PARTICIPATION WITHIN UNDP
Participation as a Philosophy
It is not enough to advocate participation; one must also be participatory. Many have argued that to be truly participatory, it is first necessary to look inward at the attitudes, behaviours and practices that create the culture of an organization.
What does it mean to be participatory in the workplace, especially in an organization such as UNDP, which is characterized by a mosaic of cultures, attitudes and behaviours? Some staff may feel that their work environment is highly participatory while others experience attitudes and barriers that prevent their voices from being heard and taken seriously. Bureaucratic structures may impede participatory processes.
Being participatory involves more than using a particular technique or approach. It reflects an attitude towards human interaction and the way that individuals learn from one another that should permeate all levels of an institution from headquarters to the field and to the project level. It means exhibiting a willingness to share decision-making, power and perhaps even resources.
Empowering others often requires letting go of one's own power or at the very least sharing the power that one already has, a challenge to those institutions and groups unaccustomed to working in a collaborative or participatory manner. However, staff who have been involved in participatory exercises have often commented on feeling empowered and seeing creativity unleashed either individually or as a group as a result of that experience.
Creating a transparent environment is an important dimension of being participatory. Hidden agendas become open agendas where everyone has the opportunity to influence and shape events. While this may appear as idealistic to some, others view it as a need that it is now time to fulfil.
Participation and UNDP Programming
How does a participatory approach fit into UNDP programming? As illustrated in the circular diagram, such programming is traditionally composed of at least six stages:
In addition, the Project Performance Evaluation Report (PPER) and the Tripartite Review (TPR) are undertaken on a regular basis.
Participatory techniques and evaluations can be used at different stages of a project: in the design stage, where baseline data and needs analysis are required; at mid-point, to review progress and reorient project activities; and at the end to assess the project's achievements. In a participatory approach, key variables include: who identifies the project concept or problem; who makes the decisions; and who conducts the evaluation. However, use of such an approach implies greater involvement of the stakeholders in all aspects of the project cycle.
Identification of the Project and Programme Concept or Problem
Projects and programmes are more likely to be successful if they respond to a real need identified by the local population, institution or government ministry. This means involving the key stakeholders in identifying their needs and assessing the most appropriate options for meeting those needs.
Project and Programme Design
Traditionally, projects and programmes are designed by an outside expert according to UNDP specifications. The role of the stakeholder is primarily to provide information that can then be incorporated into the project and programme. However, projects and programmes based on participatory approaches involve the stakeholders in fleshing out the design. Through workshops and focus groups, stakeholders participate in preparing the logical framework analysis (LFA) (an example of an LFA is contained in annex II) and the overall framework for the execution of the project and programme.
Project and Programme Appraisal
An appraisal, which is usually completed once a project and programme have been designed, can be performed by both the stakeholders in the field and UNDP staff.
Project and Programme Implementation
A project or programme with a high degree of participation will customarily involve stakeholders in its implementation. Participation may mean involving them in decision-making about such issues as the planning and organization of activities, the use of resources, and the delegation of roles and responsibilities.
Project or Programme Performance Evaluation Report
The PPER, an instrument for monitoring progress, is usually prepared by project or programme management once a year, three months before a tripartite review. It records the activities and progress made in the production of outputs, describes the activities and results to be produced over the next 12 months, and includes any recommendations for action. Under a more participatory approach, the PPER should be part of an annual review undertaken by stakeholders. Ongoing and periodic reviews should be built into the project from the start. The PPER, which indicates differences between the original project design and what the project has produced, should mirror the findings and recommendations of the stakeholders.
Tripartite Review
The TPR is a formal, planned, periodic monitoring mechanism for joint decisions and implementation which is undertaken at least once a year. The UNDP country office customarily invites all those concerned to participate in the TPR and sets the agenda for the issues to be discussed. Under a more participatory approach, a TPR should be undertaken at the project site and involve stakeholders in joint decision-making and implementation. Project or programme stakeholders could play a greater role in the meeting, including its organization and setting of the agenda. Invitations to attend could be extended to representatives of NGOs, parastatals and the private sector.
In-depth Evaluation
In-depth evaluations may take place during a project or programme (ongoing), towards or at its end (terminal) or at least two years after it has been completed (ex-post). An experienced participatory evaluation facilitator (see Practical Considerations) will, of course, facilitate the process, but stakeholders should be involved in defining the aims of the evaluation and the assessment indicators as well as in analysing the findings.