk occurred.

Impact (I) measured from 1-5: 1 (low), 5 (high)

Probability

Likelihood of this risk occurring.

Probability (P) measured from 1-5: 1 (low), 5 (high)

Countermeasure/ response Actions which will be/been taken to mitigate this risk.

Political Instability

Caused by transition of established political leaders to the new generation of political leaders

I= 5

Security sector institutions are under direct control of Prime Minister making them more exposed to political instability

P=1

Alignment of project assistance with government plans and increased use of senior national staff.

Appointment of a new Commander General is scheduled for March 2015 which may result in different priorities and different response to UNDP engagement

I= 4

Possible rejection of project assistance and previously determined priorities

P=3

Close engagement with Deputy Commander General and key Commanders has been and will continue to be taken

Frequent transfer of PNTL counterparts and officers targeted for capacity development

I= 3

Reduces sustainability of capacity development support

P= 5

Advocate for the increased use of select civilian positions and for budget allocations to be made to ensure future funding.

Sustainability of capacity building efforts is jeopardised if PNTL do not budget for civilian positions in accordance with civil service commission levels and salary scales

I=4 P=3 Advocate for budget planning in each area a civilian is employed to enable sufficient funds in the PNTL budget for 2016

35

Delays in recruiting key staff adversely impact on achieving project objectives

I=4

P=4

Early action to secure funding agreements and close project management oversight of recruiting process

36

Annex 1

XII. Results and Resources Framework UNDP Support to Timor-Leste National Police - Strengthening Governance and Service Delivery

(2016-2018)

United Nations Development Assistance Framework Outcome:

UNDAF Outcome : By 2019, state institutions are more responsive, inclusive, accountable and decentralised for improved service delivery and realization of rights, particularly the most excluded groups

UNDP Country Programme Document Outputs:

Output 3.1: Capacities and systems of justice sector institutions and police enhanced to provide access to effective and efficient justice and protection to the citizens, particularly for rural women, children and vulnerable groups.

Applicable Key Result Area from UNDP Strategic Plan 2014-17:

Outcome 2: Citizens expectations for voice, development, the rule of law and accountability are met by stronger systems of democratic governance

Outcome 3; Countries have strengthened institutions to progressively deliver universal access to basic services

Project ID (ATLAS Award ID): 00072017

INTENDED OUTPUTS OUTPUT TARGETS INDICATIVE ACTIVITIES

IMPL. PARTY & (RESP.

PARTIES).

Inputs BUDGET

(USD)

Output 1: PNTL Headquarter Capacity for Management and Administrative Systems Strengthened

1.1 Component 1: Technical capacity for implementation of the PNTL Strategic Plan 2014-2018 put in place

1. Baseline established from which progress towards PNTL strategic plan objectives can be measured.

1.1.1

UNDP, PNTL

STA

Facilitate coordination of international development partners working in support of implementation of the PNTL Strategic Plan

SB4

37

2. Standardised reporting system established at national, district and unit level which captures data on implementation of PNTL annual priorities

1.1.2

Indicators Develop a baseline to enable measuring progress towards five strategic objectives of the PNTL Strategic Plan

Consultancy

1. Submission of annual activity plans by district and unit commanders that reflect annual PNTL priorities

3. District and Unit commanders comply with established standards and timelines for reporting on implementation of corporate plans

1.1.3

Establish a monitoring and evaluation strategy to enable PNTL monitoring and provision of feedback on plan implementation

M&E T/A

2. Provision of feedback to district and unit commanders on the implementation of annual activity plans

4. District and Unit chiefs provided feedback by their commanders on plan implementation

1.1.4

Tng,Travel,Wk shops

Develop a reporting template to ensure compliance with planning priorities

5. Internal Audit and Inspections conducted to measure compliance with corporate reporting requirements

1.2 (Component 2): PNTL capacity

in IT/data management improved and sustained

1. Administration Departments use centralized secure systems that meet PNTL data requirements

1.2.1

UNDP, PNTL

IT P3

IT infrastructure updated and maintained to enable provision of IT services to each district

STA SB4

IT LoA

2. Interface established between PNTL 1.2.2

38

Indicators IT systems which allows for extraction of key management data for oversight purposes

IT systems established and maintained in key administrative areas to assist with management oversight

Contract Software development/maintenance

1. % of IT system uptime 3. IT Unit is able to independently plan for the future PNTL IT requirements, and implement and maintain established IT standards for PNTL

1.2.3

2. % of districts and units using central servers

Management dashboard which extracts key management data for oversight purposes implemented and maintained

3. % of help desk complaints resolved within 48 hours

1.2.4

Training provided for IT administrators and technicians to maintain infrastructure, systems and resolve user complaints

Tng/Travel/Wk shops

1.3 (Component 3): PNTL capacity in human resource management improved and sustained

1. Human Resources strategy developed, implemented and used by PNTL to ensure the recruitment, training, retention, and performance management of personnel with the skills, ability and diversity consistent with the community policing standards adopted by PNTL

1.3.1

UNDP, PNTL

SB4 STA LoA

Recruitment policy developed and implemented to attract and retain staff with the skills and abilities consistent with the PNTL community policing philosophy

2. Human Resources Department produce data and reports on human resource issues to guide corporate planning and monitoring

1.3.2

Indicators Performance Evaluation System implemented and reported on

workshops

1.3.3

39

1. Recruitment policy developed and implemented which facilitates recruitment of people with the skills, ability and diversity consistent with community policing standards

Staffing table established and systematic reports prepared to assist with the deployment of authorised staff strengths in each district and unit

1.3.4

2. % of performance evaluations completed within required time frames

In conjunction with the Legal Services component provide analysis to inform reviews of PNTL welfare system for disability and death, and PNTL personnel statute, which is to include; terms of employment, staffing table, discipline, salaries, career development and retirement

Legal consultancy

3. Authorised staff table prepared (Yes/No)

1.4 (Component 4): PNTL

capacity in in procurement management improved and sustained

1. Procurement Unit conducts procurement planning and manages procurement processes in accordance with established standards in a sustainable manner

1.4.1

UNDP, PNTL

Succession planning implemented to ensure procurement unit obtains and retains ability to perform procurement function

SB4 STA LoA

2. Procurement Unit produces data and reports on procurement issues to guide corporate planning and monitoring

1.4.2

Indicators Skill development of all staff in Procurement Unit to adhere to minimum government procurement requirements

Training and Development

1. % of PNTL Procurement Plan 3. Through demonstrated compliance 1.4.3

40

executed with established procurement and management standards the PNTL Procurement Unit has its delegated procurement authority increased from $250,000 to $1,000,000

Audit and inspection regime established to ensure Procurement Unit complies with established standards

Equipment

2. Internal audit rating 4. Logistics Department produces accurate data on the receipt, allocation and use of assets and consumables

1.4.4

Procurement unit separates management from processing functions

Travel

5. The data and reports produced by Logistics Department is used to ensure effective planning and management control within PNTL

1.5 (Component 5): PNTL capacity in fleet management improved and sustained

1. Logistics Department produces accurate data and reports on the allocation, use, and maintenance of vehicles and the use of fuel

1.5.1

UNDP, PNTL

Support to PNTL Vehicle Establishment Committee (VEC), which will deal with implementing recommendations of fleet assessment in order to improve fleet management in PNTL

P3 SB4 STA LoA

Indicators: 2. The data and reports produced by Logistics Department is used to ensure effective vehicle allocation and management control of vehicle assets and fuel within PNTL

1.5.2

1. Vehicle allocation ratio established and implemented

Improve the recording and reporting capacity to inform decision making on vehicle asset management, maintenance and fuel supply and use through development and implementation of open source software solution in conjunction with IT unit. Facilitate vehicle asset management through Government Resource Planning system (Free balance) as directed by Ministry of Finance.

Equipment

41

2. % of Vehicles maintained in accordance with government guidelines

1.5.3

Develop a PNTL Driver manual as a basis for recording and monitoring vehicle use, maintenance requirements and fuel management.

Printing

3. Monthly fuel reports and analysis per vehicle and district/unit generated (yes/no)

1.5.4

Review existing contracts at PNTL and SoSS, and support preparation of specifications and terms of reference to allow for improved quality control of tendering and contract management of ; vehicle maintenance, vehicle repairs, and fuel delivery for PNTL.

Tng/Travel/wkshops

1.6 (Component 6): PNTL

capacity in public relations, media relations & internal communication improved and sustained

1. PNTL disseminate factual, timely, regular and accessible information to the public on the activities and policing services provided to the community

1.6.1

UNDP, PNTL

PNTL Public Relations Office (PRO) produce multi-media products to support internal and external communication activities

SB4 STA LoA

Indicators: 2. An internal Communications Strategy is developed and implemented resulting in members of the PNTL receiving regular, timely, accurate and consistent information from supervisors, managers and commanders in various formats in accordance with established values and corporate plans

1.6.2

1. PNTL web site updated on a weekly basis (yes/no)

Establish a formal spokesperson office function for PNTL and provide media relations training

Multimedia production, broadcasting, web site

design

2. Internal Communications 1.6.3

42

strategy developed and implemented (yes/no)

Support the identification of internal communication issues and development of a strategy to improve PNTL internal communication

Knowledge Product consultancy workshops

3. Number of interactions between spokesperson and media

1.7 (Component 7): PNTL capacity in financial management and budgeting improved and sustained

1. PNTL at national, district and unit level produce costed annual budgets, consistent with corporate priorities

1.7.1

UNDP, PNTL

Conduct assessment of financial processing, management and budgeting functions of PNTL Finance Department

P3 SB4 STA LoA

Indicators: 2. Finance department produces accurate data and generates reports on compliance with budget forecasts

1.7.2

1. Production of templates to guide district/unit budgeting (yes/no)

Based on assessment implement capacity development activities to ensure; timely processing of financial transactions

Training/Workshops/Travel

2. Production of monthly reports on budget compliance (yes/no)

3. Finance department processes payments in accordance with established time frames

1.7.3

Based on assessment implement capacity development activities to facilitate the production of reports to enable monitoring of compliance at national, district and unit level of budgeting, expenditure and financial processing

3. Number of days to process payments

43

1.8 (Component 8): PNTL legal capacity for legislative drafting and administrative services developed and sustained

1. PNTL provide inputs into legislation in a systemic manner

1.8.1

UNDP, PNTL

TBD -

Conduct assessment of legal services functions within PNTL

Indicators: 2. Legal framework and processes for the creation of internal regulations and standard operating procedures developed

1.8.2

1. PNTL Legal Services Office established (yes/no)

Based on assessment develop plans for establishment of a PNTL Legal Services Office

2. Number of regulations published in accordance with PNTL Organic Law

3. PNTL regulations drafted 1.8.3

4. Public tender and contracts prepared in accordance with legislation and established guidelines

Development a PNTL legal services annual work plan to outline the provision of legal service priorities for the PNTL including; PNTL internal regulations, standard operating procedures tender documents and contracts, and internal investigations mechanisms that comply with legal processes

3. Number of procurement contracts prepared approved by Legal Office

5. internal complaint investigation mechanisms comply with established legal processes

1.9 (Component 9): PNTL capacity to improve gender equity at central and district level strengthened

1. PNTL recruitment policy incorporates gender equity principles and gender targets

1.9.1

UNDP, PNTL

Provision of inputs into PNTL recruitment policy which reflect gender equity principles

SB4

Indicators: 2. HR policies including performance evaluation, discipline, professional development and promotion recognize and address identified barriers to female police officers

1.9.2

1. % of female officers disaggregated by rank and location

In conjunction with Public Relations office conduct internal awareness raising campaign within PNTL to promote the value of female police officers and to prevent sexual harassment at the work place.

Multimedia production, broadcasting

44

2. Recruitment targets established for female officers (yes/no)

3. Barriers facing female police to the access and provision of transport, communication, equipment and facilities are addressed

1.9.3

Policy and standard operating procedures concerning performance evaluation, discipline and professional development incorporate gender equity principles.

3. % of police stations that have

functioning female change rooms and bathrooms

1.9.4

Identify and support the collation and reporting of gender disaggregated management oversight data.

1.10 (Component 10): PNTL Office of the General Inspectorate’s capacity to conduct internal audits into operational, administrative, financial, disciplinary and technical matters strengthened

1. Internal regulations defining the internal audit roles and responsibilities of the Office of the PNTL General Inspectorate are established in consultation with the Ministry of Interior Office of Internal Audit and Inspection

1.10.1

UNDP, PNTL

Conduct assessment of audit and inspection functions within PNTL and compliance with intentions of legislation

P3 SB4 LoA

Indicators: 2. An annual audit programme of administrative and financial activities within PNTL is established

1.10.2

1. General Inspectorate prepare AWP detailing planned audits and inspections (Yes/No)

Develop a PNTL Inspector General office annual work plan which outlines the annual internal audit and inspection priorities

Travel/Tng/Wkshops

2. Number of Inspections and Audits conducted

3. Audit reports which assess the level of compliance of units and districts with administrative and financial regulations are produced

1.10.3.

Provision of capacity development to Inspector General office staff to enable them to meet the requirements of the office

IT/Equipt

3. Number of recommendations 4. The level of compliance with the 1.10.4

45

made PNTL Disciplinary regulations is reported on in a timely and systematic manner.

Production of reports which assess the level of compliance by PNTL at national, district and unit level with administrative and financial regulations and implementation of annual plans

4. % of compliance with recommendations within six months

SUBTOTAL OUTPUT 1 4,519,371

Output 2: PNTL Management and Service Delivery in Pilot Districts Improved

2.1 (Component 1): Functional

review of police services in 2 pilot districts conducted

1. Study completed detailing what functions are being performed by PNTL and what services they are delivering to the community at district level

2.1.1

UNDP, PNTL

Criteria developed for district selection and two districts selected for review

2.1.2

Indicators: Terms of reference prepared for contracting a functional review with a focus on managerial and administrative functions and provision of services to the community. Tender completed, and review conducted

Consultancy

1. Functional review completed (yes/no)

2.2 (Component 2): Context-specific capacity development plans for 2 model district police stations designed and implemented based on the findings of functional reviews.

1. Capacity development plan developed and implemented for two districts with a focus on managerial and administrative functions and delivery of services to the community

2.2.1

UNDP, PNTL

Capacity development plans for two districts developed with a focus on administrative and managerial functions and provision of services to the community

STA

46

Indicators:

1. Capacity development plans developed (yes/no)

2.2.2 Implementation of capacity development plans in two pilot districts.

Tng/Travel/Wk shops

2.3 (Component 3): Management and administrative services in pilot district police stations strengthened including for human resources, procurement, IT and fleet maintenance.

1. Responsibilities for central level administrative services are translated into action and compliance at district level. 2. District level commanders utilise monitoring and reporting tools to maintain active oversight on the compliance with administrative services

2.3.1

UNDP, PNTL

Training conducted on Performance Appraisal System (PAS) at district level and district commanders supported to promote benefits of PES and to report on compliance

SB4 x 2 SB3 x 2

STA

2.3.2 District commanders supported to ensure central IT support services and district IT focal points are utilised

IT/Equipt

2.3.3

District commanders supported to ensure central fleet management services are utilised and district complies with vehicle use, maintenance, replacement and reporting requirements

Travel/Tng/Wk shops

Indicators 2.3.4

1. % of staff subject to performance appraisal

A system is initiated to ensure the PNTL web site is regularly updated to reflect the services available at district level and the work conducted by pilot districts

2. Number of IT Help desk requests from districts

47

3. Number of days and kilometres per vehicle beyond maintenance schedule

4. District level information updated monthly on PNTL website (yes/no)

2.4 (Component 4): Help Desks, PR and community outreach programmes in pilot district police stations developed and implemented.

1. Community members identify police stations as providers of trusted information

2.4.1

UNDP, PNTL

Publicly visible information is displayed at police stations highlighting the key services available and costs if applicable

multimedia production/ broadcast

Indicators

2.4.2

1. Information on police services and procedures is visibly displayed at District and sub districts (yes/no)

2. The role of the police and the work conducted by the police and the links with the justice chain and social services is understood by community members

Detailed written information is available at police stations detailing the police services available, procedures to follow, costs if applicable, complaint mechanisms and time frames

Equipment

2.4.3

2. Written information on police services and procedures is available and accessible at districts and sub districts yes/no)

Community outreach for a low literacy audience, including use of radio broadcasts is conducted, within sub district catchment areas to publicise activity 2.4.2 and 2.4.3 above.

48

3. Number of community outreach exercises conducted

4. District community satisfaction ratings

2.5 (Component 5): Support mechanisms for victims of domestic violence and Gender Focal Points established in pilot district police stations.

1. Information on rights concerning domestic and gender based violence, and how to access police services, is made easily accessible by community members including those with low literacy levels.

2.5.1

UNDP, PNTL

Publicly visible information is displayed at police stations highlighting the key services available and procedures to follow for victims of DV and GBV

Works/Equipt

Indicators 2. Linkages identified and support provided to link victims with justice and social service providers at district level.

2.5.2

1. Number and variety of information products available about accessing services for victims of DV and GBV

Detailed written information is available at police stations detailing the police services available, procedures to follow, costs if applicable, complaint mechanisms and time frames for victims of DV and GBV

Tng/Travel/Wk shops

2. Referral network active (yes/no) 3. Facilities for female police officers improve the attraction and retention of female police officers, which are necessary to improve service delivery to female victims of crimes.

2.5.3

3. Female facilities in place and maintained (yes/no)

Referral network initiated and or activated to improve provision and co-ordination of policing, justice, and social services to victims of DV and GBV

2.5.4

Facilities including separate change rooms, toilets and nursing rooms for female police officers provided and or maintained

49

SUBTOTAL OUTPUT 2 798,810

Project Management Staff 713,988

Transport/Travel 180,000

Communications 80,000

Office Equipt/Stationery 100,000

PROJECT SUBTOTAL 6,392,169

Direct Project Costs 124,023

Total

6,516,192

GMS (8%) 521,295

GRAND TOTAL 7,037,488

50