United Nations Development Programme United Nations Development Programme Country: Georgia Project Document Project Title Enhancement of the border management capabilities at Bavra Ninotsminda BCPs between Armenia and Georgia UNDAF Outcome(s): Outcome 2: Efficiency and accountability of governance structures at central and local levels strengthened, towards an inclusive and participatory decisionmaking process Expected CP Outcome(s): (Those linked to the project and extracted from the CPAP) Outcome 2.7.1. Public administration reform for efficient, effective, responsive and public service promoted, particularly at local level, with emphasis on participatory decision making Outcome 2.1.4 Capacity of government institutions to manage borders, migration, combat trafficking and effectively protect human rights enhanced Expected Output(s): (Those that will result from the project and extracted from the CPAP) Implementing Partner: Output: Capacity of Border Management agencies in Georgia enhanced ICMPD Responsible Parties: UNDP, ICMPD Brief Description The overall objective of the action is the introduction of European standards of integrated border management at the NinotsmindaBavra Border Crossing Point on the ArmeniaGeorgia border with the ultimate goal to facilitate trade and transit and enhance the movement of people across the border. The overall goal will be achieved by implementation of the following Specific objectives: An EUstandard IBM concept operational at NinotsmindaBavra BCP Crossborder cooperation strengthened in line with EU IBM standards Transparency, accountability and integrity of border management agencies improved Programme Period: 20122013 Key Result Area (Strategic Plan): Atlas Award ID: 00084277 Start date: 1 Nov. 2012 End Date 30 Oct. 2013 PAC Meeting Date 26 Sep. 2012 Management Arrangements DEX AWP Budget: 289 200 USD Total resources required: 289 200 USD Total allocated resources: 289 200 USD Regular Other/ EC: 289 200 USD UNDP N/A Government N/A Unfunded budget: Inkind Contributions Agreed by (Implementing Partner): Minister of Internal Affairs Mr. Irakli Gharibashvili Agreed by UNDP: Resident Representative Mr. Jamie McGoldrick
Article I. SITUATION ANALYSIS The Government of Georgia has been implementing border management reform since 2005. The National Border Management Strategy (BMS) was developed at the National Security Council and approved by the Presidential Decree in February 2008. This document sets objectives, which should be achieved over five years. The Implementation Action Plan (IAP) of the Border Management Strategy was elaborated and approved by Presidential Decree 954 on 25 December, 2009. Following the war between Georgia and Russia in August, 2008, revision of the BMS of Georgia became necessary. The process of revision of BMS of Georgia has been supported by the SCIBM Programme, and the revised document has been endorsed by the President in April 2012. SCIBM also supported in revision of the BMS Action Plan, which is pending approval from the President of Georgia. The Implementation Action Plan of the Border Management Strategy provides for establishment of intraagency, interagency and international cooperation mechanisms in the sphere of border management to ensure the transformation to modern standards of border control according to commitments made under the European Neighbourhood Policy Action plan between Georgia and EU. Through the provision of Latvian expertise, the SCIBM Programme has supported development of new Standard Operating Procedures (SOPs) for the Patrol Police, for utilisation at two pilot Border Crossing Points. These new SOPs are now pending adoption. Further work is required to develop joint SOPs for the Patrol Police and Revenue Service (Customs). All Border Agency staff represented at the borders in Georgia Patrol Police and Revenue Service currently receives professional skills training through the Police Academy. In general, these trainings are of high quality, but more support is required to mentor training staff in modern pedagogical methods and ensure targeted development of professional capacities of staff serving at Ninotsminda BCP and elsewhere. Additionally, supervisory staff will require training in application of new SOPs to be developed by the Project. The SCIBM Programme initiated work with Georgian Border Agencies on Agency outreach to the general public, in particular through the preparation and dissemination of leaflets on border crossing procedures in Georgian, Armenian, Azerbaijani, English and Turkish languages. Further interventions have been agreed with national authorities to raise public awareness of the work of the Border Agencies. Following a major drive to root out corruption in public service, the Patrol Police and Revenue Service of Georgia are generally acknowledged to have high standards of accountability, transparency and professional integrity. Indeed, Georgia is often looked to as a model for similar public service reform by other countries, and there is an interest to document lessons learnt in the process as a guide to replication elsewhere. In line with the Implementation Action Plan of the Border Management Strategy, BCP infrastructure has been upgraded at all Georgian crossings, including Ninotsminda. Further equipment provision is required, however, notably a truck scanner that will be provided for Ninotsminda BCP through a separate supply tender to be organised by the EU Delegation in Tbilisi. It is proposed that the scanner data is available for joint use by Armenian Customs also, potentially through a highspeed data connection that will allow Armenian Customs to separately view and record scans made in realtime. A Cooperation Agreement on Border Issues was signed between the Ministry of Interior of Georgia and the National Security Service of Armenia on 29 November 2011, following almost a decade of negotiation. The Cooperation Agreement establishes the overarching legal basis for an increasingly integrated approach to enhancing border security between the two countries. Support is now required to make the Cooperation Agreement operational. Further bilateral agreements will be required, particularly in regard to exchange of information, joint operations and joint use of equipment at BCPs, including NinotsmindaBavra, and new secondary level legislation, regulations and SOPs will need to be prepared and adopted on both sides. Terms of Reference 2
for Border Delegates, and other crossborder liaison officers will need to be put in place. The SCIBM Programme attracted significant interest of national authorities in exploring possible models of crossborder policecustoms cooperation, and this work and other crossborder cooperation mechanisms will be taken forward under the Project described herein. The Customs Agencies of both countries are also currently considering the principle of joint use of BCPs the abolition of outgoing Customs control and the introduction of unified control of goods. It is anticipated that such simplification of procedures will further reduce border crossing times for cargo and transit passengers (see Section 4.1, Baseline & Success Indicators, Quality Assurance). Bavra/Ninotsminda BCP is situated at 2,120 meters above sea level in Northern Armenia and Southern Georgia respectively, on the transport route connecting Iran, Armenia, Georgia and Turkey. The location is mountainous; the climate is cold with long severe winters and extensive snow cover. There are strong winds, frequent fogs and snowstorms. Traffic to and from the Islamic Republic of Iran and Republic of Turkey via NinotsmindaBavra BCP is expected to increase significantly from summer 2013, due to a number of factors: completion of local road infrastructure around Ninotsminda by Georgian authorities; opening of Kartsakhi BCP between Georgia and Turkey in the vicinity of Ninotsminda BCP; inclusion of upgraded access roads to Bavra BCP in the overall border crossing infrastructure renewal Programme of the RA Government. It should be noted that traffic increased significantly in the summer season 2010 following finalization of the road infrastructure on the Georgian side. Ninotsminda Bavra BCP Type, Average Daily Traffic Persons Exit from Georgia to Armenia Exit from Armenia to Georgia Traffic (all type of Exit from vehicles) Georgia to Armenia Exit from Armenia to Georgia 2008 2009 2010 2015 (target) 565 649 828 2000 558 669 851 1800 141 159 181 600 141 166 185 500 Due to the current poor infrastructure at Bavra BCP on the Armenian side, and the lack of appropriate modern equipment on both sides of the border, this is considered to be an elevated risk of illicit trafficking of persons and goods to/from Iran and Turkey, as well as further to EU. STRATEGY The government of Georgia is interested in strengthening and establishing of integrated border management system, involving all border institutions in the country. 3
The project will contribute to achievement of the UNDAF outcome related to strengthening efficiency and accountability of governance structures at the central and local levels towards an inclusive and participatory decisionmaking process. This is translated into the UNDP CPAP outcome Public administration reform for efficient, effective, responsive and propoor public service promoted, particularly at local level, with emphasis on participatory decision making. The overall objective of the action is the introduction of European standards of integrated border management at the NinotsmindaBavra Border Crossing Point on the ArmeniaGeorgia border, with the ultimate goal to facilitate trade and transit and enhance the movement of people across the border. The specific objectives of this Project are: An EUstandard IBM concept operational at NinotsmindaBavra BCP Crossborder cooperation strengthened in line with EU IBM standards Transparency, accountability and integrity of border management agencies improved Integrated border management can contribute to facilitation of crossborder trade & transit through the reduction of barriers to trade & transit encountered at borders. Barriers to trade & transit are usually defined in terms of the time required by different user groups to cross the border, and the number and size of costs, including any irregular payments, required to do so. Minimising the time taken to cross borders requires modern border infrastructure to be in place; the application of simplified crossing procedures; intraagency, interagency and international cooperation between Border Services (the three pillars of the European IBM approach) to ensure swift processing of goods and people; Border Agency staff to be professionally trained and equipped to perform their duties. Minimising corruption at borders requires public knowledge of procedures and costs involved, and high standards of accountability, transparency and integrity within Border Agencies. Introduction of new procedures can remove opportunities for rent seeking by corrupt officials, while introduction of new technology can help both to deter such officials through the automation of processes and increased monitoring of their work. Enhancing security at border crossings requires many of the same inputs as reduction in barriers to trade & transit: provision of modern infrastructure and equipment; welldefined intraagency, interagency and international cooperation and information sharing between Border Services; professional skills training and zero tolerance of corruption. The project proposed seeks to meet all of the above requirements, in order to achieve the ultimate goal of contributing to the facilitation of international trade & transit and the enhancement of border security, and in so doing meet the overall objective of the introduction of European standards of integrated border management at NinotsmindaBavra Border Crossing Point. The Project will reach these objectives by taking a bilateral and national approach; the bilateral components comprise ArmeniaGeorgia. Subsequently, support will be provided to the relevant BM agencies through training and workshops on the best BM practises in the Europe and in the World. The sharing of expertise from EUMSs and relevant international agencies will play an instrumental role in ensuring effectiveness of these activities. The Project activities will be implemented through four modules. This thematic approach will allow the Project team to deliver its expertise and transfer knowledge in a harmonized, gradual and coherent manner while covering optimally the entire scope of what is actually Integrated Border Management. The whole design of the Project is meant to ensure that any issue addressed from a specific angle would be tackled exhaustively, i.e. from other perspectives as well, due to strong crossmodular connections. For the implementation of the activities, special attention will be paid to the use of interactive methods and the identification of concrete and practical results as much as possible directly 4
applicable to the local realities. This will allow the beneficiaries to better link themselves with the results obtained and this strengthened ownership amongst the beneficiaries in regard to the IBM process will constitute further guarantee for sustainable effects of the Project. The four modules are: Module 1: IBM Policy and Practice Module 2: Creating the conditions for the introduction of IBM at NinotsmindaBavra Border Crossing Point Module 3: Capacity Development & Quality Assurance Module 4: Accountability, Transparency & Integrity of Border Agencies It is anticipated that at the end of the action, the following results will have been achieved: Beneficiary Agencies in both Georgia and Armenia have further developed IBM regulatory frameworks and policies nationally. State and international donor community efforts have been coordinated, & bilateral procedures for improved border crossing at NinotsmindaBavra and elsewhere have been agreed. IntraAgency & InterAgency Standard Operating Procedures (SOPs) for NinotsmindaBavra developed, equipment & infrastructure provided, to allow for the introduction of an EU IBM approach. Capacities of Georgian and Armenian Border Agencies at BavraNinotminda BCP are developed through mentored professional skills training in a range of subjects, including document security; risk assessment and profiling; search techniques; international property rights and identification of counterfeit goods; refugee law and asylum rights, shift management and the efficient application of new SOPs developed. Public understanding of, and confidence in, the work of Border Agencies improved, and Border Agencies have enhanced public service ethos and culture, based on the highest standards of accountability, transparency and professional integrity.. 5
and Armenia Enhancement of the border management capabilities at Bavra Ninotsminda BCPs between Georgia UNDP, ICMPD
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Project Organisation Structure Project Board Beneficiaries Ministry of Internal Affairs; Revenue Service Executive UNDP Senior Supplier EC, ICMPD; EUMS (Latvia, France) Project Implementation Team Georgia Project Manager; Admin/Finance Assistant; National Expert on Border Security; National Expert on Trade Facilitation; Driver; 11
MANAGEMENT ARRANGEMENTS UNDP Georgia is signatory to the contract of which this Description of the Action forms the first Annex, and will take overall responsibility for quality assurance and administration, including narrative and financial reporting. Two Project teams will be established, one in Georgia and one in Armenia, each comprising a Country Manager, two national Border Management experts, a Finance/Admin Assistance and a Driver. Both teams will be supported by a parttime Chief Technical Advisor, with experience of multiagency crossborder cooperation arrangements for integrated border management. The consultant will take daytoday responsibility for liaising with Project partners (See Section 3.2) on implementation of Project activities and Project consolidated reporting among others. The Country Managers will lead each Project team, and report directly to designated staff members within their respective UNDP Country Offices. Steering Committees will be held on a biannual basis in each country, comprising all relevant national authorities, as well as representatives of UNDP, the European Delegation, ICMPD, Latvia and invited observer representing European Union Member States. ICMPD will be an implementing partner for this project and will be responsible for producing outputs and use of resources. Besides EU member states (Latvia and France) will be involved as partners for implementation of certain activities including provision of technical expertise. MONITORING FRAMEWORK AND EVALUATION In accordance with the programming policies and procedures outlined in the UNDP User Guide, the project will be monitored through the following: Within the annual cycle On a quarterly basis, a quality assessment shall record progress towards the completion of key results, based on quality criteria and methods captured in the Quality Management table below. An Issue Log shall be activated in Atlas and updated by the Project Manager to facilitate tracking and resolution of potential problems or requests for change. Based on the initial risk analysis submitted (see annex 1), a risk log shall be activated in Atlas and regularly updated by reviewing the external environment that may affect the project implementation. Based on the above information recorded in Atlas, a Quarterly Progress Reports (QPR) shall be submitted by the Project Manager to the Project Board through Project Assurance, using the standard report format available in the Executive Snapshot. a project Lessonlearned log shall be activated and regularly updated to ensure ongoing learning and adaptation within the organization, and to facilitate the preparation of the Lessonslearned Report at the end of the project a Monitoring Schedule Plan shall be activated in Atlas and updated to track key management actions/events Annually
Annual Review Report. An Annual Review Report shall be prepared by the Project Manager and shared with the Project Board and the Outcome Board. As minimum requirement, the Annual Review Report shall consist of the Atlas standard format for the QPR covering the whole year with updated information for each above element of the QPR as well as a summary of results achieved against predefined annual targets at the output level. Annual Project Review. Based on the above report, an annual project review shall be conducted during the fourth quarter of the year or soon after, to assess the performance of the project and appraise the Annual Work Plan (AWP) for the following year. In the last year, this review will be a final assessment. This review is driven by the Project Board and may involve other stakeholders as required. It shall focus on the extent to which progress is being made towards outputs, and that these remain aligned to appropriate outcomes. Quality Management for Project Activity Results OUTPUT 1: Beneficiary Agencies in both Georgia and Armenia have further developed IBM regulatory frameworks and policies nationally. Bilateral procedures for improved border crossing at NinotsmindaBavra and elsewhere have been agreed. Capacities of Georgian and Armenian Border Agencies at NinotsmindaBavra BCP are developed through mentored professional skills training Activity Result 1 (Atlas Activity ID) Purpose Description Quality Criteria how/with what indicators the quality of the activity result will be measured? At least 10 specialised skills training provided At least 3 Working group sessions for drafting regulatory framework organised Capacity of Georgian border management agencies enhanced Start Date: Nov 2012 End Date: Oct 2013 Develop regulatory framework for implementation of IBM and provide specialised skills training Working group sessions, meetings with decisionmakers to agree on new regulations, workshops Quality Method Means of verification. What method will be used to determine if quality criteria has been met? Report of Quality Assurance Missions Draft Standard Operating Procedures; Draft of border delegate agreement Date of Assessment When will the assessment of quality be performed? Aug 2013 Feb 2013/Jun/2013 OUTPUT 1: Beneficiary Agencies in both Georgia and Armenia have further developed IBM regulatory frameworks and policies nationally. Bilateral procedures for improved border crossing at NinotsmindaBavra and elsewhere have been agreed. Capacities of Georgian and Armenian Border Agencies at NinotsmindaBavra BCP are developed through mentored professional skills training Activity Result 2 (Atlas Activity ID) Purpose Project Management Start Date: Nov 2012 End Date: Oct 2013 Effective coordination, administration and monitoring of the project activities 13
Description 1. Establishing channels of communication with beneficiaries, implementing partners and other donors 2. Identification of project activities and preparation of project workplan; 3. Finance and HR management; 4. Monitoring of project activities; 5. Project reporting. Quality Criteria how/with what indicators the quality of the activity result will be measured? Organisation of Steering Committee meeting Preparation of project workplan listing all the activities and topics of training Quality Method Means of verification. What method will be used to determine if quality criteria has been met? Date of Assessment When will the assessment of quality be performed? Minutes of Steering Committee December 2012 Project workplan approved by UNDP Monthly and progress reports Monthly and progress reports produced December 2012 Every month Activity Delivery Reports Activity delivery reports produced After each activity LEGAL CONTEXT If the country has signed the Standard Basic Assistance Agreement (SBAA), the following standard text must be quoted: This document together with the CPAP signed by the Government and UNDP which is incorporated by reference constitute together a Project Document as referred to in the SBAA [or other appropriate governing agreement] and all CPAP provisions apply to this document. Consistent with the Article III of the Standard Basic Assistance Agreement, the responsibility for the safety and security of the implementing partner and its personnel and property, and of UNDP s property in the implementing partner s custody, rests with the implementing partner. The implementing partner shall: a) put in place an appropriate security plan and maintain the security plan, taking into account the security situation in the country where the project is being carried; b) assume all risks and liabilities related to the implementing partner s security, and the full implementation of the security plan. UNDP reserves the right to verify whether such a plan is in place, and to suggest modifications to the plan when necessary. Failure to maintain and implement an appropriate security plan as required hereunder shall be deemed a breach of this agreement. The implementing partner agrees to undertake all reasonable efforts to ensure that none of the UNDP funds received pursuant to the Project Document are used to provide support to individuals or entities associated with terrorism and that the recipients of any amounts provided by UNDP hereunder do not appear on the list maintained by the Security Council Committee established pursuant to resolution 1267 (1999). The list can be accessed via http://www.un.org/docs/sc/committees/1267/1267listeng.htm. This provision must be included in all subcontracts or subagreements entered into under this Project Document. 14
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ANNEX 1: RISK ANALYSIS Risks Log # Description Category Impact & Probability Countermeasures / Mngt response 1 External Risks Political Potential escalation of the conflicts in South Caucasus between Georgia and Russia on one hand and Azerbaijan and Armenia might undermine the implementation of the project. P = 2 2 Internal Risks Political Given the current political situation in the country there is a risk of internal political destabilization, which might substantially delay the launching of the project. Furthermore, possible change of government priorities might endanger proper implementation of project activities. P = 2 Project should have a contingency plan for this possible scenario. Project management should be prepared for possible delay in launching the activities and have an alternative timetable prepared. Any initiative should be in line with national priorities. Involvement of all relevant stakeholders should be ensured both at proposal formulation and project implementation stages. It will ensure transparency and safeguard sustainability of an effort in case key decisionmakers change. Owner Author Date Identified Project Implem entatio n Team Coordi nation Unit (PIT) PIT September 2012 PIT PIT September 2012 Last Update Statu s