AUSTRALIA INDONESIA

GOVERNMENT PARTNERSHIPS FUND

PHASE II
2010-15

DESIGN

Table of Contents
Background................................................................................................1
Features, Principles and Purpose of the GPF....................................................1
Lessons from the First Phase.........................................................................3
Governance and Management.......................................................................3
Governance.............................................................................................4
GPF Steering Committee........................................................................4
Government of Australia Core Group.......................................................5
GPF Secretariat.....................................................................................5
Australian and Indonesian Government Agencies......................................6
GPF Governance in Practice....................................................................6
Management............................................................................................8
Design Principles...................................................................................8
Implementation....................................................................................9
Gender..............................................................................................10
Monitoring and Evaluation...........................................................................10
Principles...............................................................................................11
Responsibilities.......................................................................................11
Monitoring, Evaluation and Program Design...............................................12
Monitoring and Evaluation System............................................................12
Integration with Indonesian Systems.....................................................12
Audiences for Monitoring and Evaluation Information...............................13
Independent Evaluation.......................................................................14

Glossary
This Design Document uses the following terms in reference to the Government
Partnerships Fund (GPF):

GPF Agencies Indonesian and Australian agencies participating in the GPF.

Initiative the broader Government Partnerships Fund.

Program a series of events designed to bring about a desired change,

agreed by Indonesian and Australian partner agencies.

Activity an event or input, such as a study tour or workshop, conducted in

partnership between Indonesian and Australian agencies.

Note that the term program is also used in a generic sense, such as the
Ministrys reform program.

Background
1. The Government Partnerships Fund (GPF) is a whole-of-government program
that facilitates and strengthens government-to-government partnerships and
policy dialogue between Australia and Indonesia, in the pursuit of economic
and public sector development. It is an initiative under the Australia
Indonesia Partnership Country Strategy 2008-2013 - Pillar 1 Sustainable
growth and economic management.
2. In response to the tsunami of December 2004, Australias Prime Minister and
Indonesias President agreed to establish the Australia Indonesia Partnership
for Reconstruction and Development (AIPRD). As a part of the AIPRD, AusAID
has managed the implementation of the GPF, a five-year, $50 million initiative
that facilitates government-to-government partnerships, supporting capacity
building and policy dialogue.
3. This design document provides the rationale for an ongoing partnerships
program to support economic and public sector reform in Indonesia; the
governance structure and management framework to develop and deliver
programs that target priority reforms; and the monitoring and evaluation
system to ensure program effectiveness and continuous improvement.
Logistics processes will be provided in a separate Operations Manual.

Features, Principles and Purpose of the GPF

4. The GPF provides Indonesian and Australian economic and public sector
reform agencies with access to a pool of unallocated funds, and establishes
the systems necessary to allocate those funds to priority reform programs and
ensure their effectiveness. It brings together a set of programs that are linked
by their approach and their sector of activity, but whose impacts it would not
be possible to aggregate to assess progress towards a single outcome or set
of outcomes.
5. It operates essentially in a decentralised mode, in which decisions about areas
of activity and the objectives to be pursued are decided in partnership
between Indonesian and Australian agencies. As such, it requires dedicated
governance structures and management resources to give it internal
coherence, improve resource allocation and ensure complementarity with
other forms of Australian cooperation with Indonesia.
6. The hypothesis behind the GPF is:
Facilitating partnerships between Australian and Indonesian public
sector agencies engaged in similar business will result in types of
support that Indonesia values and a range of positive outcomes
within Indonesian organisations, provided that the reform
environment remains strong.
7. The decentralised and exploratory nature of the GPF is essential to this
hypothesis. The GPF is intended to give Indonesian agencies leadership and
allow them to make use of the initiatives comparative advantages: the ability
to discuss reform challenges with peers; mutual problem solving; the current
technical and practical skills of serving officials; and access to an institution
rather than a single adviser.

8. The goal of the GPF is:

Indonesian government agencies implementing effective economic
and public sector management policies.
The purpose of the GPF is:
To apply Australian public service skills and experience to the
implementation of priority Indonesian economic and public sector
reforms.
This statement describes a process rather than an objective. However, implicit
in the statement is the judgement that Australia has something to offer from
its own reform experience and that this is valued by Indonesian agencies. The
objective will be achieved if the answers to the following questions are
positive:

Are Australian public service skills and experience relevant to the

Indonesian context and valued by Indonesian counterparts?

Are they being effectively applied?

Are they addressing the right Indonesian priorities?
9. Objectives are also defined at the agency-to-agency level. At this level it
should be possible to make a clear statement as to changes that have
occurred in a given Indonesian agency over the period of the partnership, and
the contribution that the GPF partnership has made to these changes. Critical
to the success of such an initiative is that participating Australian and
Indonesian agencies are supported to develop appropriate objectives and
programs of activity, and to evaluate these programs to ensure their
effectiveness.
10. The trust developed between Australian and Indonesian agencies through the
first phase of the GPF has lead to stronger partnerships and opportunities to
collaborate in important policy areas, such as Indonesias response to the
global recession and climate change policy. The second phase of the GPF will
ensure that Australian officials are well positioned to respond to direct
requests from Indonesian Ministers for assistance in important policy areas.
11. Part of setting realistic ambitions is recognising the limitations of agency-toagency partnerships compared to contracted technical assistance. Australian
agencies are often constrained in the types of assistance they are able to
provide to their Indonesian counterparts, by such factors as their own
domestic workload and a lack of in-house resources to support a particular
reform.
12. The constraint on the supply of skills available through the GPF and the
relatively modest size of the programs means that the initiative should not be
expected to support the highest priority reforms for all the Indonesian
agencies involved. The GPF partnerships should, however, support the highest
priority needs that participating Australian agencies are practically able to
meet.
13. In practice Australian cooperation with Indonesia has other instruments which
can respond more flexibly to priorities, and the relative contribution of all
forms of assistance will need to be addressed as a whole. To this end, the GPF
will share its Jakarta-based governance arrangements with the Australian
Indonesia Partnership for Economic Governance (AIPEG), which provides
complementary support for Indonesian economic reform. This arrangement
will maximise the opportunities for collaboration between the two initiatives.

14. As a balance to this limitation, the initiative will need to be able to show that
the creation of long term partnerships between Indonesian and Australian
agencies has compensating advantages. This will mean incorporating in the
vision of success for individual partnerships an assessment agreed by both
sides of what they expect from the broader partnership, and following this up
in monitoring and evaluation. There is a good deal of experience of effective
partnering in the first phase of the GPF which can be drawn on to inform these
expectations.
15. The above features, principles and purpose show that the GPF is a unique
development cooperation initiative, which has special requirements to ensure
that the funding available is directed to the best possible programs and that it
is effective in meeting the needs of Indonesia. Key to the success of the
initiative will be good governance arrangements and good management
information to inform its direction and ensure its effectiveness.

Lessons from the First Phase

16. Despite some success stories at the partnership level, and the high degree of
support shown by Indonesian officials for the program, the Independent
Completion Report for the first phase of the GPF identified key structural
weaknesses, which this design aims to address:

The need for greater strategic intent for the GPF, built up from a stronger
rationale for the program and clarity of objectives at the partnership level;

The lack of a governance structure which makes resource allocation

decisions consistent with the rationale;

Derived from this gap, a lack of a clear set of accountabilities within the
GPF, and consequent lack of clarity over management arrangements; and

The lack of monitoring and evaluation arrangements at the program level

and the concentration of monitoring at partnership level on outputs.

Governance and Management

17. In the first phase of GPF, decisions about new partnerships and the initial
allocation of resources were made by a committee of senior Australian
officials. The absence of Indonesian representation in the governance
committee to articulate the Indonesian Governments economic and public
sector reform agenda, together with the absence of an agreed framework for
prioritising applications, made it difficult to ensure that the partnerships being
supported and the level of resources being allocated corresponded to the
broader priorities of the Government of Indonesia.
18. Just as agency-to-agency negotiation of programs helps ensure that activities
target appropriate priorities for the Indonesian agency, so Indonesian
representation in the governance arrangements of the second phase of the
GPF will help ensure that the highest possible priority reforms for the
Government are supported and that the limited resources available are
effectively utilised.
19. A model for a successful joint Australian-Indonesian governance body can be
found in the long running Technical Assistance Management Facility (TAMF)
and its successor program, the Australia Indonesia Partnership for Economic
Governance (AIPEG). Through the participation of senior Indonesian officials
with access to key policymakers, the governance bodies of these programs

have ensured that they have supported the priorities of the Government of
Indonesia.
20. As AIPEG and the GPF target similar reform agenda, a shared governance
structure will help ensure that the programs complement each other. Under
such a structure AIPEG will be positioned to support GPF partnerships with, for
example, technical assistance in human resource management and
information technology. It will also minimise duplication of effort for both
Indonesian and Australian senior officials.

Governance
21. The composition, roles and responsibilities of the elements of the GPF
governance structure are described below, followed by a narrative describing
how these institutions will function.

GPF Steering Committee

22. The AusAID Minister Counsellor, Jakarta, and a senior official from the
Government of Indonesia will co-chair the GPF Steering Committee, comprised
of senior representatives of the Governments of Indonesia and Australia. This
Committee will have a dual role as the Advisory Board for the AIPEG facility
and as the Steering Committee for the GPF. It will meet six-monthly,
considering program proposals at the mid-year meeting and formal agency
reporting at the end-of-year meeting.
23. Committee members participate by invitation of the Co-Chairs, and should
have a very good understanding of the Indonesian economic and public sector
reform context. Positions on the Steering Committee will not necessarily be
allocated on a representational basis, with positions filled by participating
agencies. Rather, members will be invited based on their knowledge, networks
and influence. Members should be able to reflect on the priorities of the
Indonesian Government within economic and public sector reform as a whole
and have sufficient influence to be able to make credible funding allocation
recommendations1.
24. The Co-chairs of the Steering Committee may invite other senior Indonesian
officials to participate, as required.
25. The GPF Steering Committee is responsible for:
Providing ongoing advice to the Core Group and Australian agencies on the
reform priorities of the Government of Indonesia, through the GPF
Secretariat;

Assessing proposed programs submitted by Australian and Indonesian

agencies against an agreed set of Design Principles (see below) and the
broader priorities of the Government of Indonesia;
Agreeing GPF programs and allocating funding;
Monitoring the progress of programs including their effectiveness and
efficiency, providing feedback to agencies on their programs (through the
Secretariat) and determining ongoing funding; and
Monitoring the effectiveness of the GPF initiative as a whole.

In the first instance, the AusAID Minister Counsellor will invite senior officials from the
Australian Core Group departments who meet the above criteria to join the Steering
Committee. The final composition will ensure a balance between Indonesian and Australian
participants and will not exceed eight members. Representatives will recuse themselves
from any discussion which might represent a conflict of interest.

Government of Australia Core Group

26. The GPF Core Group comprises of representatives of central and international
policy agencies of the Government of Australia, including the Department of
Prime Minister and Cabinet, the Treasury, the Department of Finance and
Deregulation, the Department of Foreign Affairs and Trade and AusAID. The
AusAID Assistant Director General responsible for the aid program in
Indonesia, will chair Core Group meetings. The Core Group will provide advice
to the Steering Committee prior to Committee meetings. The Steering
Committee will provide feedback to the Core Group on decisions taken and
GPF progress.
27. The Core Group is responsible for:

Agreeing all GPF program proposals prior to their submission to the Steering
Committee;
Providing advice to the Steering Committee on the Australian strategic
priorities and perspectives with respect to aid policy and global, regional and
bilateral engagement and may provide comments on proposals; and
Monitoring whole of initiative performance.
The Core Group may also provide the Steering Committee with comments on
the proposals it will consider or on the program more generally. To assist the
Core Group in its advisory role, the GPF Secretariat will provide it with regular
updates on AIPEG activities.

GPF Inter-Departmental Committee

28. The second phase of GPF includes the introduction of quarterly information
sharing Inter-Departmental Committee meetings which the GPF Core Group
and all Australian Government agencies engaged in GPF will be invited to
attend. These meetings will give agencies an opportunity to share information
on lessons and analysis of each agencys activities, good practice in capacity
development, and Indonesias reform environment.
29. One of the four meetings held each year will take place before the annual
Core Group meeting. At this IDC meeting, agencies will be given an
opportunity to present on their main activities proposed for the following
calendar year. This information provides

An opportunity for the Core Group to receive an informal briefing on proposed

activities.
An opportunity for GPF agencies to amend their draft work plans to, for
example, exploit opportunities for joint activities, avoid duplication or to
adjust the sequencing of activities.

Economic Governance Adviser meetings

30. GPF and AIPEG Advisers in Jakarta will meet monthly to share information.

GPF Secretariat
31. The GPF Secretariat is managed by the AusAID Jakarta Economic Governance
Unit Manager, and comprises AusAID staff and representatives from the
Government of Indonesia. The Secretariat has dual roles: to support the

Steering Committee with its governance and oversight functions, and to

support agencies to prepare and deliver effective programs.
32. The GPF Secretariat is responsible for:
Supporting Australian and Indonesian agencies to develop, deliver, monitor
and evaluate partnership programs, including providing resources for program
design, monitoring and evaluation, capacity building and gender sensitive
programming;

Coordinating information sharing across the GPF partnerships, the economic

governance program and the broader Australia Indonesia Partnership, and
ensuring that opportunities for complementary activities are exploited;
Administration of the initiative, including financial management, coordinating
logistical support, and quality reporting;
Providing advice to the Steering Committee, and feedback to agencies, on:

how well proposed programs address the Design Principles; and

the progress of programs; and

Managing the initiative-wide monitoring and evaluation process and providing

advice to the Steering Committee and agencies on the findings.

33. The advice provided by the Secretariat to the Steering Committee will not
supersede the advice provided by the Core Group.

Australian and Indonesian Government Agencies

34. The Australian and Indonesian agencies are responsible for:

Maintaining good partnerships and mutual commitment to their program;

Negotiating appropriate and clear objectives and designing programs of

activity in line with the GPF Design Principles;
Implementing programs, monitoring progress and reporting on progress
and outcomes to the Steering Committee, through the Secretariat; and
Participating in monitoring and evaluation processes critically and
constructively.

35. Additionally, Australian agencies are responsible for the appropriate use of
public money and financial reporting.

GPF Governance in Practice

36. The operations of the revised GPF governance arrangements will acknowledge
that, at the inception of the initiative, there will already be established GPF
relationships and ongoing programs of work that represent significant
investments in Indonesian reforms. The governance arrangements will also
balance the work of existing partnerships with the flexibility to support new
reform priorities in Indonesia.
37. In practice, the governance bodies will have a different role at the initiatives
inception than in subsequent years, as most agencies are likely to submit
multi-year programs. A governance model for the cycle of planning, approval
and reporting of GPF programs follows:

First Year

Initial Planning: Australian and Indonesian agencies with extant

partnerships discuss the reform priorities which could be addressed
through a GPF program. This is the concept stage, and a detailed plan of
activities need not yet be finalised. The outcome of these discussions
should be the broad objectives of the program and the design logic that
describes how the program will achieve those objectives.

Australian Consultations: At an interdepartmental committee meeting

in Canberra, Australian agencies share their program concepts and look for
ways in which they might complement each other. This is also an early
opportunity to analyse the likely cost of the programs and balance them
against the overall funding available.

Proposal Design and Submission: Australian and Indonesian agencies

design their program proposals and submit them to the GPF Core Group,
through the GPF Secretariat. The Secretariat will ensure that agencies are
provided with appropriate assistance to develop sound proposals through,
for example, access to design and M&E expertise.

Core Group: Core Group meets in Canberra to consider the proposals.

This meeting will assess the proposals against the design principles
outlined below and also ensure that the aggregated cost of the programs
does not exceed the available resources. Agencies may be asked to revise
their proposals prior to submission to the Steering Committee. The Core
Group may also provide advice to the Steering Committee on Australian
strategic priorities and make recommendations on proposals.

Steering Committee: Program proposals are submitted, through the

Secretariat, to the GPF Steering Committee for agreement. The Steering
Committee assesses the proposals against the design principles, agrees
programs and allocates funding. Funding is secured on an annual basis
with in-principle agreement to forward year funding.

Subsequent Years

Monitoring and Evaluation: Australian and Indonesian agencies deliver

agreed programs, undertake M&E and provide annual reports to Core
Group and the Steering Committee, through the Secretariat. The Core
Group and the Steering Committee monitor the progress of programs
against the expected progress outlined in the agencies plans.

Strategic Direction Setting: Both the Core Group and the Steering
Committee have a role in setting the strategic direction of the initiative.
The Steering Committee will advise the Core Group and Australian
agencies on the reform priorities of the Government of Indonesia, which
may present opportunities for new partnerships. The Core Group may
provide advice to the Steering Committee on Australian strategic priorities
and make recommendations on programs.

The Steering Committee will hold formal meetings every six months,
however informal discussions are likely to also take place. Although the
Core Group and the Steering Committee will only consider formal M&E
reports once a year, advice on the strategic direction of the program, for
example on emerging priorities or opportunities for new partnerships, may
be provided at any time through the GPF Secretariat.

Resource Allocation: Any changes in priorities may also impact the

resources allocated to partnerships in forward years and consequently the
timing of program delivery. Core Group and the Steering Committee have

a shared role in ensuring that funding allocation corresponds to the

priorities of the Indonesian Government and the progress of programs.

Management
Design Principles
38. The Design Principles will be used by the GPF Steering Committee to assess
proposed programs from Australian and Indonesian agencies. While programs
should seek to address all the principles, doing so will not guarantee that
proposals will be supported or the funding will be allocated.

Priority: Does the proposed program support a reform priority of the

Governments of Indonesia and Australia for which there is momentum and
for which the Indonesian agency has responsibility?
o

Indicators could include evidence of high level support for the

reforms, such as Ministerial statements, and a track record of
reform achievement in the Indonesian partner agency.

Another indicator would be alignment of the proposed program to

the broader Australia Indonesia Partnership Country Strategy.

Ownership and Commitment: Does the Indonesian agency have

ownership of the proposed program and commitment to its
implementation? Does the Australian agency have the appropriate
expertise to support the program?
o

Alignment: Is the program aligned to the broader Indonesian

government and agency reform agenda, including the work of other
donors?
o

Indicators could include evidence that the agency has a clear

reform agenda, such as an operational strategic plan, and that the
Australian agency has consulted with other donors and has support
for the program.

Approach: Is the approach to delivering the program logical and

appropriate for the types of changes the partners are seeking to make?
o

Indicators could include the sign off on the program by the

respective agency heads; evidence that the Australian agency has
experience with similar reforms; and contributions from Indonesian
agencies to the activities, such as office space or support staff.

For example: a project approach for a small-scale technical

program, or a more flexible action-reflection approach for a
complex policy reform.

Appropriateness and Clarity of Objectives: Does the program set out

clearly the change that both sides will contribute to by working together?
o

Indicators that objectives are appropriate may include that they go

beyond outputs; that good progress is possible in the time
proposed; and that they encourage adaptation and exploration
along the way.

Indicators that objectives are clear might be that it is self-evident

(or can be explained) what will constitute success; and that the
means of monitoring and evaluating progress can be explained.

Value for Money: Does the plan represent value for money?

Indicators could include a cost-benefit comparison with other,

similar GPF plans, consideration of other options for meeting
objectives and clear justification for the use of long term advisers.

Gender: Does the plan incorporate gender equity principles?

o

Indicators could include participation targets based on gender

equity or efforts to promote awareness of gender equity principles.

39. Available funding will be allocated to deliver support where the APS can make
a difference to the achievement of timely and high-quality outcomes by
Indonesian counterparts. The focus should be on delivering results in a
manageable range of areas, rather than aiming to respond to all requests for
support, and on building enduring institutional relationships where these have
been established.

Implementation
40. GPF agencies are responsible for agreeing on program objectives and
designing programs of activities to bring about desired changes. For agencies
with established GPF partnerships, programs and budgets of up to three years
duration may be developed for the Steering Committees consideration, with
annual reporting on progress. Planning will be based on the Indonesian
financial year, which runs from January to December.
41. The first meeting of the Steering Committee will take place in mid-2010 to
consider proposed programs which will commence in January 2011. The
period July-December 2010 will be managed on a business as usual basis,
with agencies implementing interim programs consistent with current
(January-June 2010) objectives and resourcing. Future meetings of the
Steering Committee will take place biannually, at times to be coordinated by
the Secretariat.
42. While there is in-principle agreement that the second phase of the GPF should
be of similar scope to the initial phase, $50 million over five years, the
flexibility of funding will be determined by the nature of the budget allocation.
Depending on the level of flexibility, there may be scope for the Steering
Committee and the Core Group to agree to a revised funding envelope.
43. The types of partnership activities that the GPF can support include: the
placement of long-term advisers in Indonesian agencies; the secondment of
Indonesian officials to Australian agencies; study tours; workshops and
seminars; and training courses. Logistical support for these activities will be
coordinated through the GPF Secretariat, which is also responsible for
developing templates for activity design, budgeting and reporting.
44. The GPF Secretariat will also support agencies to develop objectives and
design programs through the provision of training and ongoing assistance
through a help desk service. Similarly, the Secretariat will provide access to
monitoring and evaluation, gender and capacity building specialists to assist
agencies to reflect on progress and continually improve their programs.
45. Australian GPF agencies will be responsible for managing funds allocated by
the Steering Committee. As many programs will be drawing upon a single pool
of funds, accurate budgeting and timely invoicing and financial acquittals are
essential to enable annual initiative allocation to be fully disbursed. The
processes outlined above are presented in the GPF Operations Manual.
46. Once programs are established the Steering Committee will also make an
assessment of progress in addition to the Design Principles to inform the
ongoing allocation of resources. If a program has not delivered the expected
outcomes or inputs in a given year, the Steering Committee will assess the

reasons for the delay, review the forward funding allocation and may
reallocate funding to partnerships with better prospects.

Gender
47. The GPF is required by Indonesian and Australian commitments to address
gender equality. The Australia Indonesia Partnership agreement between the
Government of Indonesia and the Government of Australia requires all
bilateral aid to address gender equality. Similarly, Indonesian Presidential
Instruction (9/2000) states that donors must mainstream gender into all
development initiatives.
48. Making gender an explicit Design Principle of the GPF will encourage
Australian and Indonesian agencies to reflect on the issue and incorporate
practical measures into their programs which promote gender equality.
Resources including specialist advice on gender-sensitive programming will be
available to agencies through the GPF Secretariat.

Monitoring and Evaluation

49. The purposes of monitoring and evaluation (M&E) for the GPF are:
At the program and partnership level:

To promote structured, regular and documented reflection and planning within

partnerships, including reflection on key partnership principles;

To provide for activity tracking against periodic plans;

To provide information to the Steering Committee on progress against
objectives; and
To discharge the internal and external accountability of Australian agencies for
the resources allocated to the partnership.

At the initiative level:

To underpin reflection by the Steering Committee on the assumptions behind

the GPF and on the functioning of governance structures;

To provide information which explains the rationale and progress of the GPF
for an audience of decision makers in Indonesia and Australia and in other
development partners;
To promote learning across the GPF;
To meet the requirements of the Government of Australias development
effectiveness reporting; and
To allow structured feedback to the Secretariat and AusAID on program
management.

M&E Principles
50. The principles that need to be observed in establishing monitoring and
evaluation arrangements for GPF are:

Simplicity and clear expectations: An M&E system that works for different
Australian agencies, and is relevant to Indonesian counterparts, should set
very clear expectations of what is important, how it will be covered, and what

10

the specific responsibilities of agencies will be. Ideally it should cover

monitoring by agencies and the Secretariat of a small number of variables,
and provide professional support.
Consistency: M&E should cover the same broad issues across each
partnership and address the changes in those issues over time.
Proportionality: The intensity of monitoring, and expectations from those
managing partnerships, should be proportional to expenditure.
Connection to AIPEG: The issues that are important to AIPEG and GPF
overlap but are not identical. The M&E systems will be kept separate at least
for the first year, however there is scope for consistency of approach, notably
in the way that counterparts are involved in M&E and in looking for
opportunities to use results in Indonesian agencies own reporting. Moreover,
AIPEG can, through the GPF Secretariat, provide access to support for design
and may be able facilitate selected M&E activities.
Participation by Indonesian counterparts: In some partnerships the
Indonesian side already has a role in shaping reporting. Joint responsibility
will be built up and out to all partnerships. At a minimum this should mean
participation in documented yearly annual reflection and planning processes
and joint sign off on periodic reporting. An Indonesian government
counterpart to the M&E specialist should be identified in the course of the first
year.

Responsibilities
51. The responsibility for monitoring and evaluation of partnership programs rests
with the participating Australian and Indonesian agencies. Their proposed
approach to the M&E questions set out below should be agreed with the
Secretariat at the beginning of each new funding agreement and the
proposals will be proportionate to planned expenditure. M&E approaches will
be considered based on their ability to provide in a simple way information
which is valid and able to be verified through more than one information
source. Program proposals will specify the role of the GPF M&E specialist in
facilitating evaluation.
52. The Secretariat will be responsible for monitoring the initiative as a whole. It
will employ a part time M&E specialist as part of the Secretariat to cover the
facility-wide M&E questions set out below, and to provide support for
individual partnerships, and will identify a counterpart from the Indonesian
government within the first year. It will also be responsible for:

ensuring compliance with agreed reporting requirements from each

partnership, and synthesising results for the Steering Committee;
the requirements of Australias development effectiveness reporting
system;
using the results of M&E to promote learning across the GPF; and
producing or commissioning information products based on the results of
M&E.

53. The Steering Committee will consider the proposed M&E arrangements as
part of its decisions on funding of proposals, on advice from the Secretariat;
and consider the results reported by partnerships as part of its overall review
of the functioning of the GPF.

11

Monitoring, Evaluation and Program Design

54. For monitoring and evaluation of partnerships to be effective, each program
proposal, or design, needs to contain:

A measurable objective(s): The type of objectives expected are

discussed in the main design document
A baseline statement for the objective: This does not need to be more
than a paragraph, but should summarise the agreed state of the
Indonesian agency in the areas covered by the objective. It is inherent in
the partnership approach that there will be neither perfect knowledge nor
perfect agreement; more will be learned during the partnership, and both
progress against the baseline and changing understanding of the situation
will be tracked in the M&E system
A statement of partnership expectations (beyond progress towards
the objective): This will not be the same for all partnerships and will in
general contain the expression of what each agency values about the
partnership. It will form the basis of reflection over time about how the
partnership is developing and how it relates to the achievement of
objectives.

Monitoring and Evaluation System

55. The M&E system will work on an annual cycle corresponding to the Indonesian
financial (calendar) year, and will be incorporated into current GPF planning
cycles. The attachments to this document outline the how monitoring and
evaluation will be conducted in the GPF at the program, partnership and
initiative levels, including the questions that will need to be addressed.

Attachment A: Monitoring at the Program Level

Attachment B: Evaluation at the Partnership Level
Attachment C: Monitoring and Evaluation at the Initiative Level

Integration with Indonesian Systems

56. Under international aid effectiveness commitments, Australia is looking for
ways to integrate monitoring and evaluation of its aid financed activities with
Indonesian M&E arrangements. Although there are emerging systems for
checking progress on Presidential priorities it is not clear that reforms
supported by the GPF at present have the profile to figure in these systems.
Integration in the case of the GPF is likely to mean a two stage process:

Substantive involvement by Indonesian counterparts in monitoring and

evaluation practice in the GPF, preferably including staff with formal M&E
or reporting responsibilities (there is scope to align with AIPEG practice
here)

Looking for opportunities to use M&E products from partnerships, or parts

of them, as contributions to common donor reporting on the effectiveness
of aid where more than one donor is active, or to Indonesian agencies
reporting obligations (e.g. to Parliament in respect of financial
management reform).

57. It will be part of the M&E specialists role to ask questions about the extent to
which integration is occurring and to benchmark it against practice in the
remainder of the Australian aid program in Indonesia.

12

Audiences for Monitoring and Evaluation Information

58. Monitoring and evaluation helps managers of an activity make sense of
progress as they go along. Most managers do this intuitively; the benefit of a
structured system is that it encourages the use of consistent questions and
standards through the life of a program, especially if personnel change, and
provides a way into discussion with counterparts that might not easily arise in
the course of business. Reporting the results of M&E is a different process and
will normally be of benefit to those outside the day to day running of the
partnership. Potential users of reporting in the GPF are:

Who

Want to know

Top management in participating

agencies

Progress against partnership objectives

Outputs implemented to plan and
quality
Investment in partnership activities is
justified
Incentives for continuing to work
together

Australian Core Group

Progress against partnership objectives

Progress and areas of concentration are
consistent with common Australian and
Indonesian national interests

Secretariat

Progress against partnership objectives

How progress towards objectives is
being adapted and reviewed (i.e. how
the partnership is working)
Financial and input data
How governance and selection
arrangements are working

Steering Committee

Whether partnerships are living up to

the ambitions of the funding proposal
Whether partnerships are still
addressing top priorities
How governance and selection
arrangements are working

AusAID

For the facility - information defined in

quality processes and for program
assessment
How governance and selection
arrangements are working
For partnerships progress towards
objectives to inform wider policy
dialogue with Indonesia
Financial and input data

Ministers and senior officials in

Summary progress, mainly related to

13

Indonesia and Australia not directly

involved in the partnership

Australian and Indonesian joint

interests.

59. Reporting from the individual partnerships and the facility to the Steering
Committee, if pitched at the right level of outcomes, are likely to serve most
of these purposes except the last, which will require periodic summaries and
occasional special products. It is impossible to prevent other demands on
partnerships and the Secretariat, especially in such a high profile activity but
the aim should be to use the standard products above and their corollaries,
such as quality at implementation reporting, to answer most questions.

Independent Evaluation
60. An independent evaluation (mid-term review) will undertaken in year three or
year four. Timing will be decided in the light of circumstances at the time, but
should allow evidence to build up from three annual cycles and minimise M&E
demands on Indonesian partners. Options to consider will include a joint
evaluation with the World Bank of all external support for economic reform.
61. As a program contributing a small but strategic amount to wider reforms, the
GPF would be suitable for contribution analysis as part of the independent
evaluation. There would be no need to do this for every program, but perhaps
for two or three case studies. Contribution analysis takes a high level change
on which most stakeholders agree and traces plausible contributions to the
change from the program being evaluated. It has the advantage that it obliges
evaluators to consider contextual change as a factor in bringing about
alterations in policy and practice as well as the more intentional contributions
of designed programs. Case studies would need to be identified several
months before the evaluation and steps taken to gather evidence of change
and of contributory factors as an input into the evaluation.

14

Attachment A

Monitoring at the Program Level (Primary responsibility

participating Australian and Indonesian agencies).
Monitoring is likely to include attention to some or all of following questions:

Question

Means of verification

Is learning from the Australian public

service being sought by Indonesian
institutions and leaders?

Numbers and type of new requests

(whether responded to positively or
not)
Examples of political and senior public
service leadership endorsement of GPF
concept or activities

Did we carry out the set of activities we

planned? If not, why not? Were the
ones we carried out successful? Did
both sides provide what they said they
would?

Australian agency records, Indonesian

agency feedback

Have we had consistency in

principal
participants
in
partnership?

Australian agency records

the
the

Evidence of succession planning and

handover
Numbers of key Indonesian personnel
who have moved on

What have been the processes for

determining what has worked and what
the program for the next period should
be?

Periodic plans including documented

process for arriving at them

Is the ability of the Australian agency to

support the partnership undiminished?

Evidence of senior leadership support

Assessment of quality of response for
support from home agency
(If applicable) Assessment of quality of
field
of
applicants
for
deployee
positions

What changes have there

agency policy and practice?

been

in

Evidence of learning from partnership

applied to policy and practice

The methods used to collect data will vary with each program. It will be important
that methods give attention to rigor and validity and can be verified through more
than one source of data.
The output from monitoring should be a draft report of no more than three pages
which will be the first step in partnership reporting. It should be endorsed and cosigned by the Indonesian agency.
In principle M&E should follow the annual cycle of reflection and planning, and the
changes being captured in the above questions, other than those which deal with
inputs, are unlikely to be meaningful over periods of less than a year. However, as
a mechanism for alerting the Secretariat and the Steering Committee to potential
problems in mid-cycle, agencies should provide exception reporting. This would

be a short note describing any impediments to the delivery of the agreed

activities or any changes in the context which significantly undermine
assumptions or activate risks or which have a bearing on the likely progress
during the year. Exception reporting may also be undertaken in instances where
an Australian or Indonesian agency chooses to supplement their standard joint
reporting with an annex of sensitive material; this may take place if there is a
lack of consensus between the partners on the level of success achieved or on the
inhibitions of success.

Attachment B

Evaluation at the Partnership Level (Primary responsibility

participating Australian and Indonesian agencies with support from
M&E specialist)
Evaluation involves making sense of the information formally and informally
collected during the period under review. In order to be of use to both partners, it
needs to take place as part of, perhaps at the end of, the review and planning
process, and involve some participatory and open ended reflection. Precisely who
is involved will depend on the nature and maturity of the partnership, and the
need to make sure that different voices are heard, not just senior ones.
The evaluation questions that might be considered at this time include:

Question

Issues for reflection

What value have Australian public

service skills added to reform in this
agency?

Which skills of trainers, deployees, etc

have been valued? What learning from
Australia has been valued?

Is this partnership still part of a wider

reform program in the agency? Have
any changes taken place to undermine
the assumption that policy in this
agency is stable?

Links to wider reform programs,

including those supported by other
donors
Breadth of ownership of objectives
towards which partnership is working
Changes in leadership or mandate
Staff rotation

What have we learned about what it

will take to get to our objectives? Do
we need to change our approach or the
objectives?

Progress towards objectives

How have our priorities changed over

time and why? Do we understand each
other better?

Quality of participation in reflection and

planning processes

What changes have there been in

individual and institutional capacity?

Examples of changed individual or

institutional ability to get things done or
do things differently

Are both sides demonstrating good

partnership behaviors?

Responsiveness,
transparency,
articulation of mutual interest, mutual
respect

Changes in
programs

composition

of

work

How good has this reflection and

planning process been? Do we need to
improve it next time?

These questions will need to be adapted for different situations. The depth of
enquiry implied by the whole suite may not be appropriate for small partnerships,
and the ability to ask searching questions about capacity or good partnership
behaviours is likely to be a feature only of the most well developed partnerships.

The format will also need to be adapted. Again the key will be to ensure the data
collection is rigorous and valid and promotes the participation of various people.
The outputs from evaluation should be

Next years plan [mostly] finalised

A report of no more than ten pages which the M&E specialist can help to
write incorporating the results of the evaluative process and the
monitoring information previously prepared.

Attachment C

Monitoring and Evaluation at the Initiative Level (Primary

responsibility Secretariat)
Monitoring and evaluation of the facility will cover the following questions:

Question

Means of verification

Are Australian public service skills

relevant and valued in Indonesia?

Synthesis of evidence from partnership

monitoring
Demand for partnerships
Attendance at and discussions in the
Steering Committee

Are partnerships being applied

effectively to Indonesian reforms? Is
strategic guidance being developed to
improve the likelihood of effective
outcomes?

Synthesis of evidence from partnership

evaluation

Are the reforms being supported

priorities for Indonesia and for the
partnership approach?

Discussions in the Steering Committee

Place holder for gender monitoring

TBA

Guidance flowing from Steering

Committee discussions

Application of selection criteria

The output of this stage will be a report of no more than ten pages by the
Secretariat to the Steering Committee. This should also include basic
management information (e.g. on expenditure) and the results of reflection on
the performance of the Secretariat and overall program management efficiency
(perhaps gathered through a questionnaire to partnership managers).