ࡱ> RTOPQ'` }bjbjLULU I.?.?yuJ   TJ    |&!\J }Eh!^!"""" # #DDDDDDD$FhMI~"E '""''"E ""7E+++' " "D+'D++? RA"! pfb D)6N@PDME0}Ed@Iz*I,RARA"I tA!#d$+%O&e!#!#!#"E"E+^!#!#!#}E''''J J J ddJ J J J J J  The role of the client in making an evaluation influential: the case of a multi-sectoral evaluation of HIV programs in Papua New Guinea Dr Emily Rudland Office of Development Effectiveness, Australian Agency for International Development, Canberra, Australia Contact: emily.rudland@ausaid.gov.au Abstract The Office of Development Effectiveness (ODE) conducts strategic evaluations to influence change in aid practice. This paper offers the perspective of an ODE evaluation manager on how evaluations can be shaped to have influence. The author argues that close interaction between the commissioner and the evaluation team throughout the evaluation process is necessary to produce an influential evaluation. This is particularly important when evaluating a complex, cross-sectoral program where there are multiple stakeholder groups with differing needs and interests. In ODEs evaluation of the Australia aid programs contribution to the national HIV response in Papua New Guinea, considerable work was undertaken by the commissioner before the evaluation team was contracted to build support among stakeholders on the need for the evaluation. During the design phase a week-long scoping visit was conducted in Port Moresby to consult with program staff and external stakeholder on the issues that the strategic evaluation should focus on. Participatory tools such as program theory and peer review of draft reports were used to build ownership and understanding by stakeholders. ODEs participation on the evaluation team helped to shape the evaluation to be more targeted to the needs and style of the organisation. Close interaction between the commissioner and the team is not easy, and relies on resilient working relationships being built, a strong team leader and a sophisticated understanding of independence in evaluation. This has significant implications for evaluation practice, where there is often minimal interaction between commissioners and teams. Commissioners need to take on a more active role in the evaluation beyond contract management to create an environment receptive to evaluation findings and a willingness to respond to the findings, and evaluation professionals need to hold influence as the end goal which drives every aspect of how they practice evaluation. Note: this paper was presented at the Australasian Evaluation Society 2011 International Conference, Sydney Australia, 29 August 2 September 2011. Key Messages Both the client and the evaluation team have important roles to play in enhancing the ability of an evaluation to have influence. An influential evaluation cannot be fully planned at the start. The influencing approach must be strategic and targeted in a broad sense, but also iterative and opportunistic in implementation. Timing is key: what is going on outside the evaluation will determine whether it makes an impact. Think about your evaluation theory of change. What are you aiming to achieve? What are your mechanisms for change? Introduction Evaluation commissioners and evaluators both face a challenge: it is not enough to do a quality, relevant evaluation if it does not influence change. There are many barriers to achieving influence through evaluation. Many evaluations are barely tolerated in the doing by their target audience, and largely ignored in the results. Overcoming these barriers requires focused attention from the commissioner and evaluation team throughout the process, and serendipity in the timing of the evaluation. The question this paper addresses is: what can commissioners (and evaluation teams) do to maximise the potential for evaluation influence? This is a question that the Office of Development Effectiveness (ODE) often considers. ODE is a high-profile unit within the Australian Agency for International Development (AusAID) that is charged with monitoring the quality and evaluating the impact of the Australian aid program. ODE reports to the head of AusAID and is independent from program management within AusAID. As an internal scrutiny body, ODE must work primarily through persuasion and cooperation. The high visibility of ODEs work to the AusAID senior executive and to the public is its only stick. Evaluation is a key strategy used by ODE to influence the aid program to be more effective. Influence is the primary goal; ODE agrees with Patten (2008) that the value of our evaluations should by judged by their use by the intended users. ODE is not here to merely contribute to global knowledge (although we are happy if we do so); our role is to help the Australian aid program be more effective. ODE is increasingly learning through trial and error how to manage its evaluations to maximise the potential for influence. Strategies for influence throughout the evaluation process are critical to this. The evaluation report is not the primary tool for influence; if you do not have your key stakeholders on board by the time you show them the draft report, you are unlikely to change the way they are working. The commissioner and the evaluation team must work actively to make this happen. To support evaluation influence, ODEs major evaluations usually include an ODE staff member as part of the evaluation team. As a client, ODE has a hands-on approach, with evaluation management and evaluation implementation closely linked. It is only recently that ODE has been looking at evaluation influence theory, and considering how we can apply it systematically. Our approach has been developed intuitively over time by seeing what works and what does not. This paper uses the evaluation of the Australian aid programs contribution to the national HIV response in Papua New Guinea (PNG) as an example of how ODE has worked to achieve influence through evaluation. It outlines the approach we used, what we achieved in terms of influence, and our (retrospective) theory for why this happened. The paper concludes with lessons for commissioners and evaluation teams on being influential. The Evaluation The evaluation of the Australian aid programs contribution to the national HIV response in PNG (the evaluation) emerged out of recognition of the strategic significance of this work to both Australia and PNG. At $47 million in 2010, this single program is larger than many of AusAIDs country programs. Australia provided 76 per cent of total resources to the national HIV response in PNG in 2010, and has had substantial influence over the directions of the response in the last decade. ODE, working with AusAIDs PNG program and AusAIDs health thematic group, identified a need for more evidence to answer the major strategic questions about the effectiveness and relevance of this program. This is a complex, cross-sectoral program. The PNG-Australian HIV and AIDS Program (the HIV program) plays a prominent role in the PNG national response, though supporting the PNG government at national and provincial levels to lead and coordinate the national response, and grant funding and capacity building to 20 international and national non-government organisations. As the lead donor supporting the national response, the scope of AusAIDs contribution is vast and covers all aspects of the national response. Other AusAID sector programs in PNG provide support to their counterparts in the national PNG government to integrate HIV activities into their programs. Planning for the evaluation started in mid-2009 with a discussion paper on the evidence gaps, and how they could be filled. The next year was primarily scoping work, involving theory of change workshops with the program staff, consultation with key stakeholders in AusAID. The inception stage of the evaluation concluded with a one-week scoping mission to Port Moresby in May 2010 to consult with PNG stakeholders on the priority issues that the evaluation should focus on. The evaluation team was selected and contracted in early 2010, and was involved in the last part of the scoping process. The team was led by an evaluator with international health and HIV expertise and included two PNG HIV and development specialists and the ODE evaluation manager. The evaluation design was finalised in mid-2009, leading to an intensive period of analytical work and document review by the evaluation team. The team conducted fieldwork in PNG in late September and October 2010, and then returned to Canberra to debrief senior stakeholders and the evaluations advisory group. The document review continued after the fieldwork, parallel with drafting of the evaluation report. The evaluation report was reviewed by key internal and external stakeholders in March 2011, along with a technical quality review by an evaluation expert. At the time of writing this paper, the evaluation report was close to being finalised. The evaluation design was based on the five OECD DAC criteria for evaluating developing assistance: relevance, effectiveness, efficiency, impact and sustainability. Impact was considered to a lesser extent than the other criteria, primarily through a simple contribution analysis. The evaluation used a mixed methods approach, combining key informant interviews, site visits and participatory workshops with use of existing quantitative data. There was a major emphasis on mining evidence from existing documents of which there is a copious amount for this program through in-depth analysis of the historical context of the program, financial data, and interrogation of documents against the key areas of the national response that the AusAID program is contributing to. The challenges of this evaluation lay in its large scope and multiple stakeholder groups with differing needs and interests. The key groups of stakeholders that ODE was seeking to influence through this evaluation were: The senior AusAID staff who have direct or indirect decision-making influence over this program. The program staff ranging from the technical specialist Program Director and the generalist AusAID staff, through to the junior grant managers. External stakeholders involved in the PNG national response some directly funded by AusAID and some not who have an interest in how effective and relevant the AusAID program is. Influencing Approach The evaluation influencing approach started with the broad principle that intensive engagement with key stakeholders would occur from the beginning of the evaluation to build up ownership and acceptance of the evaluation even, we hoped, some excitement. Beyond that, the influencing process was iterative and opportunistic. Developments in the external environment, many of which could not be anticipated when the evaluation was initiated, were a major factor in the influencing process. The influencing approach was led by the ODE evaluation manager, who bridged the management and implementation roles. Having the commissioner as part of the evaluation team can bring many advantages. It means the evaluation manager is the one person that is involved in every aspect of the evaluation process from conception through to the final dissemination activities. In many cases, the evaluation team is not involved in the crucial beginning and end stages of an evaluation, which offer major opportunities for influence. Playing the dual role, the evaluation manager can engage consistently with the key stakeholders throughout the full process, and assist the evaluation team in understanding the dynamics of the evaluation context. Figure  SEQ Figure \* ARABIC 1: Commissioner and evaluation team involvement in evaluation process Commissioner/Evaluation ManagerConcept development and consultationEvaluation designEvaluation implementationReport drafting, reviewing, finalisationPublication and dissemination of evaluation messagesEvaluation TeamHaving a commissioner on the evaluation team is not without its difficulties. The evaluation manager must have a certain level of evaluation experience to be able to add value as a team member. The evaluation manager must also have a great deal of time available to pay the dual role. On this major strategic evaluation, the evaluation manager worked on it full time during the fieldwork and report-writing stages, and it has formed a part time (approximately 0.5 FTE) role over the other parts of the evaluation process. Establishing a good working relationship between the evaluation manager and the evaluation team leader is essential, with clear division of roles and lines of accountability. Clarifying that the evaluation manager reports to the team leader on all aspects of evaluation implementation is important, but must be dealt with flexibly in recognition of the cross-over between evaluation activities and influencing activities. In general, close interaction between the commissioner and the team relies on resilient working relationships being built, a strong (and confident) team leader and a sophisticated understanding of independence in evaluation. The main influencing strategies employed in the evaluation were: Identifying and targeting the five key senior executives in AusAID who make the strategic decisions affecting this program. ODE involved these stakeholders from the start and briefed them regularly throughout the evaluation. A targeted peer review meeting was held with this group when the draft report was ready to get their feedback on the evaluation recommendations. Building support for the evaluation over a six-month period, and then a further six months of concept development and scoping. This was to build up acceptance and ownership of evaluation, and to find out what decision-makers most needed and wanted to know (and also to narrow down an enormous scope). Two theory of change workshops with program staff were a key part of this process to start engaging in-depth with the staff on describing the complex evaluand and uncovering how they viewed their program. The key mistake made in this process was to start the theory of change work before the evaluation team was involved, which limited how it was used in the evaluation. Facilitating direct interaction between the team leader and senior staff. The team leader interviewed each of the key senior stakeholders before the fieldwork, asking what they would most like to know about the program. She then debriefed each of these stakeholders after the fieldwork, directly answering their key questions. On request from senior management, the team leader provided an additional report an emerging findings report shortly after the fieldwork concluded, to enable them to start immediately feeding the findings into their decision-making and to give early notice of possible recommendations. Feedback on this interim report helped the team leader shape the main report. Engaging external PNG stakeholders. The views of AusAIDs partners in the PNG HIV response were sought through the scoping visit to Port Moresby. ODE was told that this was greatly appreciated. Engagement also included briefing and debriefing of key external stakeholders during the fieldwork visit and involvement in peer review. More generally, ODE and the evaluation team sought to add value to the national HIV response through the evaluations analytical work and interactions that were consistent with the partnership between AusAID and its PNG counterparts in the national response. The formation of an evaluation advisory group to provide input and review at key points in the evaluation process. The members of the evaluation advisory group were targeted to be individuals who could have influence over how the evaluation was accepted among external stakeholders and/or could have influence over how the evaluation findings would be used. Engaging program staff to help them see the value of the evaluation for their work and gain ownership by making their mark on the evaluation. For this, ODE and the team used participatory tools such as theory of change, self-assessments of effectiveness and peer review of draft reports, as well as ongoing interaction. All the program staff were targeted in this way, including valuing the views of the PNG national staff. The evaluation manager also sought to build ongoing working relationships with key individuals in the program. ODEs participation on the evaluation team helped to shape the evaluation to be more targeted to the needs and style of the organisation. This included helping the evaluation team members to understand the broader strategic issues affecting the program, the nature of the organisation, and facilitating feedback between stakeholders and the team through the evaluation process. The evaluation manager also played a role in helping to target the evaluation report to the AusAID audience. These influencing strategies were primarily initiated and led by the evaluation manager, but the evaluation team played an important role in making space for these activities as part of the evaluation process and being active in the stakeholder engagement. Without their support, the ability of the commissioner to be an influencer would be severely curtailed. It can be challenging to ask evaluators to take on an influencing role. ODEs general experience is that not all team leaders are comfortable with close involvement from the evaluation manager and a request to shape evaluation activities around engagement of multiple stakeholders. These evaluators are more used to being issued with the terms of reference, and having very little interaction with the commissioner until the report has been drafted. This might be suitable in some cases, but not in the evaluations of complex programs where influencing is the goal. It is important that the commissioner and the evaluation team share a flexible and sophisticated definition of independence, which upholds integrity through professional principles and open working relationships, rather than relying on strictly held boundaries restricting access by the commissioner and stakeholders in formation of the evaluation findings. While the evaluation was underway, a number of key activities occurred that had an effect on the potential for the evaluation to have influence. In the broader AusAID PNG program, a new head of Post commenced in early 2010 and undertook management reform. In April 2010, the review of the PNG-Australia Development Cooperation Treaty was released, providing major recommendations for how Australian aid to PNG is set up and initiating reforms across the PNG program, such as how technical advisors are used. From late 2009 to mid-2010, a major consultative process occurred to develop a new PNG National HIV and AIDS Strategy 2011-2015, which set the forward strategic directions for the HIV response that AusAID is contributing to. In mid-2010, new epidemiology data was released on the PNG HIV epidemic which provided better understanding of the nature of the epidemic, again affecting the strategic directions of the response. From late 2010, as the evaluation findings started to be fed back to program staff, major decisions were being made in how the program was being managed, and the program commissioned its own scoping review to look at new options for its management model. Figure 2 provides a timeline of the evaluation process with key activities for the evaluation and in the external context. Figure  SEQ Figure \* ARABIC 2: Timeline of the evaluation in its context  EMBED PowerPoint.Slide.8  What was achieved and why At a basic level, a key achievement of the evaluation is that the draft recommendations have been accepted by key senior decision-makers, and implementation of major recommendations is already underway, even before the report is finalised. The sustained engagement of the senior decision-makers contributed to this, as did the extensive efforts to build ownership among the program staff. Less tangible effects were seen throughout the evaluation process. Simply the process of having high-profile scrutiny of the program over a sustained period is an influencing factor in itself. Early in the evaluation ODE started seeing changes in the way the program collected its own evidence and reported on its value. The program management commissioned its own review in mid-2009 (when the evaluation was already agreed). In early 2010, the HIV program also commissioned a scoping review to explore options for its management model spurred both by recommendations for change by the evaluation and the need to re-tender for its implementing service provider. It is also likely but difficult to measure that many individuals involved in the program were influenced throughout the process, simply by being given the space and impetus a number of times to step back from their daily activities to consider the bigger picture of the program. While ODE and the evaluation team have not been timely in finalising the evaluation report, ODE is confident that the evaluation has been successful in influencing the management of this significant program. There was not cooperation or acceptance of the evaluation at all levels, but ultimately it helped senior managers make changes they wanted to make. In writing this paper, I first considered my retrospective theory of change for the evaluation, defining what I think it has achieved in terms of influence, and the activities and mechanism that contributed to this. It appears that the group of stakeholders fall into three categories: the people who wanted changes in the way the program was managed, but needed a trigger and external support the people who did not know they wanted change at the start of the evaluation process, and needed persuasion a small minority of people who were not open to change at all. For the first group, the evaluation provided high-level visibility of the program through an effectiveness lens that helped open the way for change, as well as evidence to inform (and justify) decision-making. It was fortunate that the directions of change suggested by the evaluation team aligned easily to the directions of change that senior managers were already going in; Paul Gertler suggests this should be part of an influencing approach, with evaluations being targeted to answering questions that decision-makers want answers to. The evaluation achieved this alignment partly through intention, using an interactive evaluation process and effort to ensure the evaluation was relevant to the context and organisation. Fortunate timing also played a part. Critical to the success of this evaluation was that it occurred during an opportunistic period where it was one of a confluence of factors creating space for strategic change. For the second group of people who required persuasion, the evaluation contributed to their knowledge and insight into the HIV program, and played a role in helping them question their assumptions. For some, it also used participatory activities to help empower them to become champions of effectiveness for their program, and to feel ownership of the evaluation results. The third group of people were not directly influenced by the evaluation, but were nevertheless involved in the process of change the evaluation contributed to. Figure 3 provides an illustration of the evaluation theory of change, which was developed retrospectively based on lessons of what had happened. Figure  SEQ Figure \* ARABIC 3: Evaluation theory of change  EMBED PowerPoint.Slide.8  It appears that four mechanisms for change were used as part of the evaluation influencing approach: empowerment, persuasion, the stick, and the carrot. Or, as another way of putting it, the evaluation played a role in pushing the stakeholders into looking at the effectiveness of the program more than they might otherwise have done, gave them something back from the process (a better evidence base, more accessible program information), and built motivation for change at both an individual and group level. The likely outcomes from the influencing strategy were that senior staff and program staff had a combination of inspiration and knowledge to make better decisions, leading to the recommendations being implemented. Program staff also gained a deeper knowledge and motivation of how to be effective in their context, which potentially provides for the recommendations to be implemented in a more meaningful and relevant manner. Ultimately, the purpose of the evaluation was to help make the Australian aid programs contribution to the national HIV response more effective and relevant. The evaluation was a contributor to this; without other factors driving change at the same time, it might not have been a success. Bringing this experience back to evaluation influence theory, there are two key points in existing theory that it supports: the concept of the evaluation as an intervention, as set in Tennant (2010) in relation to the AusAID context the idea that an evaluation can spur multiple, linked influence processes leading to both short-term and long-term outcomes (Henry and Mark 2004). For an evaluation commissioner who wants to achieve influence and to seek the evaluation teams support in doing so there is a lot of value in considering what the theory of change of the evaluation is, and possible mechanisms for change specific to the organisational context. This can be done to some degree at the start of the evaluation, provided there is recognition that the influencing strategy must be iterative and opportunistic in implementation to adapt to factors that can contribute to, or detract from, change. Conclusion ODEs experience in influencing through an evaluation of AusAIDs HIV program in PNG suggest several lessons for evaluation practice. Both the client and the evaluation team have important roles to play in enhancing the ability of an evaluation to have influence. The evaluation commissioner must play an active role throughout the evaluation process in driving the influencing approach. This does not just apply for external evaluation (being either external to the organisation or to program management). Even where program management commissions the evaluation, there is a need for the evaluation manager to create an environment receptive to evaluation findings and a willingness to respond to the findings. This does not mean the evaluation manager must be a member of the evaluation team in all cases; that will not always be appropriate. It does mean, however, that the evaluation manager and the evaluation team will need to be working closely throughout the process. The evaluation team may not be directly focused on the influencing strategy of the evaluation, but can enable it by recognising influence as the end goal that drives how they implement the evaluation, and being willing to work with and support the evaluation manager in pursuing this goal. The team leaders active support for influencing is critical; a wise commissioner will get the team leader involved in the evaluation from the early scoping phase to facilitate the teams ownership of the influencing approach and ensure it is interwoven into the evaluation activities. An influential evaluation cannot be fully planned at the start. The influencing approach must be strategic and targeted in a broad sense, but also iterative and opportunistic in implementation. To support influence, the commissioner must approach every aspect of the evaluation manager from this point-of-view. Developing an influencing strategy at the start of the evaluation is an important step to focus these efforts, as a complement to a broader acceptance of the need to privilege influence over other considerations of evaluation management. However, it is not possible to know what will happen during the evaluation in terms of what will be found, how the team will accept their influencing role, or what external factors will play a role. Therefore, the commissioner will need to be strategically opportunistic throughout the evaluation process. Timing is key: what is going on outside the evaluation will determine whether it makes an impact. The evaluation is one factor in contributing to change this is obvious, but seemingly rarely recognised. A good evaluation influencing strategy will consider ways to take advantage of external factors that are also contributing to change (or otherwise) in the evaluand. Think about your evaluation theory of change. What are you aiming to achieve? What are your mechanisms for change? Developing an evaluation theory of change is helpful for focusing an influencing strategy. The theory should include a vision of what success will look like for the evaluation in its context, and what the key mechanisms for change are likely to be. The mechanisms for the theory of change in figure 3 were identified retrospectively from experience, with guidance from Dr Jess Dart using the classic theories of change. However, these could be taken further through exploration of the evaluation influence theory literature that deals with mechanisms. Ideally, the theory of change will be developed at the beginning of the evaluation process and used as an active tool throughout. Revising it at the end of the evaluation offers an opportunity to reflect and consider the lessons learnt from the process. References Carlson, Cindy, et. al. (forthcoming) Evaluation of the Australian Aid Programs Contribution to the National HIV Response in Papua New Guinea, AusAID. Mark, Melvin M, and Henry, Gary T. (2004) The Mechanisms and Outcomes of Evaluation Influence Evaluation 10:35 pp. 35-56. Patton, Michael Quinn (2008) Utilization-Focused Evaluation, 4th Edition, Sage Publications. Tennant, Stacey (2009) Maximising evaluation influence in an international development donor agency Evaluation Journal of Australasia 10:1, pp. 22-22. The terms of reference and report of the Evaluation of the Australian aid programs contribution to the national HIV response in Papua New Guinea (forthcoming) can be found at www.ode.ausaid.gov.au  The views in this paper are those of the author and not necessarily those of the Office of Development Effectiveness or AusAID.   HYPERLINK "http://www.oecd.org/document/22/0,2340,en_2649_34435_2086550_1_1_1_1,00.html" http://www.oecd.org/document/22/0,2340,en_2649_34435_2086550_1_1_1_1,00.html  Evaluand the subject of the evaluation.  Communicated in presentation to DFID Impact Evaluation Workshop, Delhi India, 10 May 2011.     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