Final Evaluation Report of the Project

"Technical Assistance to Ministry of Peace and Reconstruction
in the Implementation of Psychosocial Counselling and Support Services
to Conflict Affected Persons"

Author:  Dr. Trilochan Upreti
Independent Consultant

Contents

Abbreviations
Executive Summary 

1.	Overview of the Project
2.	Objective and Methodology of the Evaluation
I.Objective of the evaluation
II.Evaluation Criteria
III.Evaluation Methodology
a.	Desk review and background research
b.	Structured interviews with direct and indirect beneficiaries and implementing partners
c.	Non-participant observation
IV. Limitations
3.	Results of the evaluation
I.Findings of the Project
4.	Conclusion
I.Relevance, Effectiveness, Sustainability
a.	 Relevance
b.	 Effectiveness
c.	Sustainability
5.	Recommendations
List of Stakeholders
District Level: Kaski, Pokhara
District Level: Morang, Biratnagar

Abbreviations

CAP			Conflict Affected Person
CDO			Chief District Officer 
CoID			Commission of Inquiry on the Disappearance of Persons
CPA			Comprehensive Peace Agreement
DCC			District Coordination Committee
ESES			Employment Self-Employment Services
FIM			Field Implementation Manual
GoN			Government of Nepal
ICRC			International Committee of the Red Cross
IOM			International Organization for Migration
LPC			Local Peace Committee
MIS			Management Information System 
MoPR			Ministry of Peace and Reconstruction 
M&E			Monitoring and Evaluation
NAP			National Action Plan
NGO			Non-Government Organization
NPTF			Nepal Peace Trust Fund
OECD-DAC	Organization for Economic Cooperation and Development - Development Assistance Committee
PSS			Psychosocial Support Services 
SGBV			Sexual and Gender Based Violence 
TA			Technical Assistance
ToR			Terms of Reference
ToT			Training of Trainers
TRC			Truth and Reconciliation Commission 
UNPFN			United Nations Peace Fund for Nepal 
UNSCR			United Nations Security Council Resolution 
WB			World Bank
WCO			Women and Children Development Office
WDO			Women Development Officer 
Executive Summary

The decade-long internal armed conflict in Nepal (1996-2006) witnessed widespread violations of human rights and humanitarian law at the hands of both warring parties of the conflict, i.e. state security forces and the Maoist rebels. However, no holistic step was taken in the subsequent years after the signing of the Comprehensive Peace Agreement (CPA) to address the plight of those victimized during the conflict for justice and redress. All efforts to provide transitional justice to conflict affected persons (CAPs) were basically fragmentary and same rings true of the efforts to address their psychosocial needs.  Initiatives were taken in this regard by various national and international organizations but these efforts were short-term, fragmented, assorted and especially focused on a particular victim category (like wives of the disappeared, Conflict-affected children or child soldiers). Though these efforts were commendatory in the absence of apparent government's apathy, the exclusion of victims like torture and Conflict-related sexual violence from the psychosocial healing process is a serious problem. 

The project "Technical Assistance (TA) to Ministry of Peace and Reconstruction (MoPR) in the implementation of Psychosocial Counselling and Support Services for CAPs" was envisaged and implemented by IOM for providing technical support to the MoPR to implement a policy-driven, community-based and psychosocial counselling and support services on a par with international best practices for the CAPs. Nepali women and girls bore the Maximum brunt of the armed conflict and they, in the face of state apathy, continue to suffer in its aftermath. Because of social, legal, cultural and economic constraints, women who experienced violence, including sexual violence, during the conflict continue to suffer in silence and are still waiting for truth, justice and reparation. The plight is similar with regard to conflict-affected children, child soldiers and people belonging to marginalized communities. In this context, the project aimed at addressing the psychosocial needs of women, children and vulnerable communities, along with CAP's via human rights based approach. 

Some of the findings of the evaluation include but are not limited to: serious Need of Psychosocial Counselling and Support Services (PSS) in Nepal; lack of adequate Facilities providing PSS services; basic infrastructure ready for initiating PSS Services in Nepal; LPCs are prone to politicization and lack expertise to implement PSS services without continued resources and training; national ownership of the project. Recommendation include but are not limited to: the MoPR and the IOM should  ensure the continuation of the project and make a concerted effort to garner adequate funds to extend the project's outreach to in other districts starting with the districts that bore the maximum brunt of the conflict; the MoPR is recommended to seriously consider to resume without further delay; As psychosocial counselling and PSS services will be indispensable services during and in the aftermath of the transitional justice process, IOM's potential to contribute in the process can hardly be exaggerated;  this project should not be viewed in insolation with the transitional justice/reparations process but should be considered an integral part of the same; a new protocol of collaboration should be developed between the MoPR and the Ministry of Health to implement the PSS services. However, the overall opinion is that the project satisfies relevance, effectiveness and sustainability. 

In terms of effectiveness of this TA Project, PPS service is part and parcel of mental health and well-being of the CAP's and their families. Citizens are endowed with the right to health, which rests enshrined in the constitution of the county and thus it is the obligation of the government to provide health services to its people. CAP's and their families including the community have suffered stigma, untold pain and psychosocial suffering. However, the Nepali state has not been able to provide basic PSS services even seven years have elapsed after the formal end of conflict in 2006. TA project has felt the pulse of the victims and has instilled a hope in victims and other stakeholders not only of the possible PSS services in future but also of getting justice and full reparations in the long run. Hope is but an abreaction and is immeasurable outcome. In the present context wherein the transitional justice mechanisms lie in suspended animation, the TA project's role in keeping flame of justice and redress alive is the most important outcome that the project has achieved – which alone assures the cost-effectiveness of the project.     
1.	Overview of the Project

The project “Technical Assistance (TA) to Ministry of Peace and Reconstruction (MoPR) in the implementation of Psychosocial Counselling and Support Services for Conflict Affected Persons (CAPs)” aimed to provide technical support to ensure that the delivery of the MoPR”s psychosocial counselling and support services for conflict affected persons in Nepal comprehensively address the needs of women and children (including the needs of vulnerable communities). The post-conflict period in Nepal has not seen comprehensive transitional justice or reparations programs. In the interim, the Government has delivered some relief services, namely through an Emergency Peace Support Project (EPSP), for conflict affected persons and their families.  This  technical  assistance  project  was  intended  to  support  MoPR,  upon  their request, to deliver psycho-social services originally intended as part of the EPSP relief package, in line with international standards. IOM has provided technical support from 2010 to 2012 in developing draft reparations policy and programs. 

The MoPR finalized and endorsed a “Guideline for Conducting Psychosocial Counselling Services 2070” in September 2013. Subsequently, upon MoPR”s request, the project supported the selection of ten pilot districts based on a set of criteria across the five development regions. Preparation of the field implementation manual and other key program  documents as per the main deliverables of this project were initiated with engagement of five project team members, led by a Psychosocial officer, seconded to MoPR for technical support.

A final draft of the Field Implementation Manual (FIM) was completed after thorough consultations and guidance from International/National psychosocial and mental health experts, UN partners and conflict  victims  ensuring  adequate  provisions  for  service  delivery  to  women,  children, vulnerable and marginalized populations. The project also prepared Monitoring, Reporting and Evaluation guideline and tools, Registration database, framework and process flow for an Outreach strategy (including a grievance-handling mechanism) and Procurement documents. These documents were prepared on the basis of feedback from regional consultations with CAPs, which have confirmed the need for psycho-social services as part of the post-conflict recovery process. Capacity-building, through a first part of three days basic training of trainers, of Local Peace Committee (LPC) secretaries and Women Development Officers (WCO) participating as members of the District Coordination Committees (DCCs), Public health officials, and CDO's, from the ten selected districts, was jointly initiated with MoPR. The aim of the trainings was to facilitate eventual psychosocial service delivery, conduct outreach activities, and monitoring and reporting at the community level.

At the end of May 2014, the project got a 9-month “No Cost Extension” in order to align its technical assistance to MoPR”s PSS program as there has been a delay in allocating funds for the actual delivery of the PSS service by MoPR. 

2.	Objective and Methodology of the Evaluation
I.	Objective of the evaluation
The primary objective of the Final Evaluation was to: 

•	assess and examine the extent to which the TA project has achieved its stated peace-building impact and outcome including UNPFN's strategic outcome and its effective contribution to the peace-building process in Nepal and also contributing to future IOM initiatives 

Under the contract, the evaluator was to examine the execution of TA project activities, outputs and outcomes against the project's Results Matrix and in accordance with the UNPFN Monitoring and Evaluation Framework; assess the project’s overall contribution to collective UNPFN peace-building results particularly the Strategic Outcome 7: Accelerated implementation of the Government’s gender and/or social inclusion Agendas in line with the Comprehensive Peace Agreement and national plans and policies focusing on the analysis of three evaluation criteria i.e. Impact, Relevancy and Sustainability; examine the project’s approach to peace-building in addressing the needs of women and vulnerable groups and improving conflict sensitivity in project design and implementation as well as assess the level of implementation of these measures; assess the extent to which the project and its implementation methods advanced ‘gender equality as a principal objective’; assess overall performance of TA Project in terms of technical, financial management and its processes. Assess issues such as management of risks identified in the project proposal; validity of the theory of change; catalytic nature in terms of additional financial comments or unleashing peace relevant processes; risk taking / innovative approaches; selection of project location, beneficiaries and project staff particularly in light of the intended objectives.; assess overall performance of TA project in terms of financial, financial management and its processes (Please refer to Annex-1 for the details)   

II.	Evaluation Criteria  

Level	Evaluation Criteria	
National Level	-	Relevance and appropriateness of the project's objectives to the country’s needs and priorities. 
-	Project achievements over the last 24 months - specifically, the successes, missed opportunities, constraints, and intended/unintended effects on the respective national contexts for implementation of the Government’s gender and/or social inclusion Agendas in line with the Comprehensive Peace Agreement and national plans and policies
	
District Level	-	Relevance and appropriateness of the regional (districts) component in the overall project design. 
-	Results achieved by the project in districts and their contribution to the project objectives. 	
Community Level/ CAPS	-	Project contributions in the community level by implementation of the Government’s gender and/or social inclusion Agendas in line with the Comprehensive Peace Agreement and national plans and policies towards social change. 
-	Relevance, appropriateness and usefulness of the project core strategy of supporting collective, social change at the community level towards peace building. 	
Overarching (including all levels and their interactions) 	

	-	Strengths and weakness of the overall project design (including its overall approach) and management structure and mechanisms. 
-	Strengths, weakness and challenges among the stakeholders  
-	Identify lessons learned, capture good practices, and provide specific recommendations to relevant evaluation users. 	

III.	Evaluation Methodology
a.	Desk review and background research
All documents directly related to the implementation of the project made available to the evaluator were reviewed and an inception report was prepared accordingly. The documents were also used to discern the apparent success and potential weaknesses of the project.  UNPFN Final Project Evaluation Guidance Note was used as the guiding document to prepare interview questions. Moreover, relevant literature on the Nepalese conflict and its impact on women and vulnerable groups were reviewed. The MOPR national action plan on implementing the UNSCR 1325 and 1820 in view of participation, protection and promotion of CAPs women and children were also considered along the provisions relevant to the Comprehensive Peace Agreement (CPA).

b.	Structured interviews with direct and indirect beneficiaries and implementing partners
The evaluator carried out two field trips during the evaluation duration along with two staff from the IOM. During the trips, the evaluator interviewed CDOs, representatives from the Local Peace Committees (LPCs), Public Health Officials, Planning officer of the DDC, WCOs as well as with victims of the conflict. Focus group discussion was conducted with CAPS in both the districts. Individual interviews were held with the Joint Secretary and Director of the Nepal Peace Trust Fund (NPTF), the Joint Secretary and Chair of the Project Steering Committee of PSS for MoPR, Secretary of MOPR, and IOM Project staff and with the donor counterpart (UNPFN). Set of questions asked with these stakeholders were taken from mid-term evaluation document and depending on the nature of stakeholder the relevant question that fits to their situation, were used to understand/find out their say.
c.	Non-participant observation  
The evaluator also gathered additional information from their direct observation of stakeholder interactions and behaviors during the field visits.  CAP's representatives in two districts, women development officers, public health officials, LPC's secretaries, CDO's, Official of Kaski DDC office were met during the field visits by the Consultant.
IV.	Limitations

The evaluation was carried out on a very short timeframe. It was based on the documents made available by the IOM and interviews with key personnel involved in the project and its direct and indirect beneficiaries. Among the 10 districts covered by the project, the evaluation was carried out on two district headquarters due to time constraint. 

3.	Results of the evaluation
I.	Findings of the Project

•	Foundation ready for initiating PSS Services: 
Although the project has not been able to ensure its outcome of providing actual PSS services to CAPs, it has set up the necessary foundations for the same. All necessary policy and paperwork are in place, Recommendation and Monitoring committee coordination and ToT provided to stakeholders. Therefore, TA project has well established the foundation for the project. The documents prepared by this project are of highest quality and adequate to show how to streamline the PSS services effectively, to whom to coordinate and the role of every stakeholder concerned has been well-defined. 

"The TA project's contribution to the future PSS services is exemplary. The inclusion of all important stakeholders, gender balance and conflict-sensitive approach are the hallmarks of the project. There should be no delay in the implementation of the PSS project” - Krishna Raut, CDO, Morang

•	Promising in healing wounds and mending scars of CAPs:  
All stakeholders commended the project for its relevance, timeliness and due implementation. They stressed that such efforts should be replicated nationally and underscored the need of extending the project's reach to outlying and off-the-map villages. It was stressed that CAPs, especially women and children victims of Sexual violence, cannot report the injustices and abused meted out to them unless they are psychosocially strong enough to report their crimes. As the project's long-term focus zeroes in on to ultimately restore the dignity and psychosocial integrity of  victims, 

•	Participation of women Prioritized, Inclusiveness: 		
Throughout the project duration and in the course of execution of its several important activities, women and vulnerable groups have been prioritized and a clear effort has been made to ensure the participation of women. Women participants were prioritized during consultations and ToTs.  During programs, efforts were made to ensure women lead discussions and articulate their points.   Gender sensitive planning and programming was adopted in all the activities of the project. The project took community-based approach and used various community level groups and networks to ensure participation of women and vulnerable groups for the outreach strategy. Project has adopted human rights approach, do no harm and other conflict sensitivity approaches where the confidentiality of the CAP's was found to be well-protected and respected. 

39 % female CAPs in outreach consultations 

29 % women staff provided GR Training 

33 % women participated in consultations 

52 % of budget for Gender Provision 

"Gender Sensitive Program Planning and Monitoring and Evaluation" was the first kind of training delivered to joint team of participants including MOPR officials and district level stakeholders, jointly organized by MOPR and IOM. While many line ministries have propounded gender equality and social inclusion policy the front line officials at the service delivery are not receiving adequate orientation and training on gender sensitivity and project cycle management. Special and adequate provisions in the FIM, M&E Guidelines and tools, database outreach strategy and 52 % of the total budget (gender provision) have been projected out of which 39% was actually spent throughout the project period. During consultations for drafting the Implementation Manual with various national and district level government and non-government stakeholders together with CAPs, 552 participants out of whom 371 are male and 181 are female participants in consultations. It was found that total of 33 % of women represented in various consultations. A total of 59 staffers were trained on gender sensitive program and planning and implementation with 29% of female representation. During outreach consultations and FIM dissemination held in selected districts a total of 401 conflict victims participated out of which 39% were female.  
Below, is the table which explains planned expenditure vs. actual expenditure on the component of Gender, inclusion, M & E and conflict sensitivity. 

Categories	Planned	Actual Expenditure	
Gender	52%	39%	
Inclusion	18%	22%	
M&E	15%	19%	
Conflict Sensitivity	15%	20%	

•	Participation and Transparency:  
The project involved both direct beneficiaries such as MoPR officials and LPC representatives and indirect beneficiaries like CAPs, women's groups, local NGOs and consultations were organized at both central and district level. From the beginning the project team has also had a fruitful   and   constructive   relationship   with its counterparts including MoPR and   donor focal point and ties have been cordial with the MoPR long before the commencement of this project. This collaborative relationship provides transparency to the project and the guidance from the donor has been very beneficial.

•	Trail Blazing Project: 
The project has been a pioneer as this is the first ever instance that the government of Nepal (via MoPR) has taken charge of providing psychosocial service. Stakeholders commended the project for the best possible identification of stakeholders, conflict-sensitive approach, gender-balance and identification of needs of women and vulnerable communities. Overall, this project has given IOM a unique position and pioneering role for similar efforts in future.  In the present context wherein the government has formed transitional justice mechanisms including the Truth and Reconciliation Commission and the Commission of Enquiry on Disappearances, the role of IOM in providing its expertise in psychosocial counselling and services and can hardly be exaggerated. IOM and its expertise, if could be use by the government and TRC it would be immensely benefitted to TRC and also helpful to the CAP's.

•	Psychosocial Issues in mainstream TJ/Reparations Discourse: 
The project is instrumental in bringing the issue of psychosocial counselling and services in mainstream transitional justice/Reparations discourse in Nepal. TA project's victim-centric approach provides a clear opportunity to focus more on victims taking the restorative approach as TJ is fundamentally meant to do. Also, such an endeavor is important to keep the victims hopes of justice alive in the absence of transitional justice mechanisms. Inter alia, the project has somehow been able to clear up misconceptions about psychosocial health in Nepal which was rather understood in rural settings in terms of lunacy and hence victims were stigmatized and ostracized.

•	Mending Rift among CAPs: 
The project was instrumental in bringing victims of abuses perpetrated by both the warring parties to the conflict and helped the former realize the common pain of victimhood. The project played a catalytic role to bring victims of different folds together. As there was active enmity between those victimized by the state parties and the non-state actors in the conflict and they have got their own missions and goals to follow, the project brought them together and helped them understand that it was abuses that they suffered and they need to deal with their trauma and suffering in the spirit of co-existence and mutual assistance. Almost all the victims interviewed during the evaluation opined that TA project has helped them realize that they should work in unison to heal themselves and their communities in the society's overall effort to address the past.  

"We [CAPs] have realized through the project that we are victims and we have to chorus in unison for our rights and should help each other to get over our psychosocial problems. The common pain of victimhood has blurred all narrow boundaries of political faith" 
-	Mr Rudra Pun, LekhaNath Muncipality
-	
"Through the project, I have realized that victims are victims, whether victimized by the Maoists or the State Security forces. I used to be biased before but I have now realized that we should be helping each other to get over the trauma we all are confronting"
-	Mrs. Kamala Luitel, Pathari Sanischare-5
-	
“The TA project has contributed as a connector not the divider among the CAP’s and community and stakeholders" 
-	Mukund Paudyal, Director NPTF and Joint Secretary, MOPR

•	 Resilience, adaptability and flexibility of Staffers: 
As mentioned in the mid-term assessment, the project team has sought input and made changes to the result matrix to better reflect and address the UNPFN Strategic Outcome and Project Peace-Building Impact. Despite the problems of transitional dilemma, frequent changes in government and the resulting reshuffling in bureaucracy and amidst a volatile political situation, IOM was able to navigate through and contributed to lay the foundation stone for the future PSS services in Nepal and contributed towards capacity enhancement of the institutions. 

•	Strong national ownership: 
The direct involvement of the MoPR in the design, planning and execution of the project provides the effort a strong national ownership which is extremely critical for the sustainability and reliability of the project. This project has established foundation stone for the smooth and professional service of PPS service by its commendable work of preparing the required tools and its use in providing such services. The seconded staff in the Ministry itself has been an innovative approach of the project and is widely appreciated within the ministry which has supported in smooth operation of programs jointly with MoPR. 

•	Victim Database:  
The  database  developed  by  IOM  which  will  be  primarily  used  to  collect  information  of individuals accessing PSS services has special provision to also record the SGBV and torture victim’s data when identified. This is important because the previous taskforce constituted by the government to determine the exact number of CAPs left out important categories of violations like torture and SGBV. MOPR will be well equipped by its MIS system in order identification of victims and their needs and other uses in MOPR's for the implementation of Peace Process and also sustaining such hard earn Peace.

•	Serious Need of Psychosocial Counselling and Support Services (PSS) in Nepal
All stakeholders interviewed during the evaluation stressed that PSS services are a must to the wide range of people victimized during the conflict. All the current efforts to provide PSS to CAPs are fragmentary, short-term and limited in terms of geographical distribution, access of victims to available services, focus on a particular category of victim and outreach. To top it all, women and children victims of sexual violence, who need the most of such services, are still to be identified and healed. As most of the victims hail from outlying and off-the-map villages and whatever services provided till date are focused on the district headquarters, the extension of services to such far-flung areas are a must. 

•	Lack of adequate Facilities providing PSS services:  
Although the activity does not fall under the onus of the IOM, majority of stakeholders resoundingly and repeatedly stressed that there is a glaring dearth of individuals and institutions that provide quality PSS services. There are neither trained manpower in government hospitals nor private psychosocial counsellors providing these services.  Some stakeholders suggested that the services should be provided under the Ministry of Health as the Ministry of Peace and Reconstruction does not have its strong presence in rural hinterlands –VDC level LPCs are either not been formed in some districts or are inactive and dysfunctional. Also the services provided are mostly concentrated in district headquarters and it is impossible for CAPs to participate living in outlying areas. Some also stressed on providing adequate training to public health professionals and allocating adequate resources in this regard. This was the suggestion for the sustainability of the PPS service in the long run, even after the completion of PPS service project. Although the decision for the modus operandi and service delivery falls under the MoPR, IOM, however, can be involved to catalyze the entire process. 

•	LPCs dysfunctional and needs serious restructuring:  
The majority of stakeholders stressed that LPCs are highly politicized, dysfunctional and expressed doubt over their ability to implement the project in its present form. However, stakeholders agreed that LPCs are legally endorsed by the government and have potential to contribute significantly to peacebuilding initiatives at local level, and therefore, need to be strengthened with adequate resources and appropriate training and support. The frequent changes of LPC office barriers is an issues, therefore, the MoPR must ensure the retention of trained LPC members to avert the problem to the PSS service in the days to come. Some stakeholders stressed on synergy between the public health institutions to implement the project. 

4.	Conclusion
I.	Relevance, Effectiveness, Sustainability

The definitions of relevancy, effectiveness, and sustainability are those used by the Development Assistance Committee within the Organization for Economic Cooperation and Development (OECD-DAC)
a.	Relevance
“The extent to which the objectives of a development intervention are consistent with beneficiaries” requirements, country needs global priorities and partners” and donors” policies.”

The project is relevant in a number of ways. Firstly, Nepal currently stands between a future that honours and enforces human rights and the rule of law, and a future that merely perpetuates past inaction and abuse. As there can be no concrete political stability and democracy without addressing past issues, Nepal needs to seriously take initiatives to address its violent past with justice and reparation. In this context, psychosocial counselling and PSS to those victimized during the conflict forms an important component to address the past. Moreover, it can be established that psychosocial assistance  is  a  service  that  is  considered  as  necessary  by  all  stakeholders  in  the  project, including both CAPs and high level governmental officials. Secondly, the project has sought input and participation from all relevant stakeholders and has in particular made good efforts to include women and marginalized groups in the consultations held as parts of the project. Thirdly, the project’s objective is directly linked with the Comprehensive Peace Agreement and the project is explicitly building on the National Action Plan on the UN Security Council Resolutions 1325 and 1820. Finally, the project has made efforts to make the project gender sensitive by adapting the result matrix accordingly and placing more focus on gender inclusion The Government’s project on psychosocial counselling is the first of its kind to be implemented in Nepal for CAPs. 

In terms of sequencing the forthcoming TJ mechanisms, the project is in a unique position to contribute significantly the truth seeking and prosecution initiatives taken by the TRC and the CoID.  As psychosocial counselling and PSS services will be indispensable elements during and in the aftermath of the transitional justice process, the project's relevance become more prominent. The deliverables of the project would enhance Nepal's holistic approach to address the past.   

In order to make the project more relevant it is nevertheless strongly recommended that the project includes a more extensive and comprehensive gender analysis throughout the implementation, monitoring and evaluation. It is also suggested that the project adheres to the international legal framework relevant to the right to health. The right to health is also enshrined in the Interim Constitution of Nepal-2007 and the Comprehensive Peace Agreement (CPA). As Nepal is a party to the International Covenant of  Economic,  Social  and  Cultural  Rights  (1966) as  well  as  to  other relevant instruments, IOM should, to the extent possible, strive to use this opportunity to assist the GoN in fulfilling their international obligations. Further, the legitimacy to undertake this initiative has been derived from international human rights and humanitarian law. The right to health is the fundamental right. So, this argument is ongoing, and will be sufficient in making the initiative relevant.
b.	Effectiveness
“The extent to which the development intervention’s objectives were achieved, or are expected to be achieved, taking into account their relative importance.”

It was successful in delivering most of its outputs as proposed in the project however, as envisaged one of the output could not be delivered due to lack of funding to implement MoPR’s PSS project, the due implementation of the project would have been extremely effective in achieving the strategic outcome and the peace-building impact. Nevertheless, the achievements made in the project are commendatory as the stage is full set for the government to carry out PSS services. Though questions were raised regarding the submission of documents to donors on time, the resilience, adaptability and flexibility of the staffers was exemplary. Despite financial and other hurdles, the project team was successful in preparing a solid groundwork to initiate PSS services in Nepal. Furthermore, the major achievement and success of the TA project is to be able to keep alive the hopes of justice and reparations in CAP's. Those CAP's who are depressed, stigmatized and suffered due to the scourge of the conflict has found an avenue that could possibly heal their wounds and mend their scars. Therefore, comparing the cost incurred in this project and the preparation stage to carry PSS service, it can be said that benefits are greater than the allocated cost. So "value of money approach" somewhat has been obtained.
c.	Sustainability
“The continuation of benefits from a development intervention after major development assistance has been completed.  The probability of continued long-term benefits.  The resilience to risk of the net benefit flows over time.”

During the project period, several deliverables were produced to set the stage for the implementation of PSS, which is a long-term effort to address the past and hence will continue to benefit the CAPs. Also, several consultations and capacity building activities with direct and indirect beneficiaries have been conducted which in itself is a sustainable approach. The project has put the CAPs in the forefront so as to encourage and empower them in holistic manner so they are aware of their rights. Once they become aware of their rights and ways and to protect and promote it, they will engage themselves to protect and secure their rights.  Also, the consultations with victims has helped in raising awareness among the victims and their families thereby further contributing towards enhancing people's access to psychosocial services. In addition, the formation of PSS district coordination committee, which comprised of representatives from various government line ministries and concerned stakeholders, will be a permanent mechanism to monitor and guide the PSS initiatives at the district level. 
Given the excellent relationship with the MoPR and the willingness that the MoPR has demonstrated in receiving future technical assistance from IOM, the project is likely to be extended if funding can be allocated. This is not only necessary in order for the project to achieve its objective but also in order for the capacity-building to be sustainable. If this is achieved as planned, the project will have provided the capacity and the tools for the MoPR and LPCs to continue the services that would benefit more CAPs and communities than those in the ten identified districts - effectively preparing the stage for a national roll out of PSS services. In order to increase the sustainability of the project, it is recommended to continue informing the GoN that this project assists the GoN in fulfilling their obligations. However, it is important to be clear that the obligations in relation to the right to health, as other human rights, remains with the State and has to continue to be fulfilled after the technical assistance from IOM end. 

5.	Recommendations

The evaluation recommends the following: 
i.	From IOM's perspective, the project is a success and it is necessary to extend the project under IOM direct assistance as the MoPR is not technically capable to deliver and monitor PSS independently.  The project might lose momentum and the milestones achieved in the project would pale into insignificance if the project is not continued. 

ii.	In terms of sequencing the TJ mechanisms, the IOM-MoPR collaboration on psychosocial counselling and PSS services will contribute significantly the truth seeking and prosecution initiatives taken by the TRC and the CoID and therefore avenues should be explored in this area for further joint venture. Among other things, this cross-cutting exercise would further enhance the holistic approach to address the past.  So it is recommended that the MoPR and the IOM should mull continuing the project and make a concerted effort to garner adequate funds to extend the project's outreach to in other districts starting with the districts that bore the maximum brunt of the conflict. 

iii.	During evaluation interviews, it was notified that donors have concentrated on the finalization of strategy for the establishment of the TRC and the CoID. However, this project should not be viewed in insolation with the transitional justice process but should be considered an integral part of the same. Further, the MoPR should explore the necessary interlinkages of the project with the said mechanisms and also involve IOM in the process. As psychosocial counselling and PSS services will be indispensable elements during and in the aftermath of the transitional justice process, IOM's potential to contribute in the process can hardly be exaggerated.  

iv.	A special attention has to be taken to deal with some unintended outcome of the project. For example, the frequent transfer of government officials which make it necessary to brief the newcomers about the project, though this might prove extremely helpful in the longer run when the PSS services are provided throughout Nepal. Another big problem is the political influence during the appointment of the LPC secretaries.  Also, the frequent changes of secretaries and other focal persons at the MoPR is also a big challenge. 

v.	Though the project has begun the sensitization process regarding PSS issues in Nepal, there is further potential to be done more vigorously at the national level. Traditionally, psychosocial care and mental health has been associated with insanity and people with psychosocial problems are looked down as abnormal beings in society. Though the project has been able to clear up this misconception about psychosocial care, it is necessary to sensitize and raise awareness about this issue to general populace so that people with psychosocial problems are treated with respect and care in society. Social acceptance of people of psychosocial problems is a key to their full recovery. 

vi.	It is necessary to identify and incorporate, as stressed in the mid-term assessment, relevant principles form international human rights law, in particular the right to everyone to the enjoyment of the highest attainable standard of physical and mental health. It should explicitly recognize the rights of the rights-holders (CAPs) and the obligations of the duty-bearers (GoN). 

vii.	The project has made clear efforts to ensure the participation of women and modified the result matrix to increase the attention on gender issues. Still, number of men attending the consultations has been significantly higher than to the number of women. Further, gender analysis of the target beneficiaries would be extremely beneficial to the project. 

Annex 1
TERMS OF REFERENCE 
1.	Nature of the consultancy: Evaluation of the project Technical Assistance to the Ministry of Peace and Reconstruction in the implementation of Psychosocial Counselling to Conflict Affected Persons (hereafter, referred to as “TA Project”) of the International Organization for Migration (IOM).

2.	Objective: To assess and examine the extent to which the TA Project has achieved its stated peace-building impact and outcome including UNPFNs strategic outcome and its effective contribution to the peace-building process in Nepal also contributing to future IOM initiatives.

3.	Target: TA Project’s contribution to collective UNPFN peacebuilding results (i.e. UNPFN Strategic Outcome 7) has been assessed in order to contribute to determining the Fund’s overall achievements and contribution to peace-building in Nepal.

4.	IOM Project to which the Consultancy is contributing: “Technical Assistance to the Ministry of Peace and Reconstruction (MoPR) in the implementation of Psychosocial Counselling and Support Services to Conflict Affected Persons” is 24 months (initially 15 months with 9 months No-Cost Extension) project funded by UNPFN. 

5.	Tasks to be performed under this contract:
a.	Examine the execution of TA Project activities, outputs and outcomes against the project’s Results Matrix and in accordance with the UNPFN Monitoring and Evaluation Framework.
b.	Assess the project’s overall contribution to collective UNPFN peace-building results particularly the Strategic Outcome 7: Accelerated implementation of the Government’s gender and/or social inclusion Agendas in line with the Comprehensive Peace Agreement and national plans and policies. The assessment will focus and analyse on three evaluation criteria i.e. Impact, Relevancy and Sustainability. In regards to ‘Impact and Relevancy Analysis’ the tools, documents developed through the project and capacity building of government counterparts in national and district level will be looked upon. Similarly, in terms of ‘Sustainability’ analysis of project’s future implementation plan of PSS will be carried out. It will also follow analytical frameworks: the UNPFN Monitoring and Evaluation Guidelines and IOM’s Evaluation Framework, as well as guidance by PBSO in New York.
c.	Examine the project’s approach to peace-building in addressing the needs of women and vulnerable groups and improving conflict sensitivity in project design and implementation as well as assess the level of implementation of these measures. Record relevant good practices and intended and unintended impact in terms of gender, inclusion and conflict.
d.	Since this project was adopted as a Gender Marker 3 project, assess the extent to which the project and its implementation methods advanced ‘gender equality as a principal objective’.
e.	Assess overall performance of TA Project in terms of technical, financial management and its processes. Assess issues such as management of risks identified in the project proposal; validity of the theory of change; catalytic nature in terms of additional financial comments or unleashing peace relevant processes; risk taking / innovative approaches; selection of project location, beneficiaries and project staff particularly in light of the intended objectives.
f.	Analyse the following key elements: (1) the adoption of gender and inclusion considerations in the project design and implementation; (2) the conflict-sensitive approach adopted in the project design and implementation, including in areas of communications and feedback mechanisms; (3) the complementarity of the project with national priorities and policies, and national ownership of the project and its outcome; (4) the project’s efficacy on selection of right partnerships and exit strategy, particularly in light of national ownership and sustainability; (5) the comparative advantage of IOM to implement this project. 
g.	Analyze lessons learned and good practices with regards to peace-building in Nepal and provide actor-specific, well-targeted recommendations on how the project’s contribution to the peace process could be strengthened or any unintended negative consequences be mitigated. Include one or two concrete stories or examples of success and failure
h.	Complete, together with the project staff, a calculation of the project’s expenditure on gender, inclusion, M&E and conflict sensitivity. Include a table in the evaluation showing planned expenditure against actual expenditure on these components. 

6.	Evaluation methodology:
The consultant will:
a.	Foremost undertake desk review/literature review of below mentioned documents
i.	Project document; Final results framework; UNPFN Project Final Evaluation Guidelines; UNPFN Priority Plan; TA project mid-term assessment and management response; TA Project reports
ii.	I/NGOs, CBOs, UN agencies and International agencies report related to CAPs and needed services. 
b.	Hold consultation meetings with concerned multiple stakeholders prior to the field evaluation (relevant staff of IOM and Government officials of MoPR (Relief and Rehabilitation Division, LPCs at district level)
c.	Submit an inception report with evaluation plan including data collection toolkit, stakeholder analysis, sample interview guides and survey questions developed in close coordination with TA project staffs. 
d.	Conduct on-site project visit to evaluate and discuss the project’s outcome with the officials from district Government line agencies, especially through the Local Peace Committee (LPC) and Women and Children Office (WCO) as well as Conflict Affected Victims (CAPs) groups.
e.	Consult with IOM on appropriate measures and strategies to be followed during evaluation.  
f.	Upon completion of the tasks, provide the Organization with a Final Evaluation Report on the consultancy assignment and its outcomes.
g.	Perform any other duties as may be assigned.

7.	Tangible and measurable output of the work assignment.
a.	An Inception Report including evaluation plan inter alia methodology, tools and timeframe;
b.	A first draft of evaluation report, including an executive summary and recommendations (electronic version);
c.	A final report to be delivered and presented to IOM. The report should make a clear distribution between findings, conclusions and recommendations. The report must be in concise and clear English and will not exceed 25 pages excluding annexes.

8.	Realistic delivery dates and details as to how the work must be delivered.
a.	Inception report with evaluation plan, methodology, tools and timeframe within 5 days of contract; 
b.	Commencement of evaluation within 2 days of finalization of the Inception report; 
c.	First draft of evaluation report (electronic version) within 10 days of completion of field evaluation
d.	Final Evaluation Report within 7 days of finalization of the draft report.

9.	Indicators of performance for the evaluation of results (value of services rendered in relation to their cost).
a)	Inception Report 
b)	Final Evaluation Report.
Annex 2
List of Stakeholders
District Level: Kaski, Pokhara  

S.N	Name of the Stakeholders	Designation 	
1	Krishna Raut	Chief District Officer	
2	Kirtan Raj Poudel	Planning Officer 	
3	Mitra Pd. Aryal	Public Health Officer 	
4	Bishnu Gurung	LPC secretary 	
5	Laxmi G.C	Women Development Officer 	
6	Bina Silwal 	President 	
7	Mr Rudra Pun	Conflict victim	
8	Mr Salik Ram Paudyal	Conflict victim	
9	Mrs Sita Bastakoti	Conflict victim	
10	Mrs Radhika Simkhada	Conflict victim	
11	Mrs Arati Sharma	Conflict victim	
12	Miss Alicha Koirala	Conflict victim	
13	Mrs Saraswati	Conflict victim	
14	Mr Amar Nath	Conflict victim	
15	Mr Krishana P Parajuli	Conflict victim	
16	Mr Bharat Mani Bhattarai	Conflict victim	
17	Mrs Man Maya Khatri	Conflict victim	

District Level: Morang, Biratnagar

S.N	Name of the Stakeholders	Designation 	
1	Mr. Prem Prasad Luitel 	Assistant Chief District Officer	
2	Ms. Anita Subba	Public Health Officer 	
3	Ms. Tika Ghimire 	LPC secretary 	
4	Ms. Maheshowari Bista,	Women Development Officer 	
5	Mr Bhim Bahadur Raut	Conflict victim	
6	Mrs Sabitra D. Luitel	Conflict victim	
7	Mrs. Kamala Luitel	Conflict victim	
8	Mr Hari Prasad Apagai	Conflict victim	
9	Mr Yama Kanta Baral	Conflict victim	
10	Nagendra Lamsal	Conflict victim	
11	Khem Nath Gautam	Conflict victim	
12	Chatra B Karkee	Conflict victim	

Central Level: Kathmandu 
S.N	Name of the Stakeholders	Designation 	
1	Mr. Khum Raj Punjali 	Secretary, MoPR	
2	Mr. Mukund Prasad Paudyal 	Joint Secretary, MoPR/NPTF	
3	Mr. Sudev Kumar Pokherel 	Under Secretary, MoPR (focal person TA Project)	
4	Ms. Silla Ristimaki 	Programme Specialist, UNPFN 	
5	Mr. Jitendra Bohara	Programme Coordinator, IOM	
6	Mr. Anup Chandra Paudel 	Psychosocial Counselor/Team Leader, TA project