DESIGN FEATURES OF MASAF 3: UPDATE FORM FOLLOWS FUNCTION
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Transcript of DESIGN FEATURES OF MASAF 3: UPDATE FORM FOLLOWS FUNCTION
DESIGN FEATURES OF MASAF 3: UPDATE
FORM FOLLOWS FUNCTION
IMPROVING THE QUALITY IN SOCIAL FUNDS (SF) AS OPERATIONS WITH A COMMUNITY DRIVEN
DEVELOPMENT (CDD) APPROACH: APRIL 11, 2005
N. Mungai Lenneiye, Sr Social Protection Specialist, AFTH1
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Presentation outline
Beyond words1. Development challenges in Malawi2. Management and skills structure of PMU3. Implementation arrangements4. Institutional linkages5. Preparation6. Sustainability7. Wrap-up: key lessons/challenges
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Beyond words… approach
Approach… kind of ‘filters’ that can be used to view a project or program.Primary Health Care (PHC) approach had 8 elements; not a single project had them all.CDD approach in the Africa region has five ‘features’ and not a single project has all 5.Framework… a guide to action? e.g. Local Development (LD) Framework, Social Risk Management (SRM) Framework, etc.
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Beyond words… core focus
CDD Approach SFs LG Projects LD Framework
Empower communities
Empower LGs
Align the centre
Capacity building
Accountability
Empower communities
Empower Local Governments
Empowerment
Local Governance
Local service provision
Private sector growth
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Beyond words…empowerment
Information accessParticipation and inclusionAccountabilityLocal organizational capacityPlug these elements whenever empowerment appears in the approaches and frameworks. Are there operational implications?
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Underlying theme…
I have the yam, and I have the knife(an African saying on power relations)
Making community empowerment a cornerstone of decentralization:
keep the yam, give them the knife!
Background materialsFindings no. 233Paper on “Who has the yam, and who has the knife?”
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1. Development Challenges
First generation SFs stimulate/use social capital.
Physical infrastructure is built by communities
Access (health, education, water, etc.) is increased.
Sectoral failures noted (staffing, O&M, technical backstopping, low ownership, etc.).
Little demonstrated evidence of improved outcomes:
New policies (PRSP/MTEF, Decentralization, MDGs, etc.)
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Issues… development challenges
How should SF respond to the MDGs?What impact do MDGs have on sector-led planning and the CDD approach?How does SF respond to Local Government Projects
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Design responses…
Selected MDG indicators for community action(from 8 MDGs, 18 targets, and 48 indicator targets)
Contentious selection of lending instrument. Bank unhappy about APL, Government very keen.
Need to stimulate community savings and investments
(Use of IDA funds for savings mobilization; community’s own resources for lending)
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2. Management & skills structure
Management through components creates silos.
Direct funding takes place even without Local Governments (LGs).
Building on success of development communication is urgent and necessary.
Need to extend community accountability upwards.
Monitoring & Evaluation is slow to evolve.
Sectors are not too keen on direct financing.
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Issues… management
What kind of institution is needed?
Are PMU experiences relevant to Government management systems?
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Design responses…management
Operational requirements (deliverable sub-projects, Fiduciary requirements)External demands (research, training, norms)Internal needs (monitoring, learning)Getting the KISS right (Knowledge & Information Sharing System)
Local Government concerns (staff, grants, etc.)Performance management culture: experience mainly from private sector
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3. Implementation Arrangements
Approval Authority
Implementation and technical
Planning and appraisal
Village Elected Cttees. Extension staff
District Committees of elected LGs
Sector specialists Teams of experts
National Steering Committees
Management Units in Presidents Office
Sector Experts Team/Advisory Committee
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Issues…implementation
How can the roles of District Local Governments be expanded?
Can can issues of technical quality be better dealt with?
How can PMCs be made more accountable to elected Local structures and to communities?
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Design responses…implementation
Delivery benchmarks were developed (CSPC)
Roles of PMCs, LGs, CBOs/CBOs re-defined
Graduation criteria for LGs were defined
Measurement of inputs, outputs, and outcomes
Community to community (C2C) learning
Community Monitoring and Statistics Days, Community Score Cards, Citizens Report Cards, and annual poverty reports introduced.
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4. Institutional Linkages
Resource allocation (to districts) to facilitate predictable planning.Role of Local Government Ministries (with NLGFC, LGAs Administration) strengthenedPlace of NGOs, CBOs, and private sector expanded.Linking with MOF and MoLG over recurrent costs and MTEF (NTAC and SET)Fostering broader partnership (NACCEA)
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Issues…institutional linkages
Can the adoption of indicative district resource allocation formulae retain the CDD approach?Does a SF weaken decentralization or prepare the ground for deepening decentralization?Are PRA tools used in SF more than ‘planning black boxes’ left to LGs?
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Design responses…institutional
Global IPFs done (whole project)
Intra-district resource targeting, NOT allocation, done.
Open-ended PRAs adopted to strengthen district-level planning
Support of communities with extended PRAs
‘Planning black boxes’ still in place, unpacking has started (see Safeguards Toolkit)
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5. Preparation
Human Development sectors (health and education) not fully mobilized.Other key sectors (water & roads) mobilizedGetting MFI expertise on Board (‘clinics’ held).Quality at Entry reviews done inside the Bank, but more looking back and less forward-looking.Strong Government team with outstanding leadership
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Issues…preparation
How would you recruit a multi-sectoral team in a sector-dominated culture (IDA and Borrower)?
How do you respond to strong government ownership (e.g. on MFI issues).
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Design responses… preparation
Strong government team with clear mandates.
Collegial IDA-Borrower team members.
Getting responsive fiduciary expertise.
Integrating safeguards into CSPC.
Cost-effectiveness vs. economic rates of return utilized.
Flexibility retained (e.g. LGSP and LG MIS)
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6. Sustainability
Malawi health sector losing staff: facilities with 30-35% staffing levels.Government revenues are dropping, poverty levels are on the increase in Malawi.Malawi decentralization program moving slowly even by standards of its designers.Spheres and not levels of Government legally recognized in Tanzania (Village, Local Government, and Central)
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Issues… sustainability
Can capacity building be made demand-driven?Are projects a sustainable way to provide resources to poor countries?Can Village Governments be put on equal footing with other levels of government?
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Design responses… sustainability
Need to close service gaps for the poorResponding to the needs of the vulnerable (market- and group-mediated income support)Better linkage between investments and recurrent funding (NTAC and SET)Institutionalized impact monitoring of community investments (NACCEA, the press, and MOF Quarterly PRSP reviews)Single National Village Fund with CE
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7. Wrap-up: key lessons
Social Funds as instruments for community empowerment (for improved governance).Social Funds are not suitable tools to tackle decentralization (fiscal, HRD, fiduciary)A strong government team is an asset, Bank staff need to be responsive.Social Funds need to remain flexible and responsive to new policy/program challenges (e.g. MDGs)
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Lessons cont…
Cross-country learning possible (Malawi to Tanzania, to Uganda, to Malawi, to Tanzania).
Inter-country exchange of experiences useful
Consistency in team membership helps
Bank’s readiness to document and disseminate its learning from implementation experiences
Putting political commitment to good use (avoid danger of project being called ‘politicized’)
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Key challenges… existing SFs
Integration of development communication into general accountability mechanismsKeeping SFs as “Funds” and not turn them into technical agencies.Move from Social Capital for ‘closing service gaps’ to Economic Capital for ‘sustainability’Deal with operational implications of Bank ‘approaches’ and ‘frameworks’?Is the future of SFs in Bank portfolio certain?
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Key challenges… new SFsRing-fencing the most recent tool for SFs:-
Central ministry/LG gets funds for capacity building Dedicated sector funds given to SF
DfID for Improving LivelihoodsIDA in Malawi for Community Land ReformIDA in Tanzania for
Marine and Coastal communitiesForest resource utilizationCommunity AIDS-related treatment in Zanzibar
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SFs give the poor a chance…
To be participants, not spectators,in the alleviation of their own poverty