I would say it is all those things. The issue is knowing how the department is organized.
In this specific case, it did not give itself a chance to collect the information. At the beginning of the program, the department established performance or progress indicators, but omitted the result indicators. Not establishing them from the start prevented the department from gathering data for years. As I mentioned, it can take several years to meet an objective such as improving hygiene. We need to gather data at the beginning of the project and throughout and I think that is a question of planning.
I admit it is hard to evaluate the results, but it is very important to do so.