The New Government contribution is 810,000 Eur (1,003,717 USD). The Unspent resources are approximately 300,000 Eur (371,747 USD). December 2014 exchage rate used 0.807.

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United Nations Development Programme

Country: Montenegro

Project document

Project Title Integrated Information Social Welfare System (ISWIS) PHASE II

UNDAF Outcome(s):

Expected CP Outcome(s):

Goal 1: Montenegro society is progressively free of social exclusion and enjoys a quality of life that allows all individuals and communities to develop their full potential.

Expected Output(s):

Output 1: Decentralized, innovative and pro-beneficiary services provided to vulnerable/socially excluded groups by the reformed SW system.

Implementing Agencies: UNDP

Key Project partners:

Ministry of Labour and Social Welfare, Centres for Social Work, the Social Welfare Institute and institutions under the MLSW's authority.

Agreed by (Government): Predrag Boskovic, Minister of Labour and Social Welfare

Agreed by (UNDP): Miodrag Dragisic, Officer in Charge and Assistant Resident Representative

Brief description

Upon successful implementation of Phase I: Social card – Social Welfare Information System, the decision was made to launch the development of Phase II: Integrated Information Social Welfare System. The functionality will be upgraded and intensive monitoring of the system (when it is put into operation) developed within Phase I will be conducted; IS will be developed for all social welfare institutions under the authority of the MLSW with the following coverage of functionalities: procedure for referral to placement in institutions (centre and institution), social and health protection of beneficiaries, material bookkeeping and warehouse operations and administration/management of placement capacities. The institutions will be connected with centres' IS for the purpose of automated checking of beneficiaries. Additional interoperability functionalities will be introduced (automatic exchange of data), particularly with regard to procedures related to family violence (police, health care, prosecutor's office and judiciary), data exchange between centres and municipal secretariats for social welfare will be improved, referral to social welfare services, property register will be prepared, the portal, etc. and all the aforementioned will be accompanied by intensive development of institutional, technical and human resource related capacities.

Total project resources: 1.2 mil euro

Resources:

UNDP 120,000 Eur (10%)

Gov.of Montenegro: 1,080,000 Eur (90%)

Unfunded budget: _____N/A____

In-kind Contributions _____N/A____

Programme Period: January 1, 2015 – July 1, 2017 Key Result Area (Strategic Plan) – Social Welfare System Reform Atlas Award ID: TBD________ Start date: 1 January 2015 End Date 1 July 2017 LPAC Meeting Date TBD Management Arrangements DIM

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I. SITUATION ANALYSIS

Since the restoration of its independence until today, Montenegro has achieved a significant progress in the EU-NATO integration process as well as in the number of areas. On the other hand, due to the global economic crisis, the period of economic boom 2006-2009 was followed by a stagnation that the country has managed to overcome, showing signs of stabilisation and recovery from the recession. These trends and downturn in economic activities reflected also in the poverty and social inequality indicators. The economic crisis caused a decline of economic activity which led to an increase in the number of people living below the poverty line. Thus, according to the analyses of poverty in Montenegro for 2007 and 2008, the poverty rate in Montenegro was reduced in the period 2006-2008 for 6.4%, i.e. from 11.3% of population who lived under the poverty line in 2006 to 4.9% in 2008, only to increase in 2011 to 9.3% and to 11.3 in 2012.1

Although we can observe an increase in the nominal amounts, the total allocations from the budget for social welfare in the period 2000 – 2012 were actually reduced at one point, primarily due to introduction of more restrictive criteria for awarding child allowances. However, allocations for other types of social benefits increased in the same period: for MOP (family allowance) - from 0.43% to 0.54%, allowance for third-party support and assistance - from 0.12% to 0.28%, and allowances war veterans and persons with disabilities from 0.23% to 0.27% of GDP. From the short-term perspective, despite the effects caused by the crisis, budget constraints and need for savings, there was no significant decrease in allocations for social welfare entitlements. Also, it is important to underscore that payments of entitlements from these areas are a priority and that they are regular. Although increasing in the nominal amounts, relative budget allocations for social welfare actually decreased in the period 2000 to 2011, from 1.89% of GDP in 2000 to 1.19% in 2011. However, the following social benefits increased: for MOP from 0.43% to 0.48%, allowance for third-party support and assistance from 0.12% to 0.23%, and allowances for war veterans and persons with disabilities from 0.23% to 0.30% of GDP2.

The Montenegrin social welfare system is very complex and reaches far beyond social benefits. The new Law on Social and Child Protection (Official Gazette of Montenegro 27/13), the Strategy for the Development of the Social and Child Protection System 2013-2017 and other sector-related policies have set foundations for further system reforms. Upon the adoption of the new Law and the Rulebook on organisation, norms, standards and method of work of Centres for Social Work (Official Gazette of Montenegro 58/2013), new centres' statutes were adopted, and reorganisation of the Centres for Social Work (CSW) is in the final stage. There are eleven CSWs under the MLSW's authority, seven of which cover the territory of other municipalities with regional units (RU). The centres are well distributed territorially, but personnel structure is inadequate for tasks vested in the centres. The new Rulebook on organisation and job description is being drafted, and currently the centres employ 290 employees, out of whom 55.9% are experts and 44.1% are administrative and technical staff, i.e. there is an insufficient number of experts while the staff performing administrative and technical tasks is overrepresented, and consequently one CSW expert covers 3.827 citizens on average. It is important to emphasize that, with the phase I, technical and IT capacities of the centres were raised to a significantly higher level within a short period of time, and it is expected that in the forthcoming period, once all system functionalities are fully operational, these capacities will be at the optimal level.

In addition to SWCs, institutions of social welfare are also under the authority of theMLSW: PI Children's Home "Mladost“ Bijela, Herceg Novi; PI Old Age Home Grabovac Risan, Kotor; PI Old Age Home, Bijelo Polje; PI Institute "Komanski most”, Podgorica, PI "Lovćen-Bečići“, Cetinje; Centre "Ljubović“, Podgorica, as well as the newly established Social Welfare Bureau. A comprehensive analysis of capacities of these institutions has not been conducted, while a set of by-laws/rulebooks are being drafted to define more detailed criteria for using services, as well as norms and minimum standards for placements of beneficiaries (children and young people, adult and old people...) in institutions and other forms of placement. The analysis of work processes in institutions, conducted for the purpose of this Project document, has shown the following: operational issues that institutions have to deal with are quite similar, but institutions differ by institutional and organisational arrangements as well as by the level of their capacity. Due to the lack of information

1 Poverty Analysis, MONSTAT. 2 Social welfare system reform: cost analysis of entitlements to basic social benefits in Montenegro and selected countries in the region in in EU, UNDP, 2013.

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systems, operations are mainly conducted in paper form, with exception of bookkeeping in couple of institutions.

Placement is a service that includes a stay of a beneficiary: in family placement - foster care, family placement, in an institution, shelter and in other types of placements. There are two institutions for placement of children and young people in the social welfare system of Montenegro, one institution for placement of persons with mental disability, two institutions for placement of the elderly, one institution for leisure and recreation of children and nine centres for children with developmental challenges. In addition to the aforementioned, a number of beneficiaries are referred for placement into institutions in Serbia and Bosnia and Herzegovina. There were 145 children in institutions for placement of children and young people in December 2012, 359 persons stayed in old age homes in 2012, and cost of their placement amounted to EUR 1,019,846.42. There were 397 beneficiaries in family placement and family placement-foster care in 2012, and MLSW allocated 1.44 million EUR for this service.

As for average, annual spending per beneficiary that institutions are refunded by the MLSW, the cost of placement in the Children's Home "Mladost“ in Bijela was EUR 2,723 per year, while the cost of placement in the institution "Komanski most“ was EUR 1,780 in 2012. The biggest costs of placement per beneficiary are costs for beneficiaries placed in institutions in Serbia, and they were EUR 3,292 per year in 2012. As for placement of elderly persons, the costs of their placement in 2012 were slightly less than EUR 430,000 per year, and most of the elderly persons are placed in the Old Age Home "Grabovac“ in Risan. Average annual cost of placement per beneficiary in this institution is EUR 1,065. Average number of beneficiaries in day care centres was 99 in 2012, and overall costs for the MLSW were EUR 160,050.3

According to the available data, there are 349 social welfare services provided at the local level in Montenegro, and they are provided by 172 providers for 27,456 beneficiaries, which means that the ratio of the number of providers to the number of beneficiaries is 1:78. If we compare total number of services and total number of providers, then every provider provides two services on average. However, since one type of service includes several subtypes, in many cases one provider provides more than two services. With regard to types of services, the most represented ones are social and educative ones as well as counselling and therapeutic services (230 services), then services involving support to living in community (111 services) and, finally, placement services (8 in total). Out of 174 service providers in total, most are nongovernmental organisations, 142 of them providing 303 services, then there are 17 local red Cross organisations providing 29 services and 15 public institutions providing 17 services. Social welfare services are aimed at the following primary target groups: children, persons with disabilities, young persons, drug users, victims of violence, elderly persons, members of LGBT community, sexual workers, Roma and Egyptians, as well as single parents and families at risk.4 Standards are currently being drafted for most of these services, which although apparently numerous are often unsustainable as they are mostly funded from donations.

II. STRATEGY

1. The purpose of implementing the Integrated Social Welfare Information System (ISWIS)

Pursuant to the Law on Social and Child Protection (Official Gazette of Montenegro 27/2013), social welfare is an activity that ensures and implements measures and programmes targeting an individual and a family living in unfavourable personal or family circumstances and they include prevention, assistance in meeting basic living needs and support. The mechanisms for providing support and protection to categories of population laid down by this law (Article 4) are determined by institutional capacity of the primary provider of these services – Centres for Social Work (SCW) and institutions under the authority of the MLSW.

The following aspects are particularly important from the perspective of social benefits:

(i) Targeting,

(ii) Fairness and adequacy of social benefits, and

3 Source: Ministry of Labour and Social Welfare, 2013. 4 Social and child protection system reform: cost analysis of entitlements to basic social benefits in Montenegro and selected countries in the region in in EU, UNDP, 2013.

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(iii) Improved monitoring of demand for social benefits to meet the needs of new poor and vulnerable groups whose poverty may be only temporary (as a result of the crisis effect).

All these principles require an efficient and effective way for managing information in the social welfare system – which was established through the first phase of the Social Card Project - the Social Welfare Information System (SWIS). The system enabled significant improvement of the overall social welfare system in Montenegro and creation of unique "social card“ for citizens, i.e. families included in the social welfare programmes. The SWIS allows exchange of information not only among the centres for social work, the Ministry and the Social Welfare Bureau, but through interoperability also among nine system institutions with which the SWIS has an automatic exchange of data necessary to identify property and income status of an individual, i.e. a family, as well as other data necessary to exercise the right to social benefits.

However, this Project is much more than exchange of information among the relevant system institutions. The goal is not only to create technical conditions for electronic exchange of data between institutions, but also to improve the reforms of the entire social welfare system, ensure more efficient and more effective payment and provision of social welfare services and, gradually it will support the overall work process and social policy making. In addition to the ISWIS development, which supports most of the work processes at centres and allows creation of unique "social card" for citizens included in social welfare programmes, this Project has also included development of secondary legislation, it has contributed to the institutional reform of centres, as well as to development of technical and human resource capacities.

We have the following system coverage in the Phase II:

Component 1. Monitoring and further development of PHASE I

1. Performance monitoring and support to maintain full functionality of Phase I.

2. Further upgrade of the information system in the Centres for Social Work (CSW): request processing and referral to institutions (old age homes, Institute "Komanski most“, etc.), services of support to living in community (day care centres, assistance at home, living with assistance...), etc.

3. Enlargement of the CSW system: guardianship, foster care, counselling and therapeutic services; further upgrade of the management module, etc. Automation of documentation exchange with the MLSW's social and medical commission.

4. Property register or a sub-system for managing immovable of CSWs property under the life-time maintenance contract.

5. Portal for interaction with organisations and citizens - an overview and search of publicly available documents and reports, statistics, etc.

6. Development of indicators for monitoring performance of CSWs and reporting. Improvement of statistical and analytical activities of the social welfare system.

Component 2. Institutions – Development of the Integrated Social Welfare Information System

1. Development of information systems for social welfare institutions: PI old age homes (2), PI Children's Home "Mladost“ Bijela, PI Institute "Komanski most“, PI Centre „Ljubović“ and PI for Leisure and Recreation of Children "Lovćen-Bečići“.

2. Development of a module for data/information exchange between CSWs, MLSW and institutions, community services and local government.

Component 3. Interoperability

1. Interoperability of the centres with the Police Administration, prosecutor's office, courts and health care – for processing family violence cases.

2. Connecting CSWs with the Police Administration, prosecutor's office, courts and PI Centre "Ljubović“ for procedures against juveniles in conflict with the law.

3. Interoperability of the centres with the health care's information system (chosen doctor; Public Health Institute (Register of persons with disability; development of national social and health determinants) and with the Ministry of Education. Legal basis, training, production of instructions and implementation of Information Exchange Protocol (proposed Law on E-government).

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4. Connecting the Employment Agency (two-way connection) with the Centres for Social Work - work related activation of working age beneficiaries of MOP.

5. Connecting social welfare inspection to the ISWIS.

6. Connecting local administrations to the ISWIS on matters such as social protection, war veteran and disability protection, etc.

Component 4. Capacity Building

In addition to upgrade of information and telecommunication infrastructure and provision of hardware and networks, Phase II also includes a training programme: ECDL, accredited professional trainings and trainings for software application. The activities concerning CSWs will continue: support to institutional building of managerial, human resource, professional, etc. capacities of the Centres for Social Work; further development of human resource capacities: internal survey on satisfaction with job, relations (internal and with beneficiaries), management, etc. A plan for improvement of human resource and managerial capacities will be produced based on survey results. Trainings will also be organised on operational and strategic planning and management, communication skills; trainings for those who get employed in the meantime. Capacity building of the IT and Analytics Department within the MLSW will also be monitored.

As for institutions, a study of capacities and development plans of social welfare institutions will be produced, legal framework will be analyzed, i.e. an analysis of procedures set by secondary legislation (rulebooks, forms, instructions, etc.) that are a basis for information system development and improvement of institutional capacities will be conducted. A training curriculum will be drafted and trainings will be organised together with the Institute for service providers, in accordance with new standards/rulebooks. New technical manual for using standards will be prepared, as well as indicators for monitoring performance of institutions and service providers and for reporting. Monitoring and evaluation will be carried out for all the above mentioned activities.

Thus, the functional ISWIS will:

(i) Improve institutional environment and all work/operational processes in social welfare institutions, connect them through IT with CSWs, ensure implementation of the new law, strategies and secondary legislation and thus accomplish the ultimate goal: increase the standard and quality of services for beneficiaries.

(ii) Relieve experts from administrative part of their job and reduce administrative costs, as well as difficulties and costs applicants are exposed to both in the procedure at the Centres for Social Work and when being placed in institutions. Elimination of non-eligible requests will be easier, and a better insight into beneficiary's situation will be possible. We will have an overview of beneficiaries receiving one or several social benefits and receiving one of the services in a community or at an institution at the same time, which is a precondition for setting up the procedure for participation of beneficiaries in costs of using services. This will also provide fiscal space for expansion of coverage or possible increase of the social benefit amount, which ultimately means that the funds will be better targeted to those who need help the most.

(iii) Ensure significantly better planning of overall resources for social welfare, for identification of categories of beneficiaries and for programme and project based planning, as well as for national social welfare system itself, i.e. for individual institutions, local governments and service providers at the local level. The system will also allow better monitoring of funds spent, in total amount as well as overviews at the level of individual benefits and services, by beneficiaries and categories, and monitoring, reporting and evaluation of effects of benefits and services.

(iv) Restore and increase credibility of the social welfare system. This is important from the public information aspect, but also from the perspective of using EU pre-accession funds. The ISWIS allows that EU and interested parties invest with confidence in projects aimed at development of the social welfare system, knowing that the funds will be channelled to individuals and families with unfavourable personal or family circumstances, exactly through the Government's social welfare mechanisms.

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2. Description of the ISWIS

Integrated Social Welfare Information System (SWIS) in Montenegro is the electronic version of the social card of citizens which will support operational processes in the social welfare system and ensure precise insight into personal and other data of beneficiaries necessary for accessing the social welfare programmes and for checking beneficiaries during programme implementation. Further development of the ISWIS is aimed at setting up new functionalities for the Centres for Social Work and MLSW and at designing completely new software components intended for ‘informatisation’ of operational processes in social welfare institutions, as well as for processes of information exchange between centres and institutions.

Conceptually speaking, the ISWIS ensures support to the operation of the social welfare system on three essential levels:

a) Support to daily operational processes

The Integrated Social Welfare Information System (ISWIS) will facilitate efficient and effective planning and implementation of social welfare programmes. The system will, first of all, support operational processes in the social welfare system, starting from an expert's workplace, through operational processes in institutions and all the way to strategic decision making and policy management at the Ministry of Labour and Social Welfare (MLSW). The value of ISWIS will result from its use in the implementation of the social welfare reform which will consolidate the key existing programmes, ensure social benefits for the poorest households and ensure harmonisation with the EU practice in the field of social welfare. The ISWIS will be an instrument to be used for targeted guiding, provision, monitoring and control of the support to households and individuals eligible for getting such support. It is important to emphasize that ISWIS will serve the interests of the public by expediting the daily operations of the social welfare system.

The "support to the operational processes in the social welfare system“ means computerization and automation of the daily work processes in the social welfare system, like collection and processing of applications, generation of a social card with the view to establish whether a person is eligible for social welfare, monitoring of implementation (social benefits and services), statistical reporting, planning, etc. The processing and "collection“ of data can be done either manually or automatically. Clearly, wherever it is possible, the new social welfare information system – ISWIS will base its work on connecting to the already existing information systems in such a way that the social status of a person is generated through the analysis of the data from the ISWIS and also through "gathering“ of data from data bases of other institutions, thus forming the so called "electronic social card“.

The ISWIS will also enable support to operational processes in social welfare institutions related to several segments of their work, and primarily with regard to management of records of social welfare beneficiaries, as well as records on services provided in institutions. This will be carried out by using input parameters of operational processes in institutions as output parameters of operational processes in the Centres, which will contribute to improved quality of BENEFICIARY data. The information system will allow scanning and saving of documentation in the electronic form in the central database, too. Accessibility of documents would provide the MLSW with a better insight into the work of institutions, greater transparency of their work would also be accomplished, as well as full consistency in work, because the compliance with operational processes will be required by ISWIS itself.

b) Reporting and formation of an individual "social card'

The system will facilitate automated reporting on the implementation of social welfare, by groups, by different criteria, but also individually through presentation of the situation and by providing detailed information on individual beneficiaries of social benefits or social welfare services (social card).

The system will enable reporting which will improve planning of the overall resources for the sector, for individual programmes and for individual groups of beneficiaries. Reporting from the system will support more precise targeting of groups of users. Group and individual reports on the spent funds will improve monitoring and control (auditing). The system will ensure different overviews for monitoring and evaluation of effects that specific and targeted programmes have on an individual or family living in unfavourable personal or family circumstances.

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c) Technological networking

The core of ISWIS is the Ministry of Labour and Social Welfare (MLSW), or to be more precise, its IT and Analytics Department, with its central data base and data centre for ISWIS applications. The ISWIS application is a web application which significantly reduces the necessary investment on the side of end users, while the data centre of the MLSW will provide the necessary platform for connections to the similar information systems in connected institutions. Functionalities from Phase II need to be developed in that context as well, bearing in mind that all software components should be technologically compatible with existing components, which will allow maximum utilisation of existing software and network infrastructure developed in Phase I. Primary users of Phase II are certainly social welfare institutions, but given the intended integrity of the system indirect users of new functionalities also include Centres for Social Work, the MLSW, as well as other institutions from the social welfare system in Montenegro. The system should also cover beneficiaries of social welfare services. For example, a person with disabilities may have a personal assistant (as a service of support to living in community) and receive a personal disability allowance and allowance for third-party support and assistance at the same time. Finally, particular attention will be paid to definition of roles and duties of public administration bodies and stakeholders at the local level (social welfare secretariats and municipalities), which will undoubtedly affect the final architecture of the Integrated Social Welfare Information System (ISWIS).

The SWIS set in this way will enable interconnection, exchange and consolidation of data between the MLSW and other participants, as well as harmonisation of work of all stakeholders (institutions) involved in the process of exercising social welfare rights in Montenegro. The system will enable automatic or semi-automatic exchange of data between institutions, which will relieve the beneficiaries of the obligation to collect documents to prove some status or something similar. In this respect, the system will also facilitate periodical verifications of decisions that were already made. The semi-automatic or automatic operation of the system of data exchange between institutions will, namely, relieve the beneficiary of the legal requirement to collect evidence periodically (quarterly, semi-annually...) since the system will collect the information on the changes in data from the relevant institutions, ensuring thus the automatic initiation or interruption of payments. For example, by collecting the data from the Employment Agency, the ISWIS can register that a MOP beneficiary got an employment and automatically stop the payment of MOP.

Finally, some of the most important advantages of the ISWIS established in this way include:

(i) Improved targeting of the funds and reduction in the costs of social benefits (fairness and efficiency),

(ii) Reduction of system administration costs,

(iii) Improved security and accessibility of the data in the social welfare system,

(iv) Provision of data relevant for managing the social welfare system and developing social welfare policies,

(v) Improved quality of services for citizens, particularly for categories of population that are at risk or vulnerable.

2.1 An overview of implemented IT components of Phase I of ISWIS development

The basic goal of the project "Social Card - Social Welfare Information System", which was implemented as Phase I of the Integrated Social Welfare Information System (ISWIS), was to develop the Social Welfare Information System (SWIS) that should support majority of operational processes in the Centres for Social Work and MLSW, as well as to connect it to the information systems of relevant institutions for automatic exchange of data, i.e. to provide a basis for improvement of efficiency and effectiveness of social measures and benefits and higher level and quality of services. All activities planned under Phase I were implemented. Today, we have a modern information system in the Centres for Social Work and MLSW that is capable of:

- Making it significantly easier for beneficiaries to exercise their right to social welfare, - Making operational processes easier and standardised for the Centres and the Ministry.

The following processes have been fully computerized with completion of Phase I:

o The right to basic social benefits in the field of social protection

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Basic social benefits in the field of social protection

Family allowance (MO);

Personal disability allowance (LI);

Allowance for third-party care and assistance;

Health care;

Funeral costs;

One-off support in money. Social benefits in the field of child protection

Newborn allowance;

Child allowance (DD);

Food expenses in pre-school institutions;

Support for education of children and young persons with special

educational needs;

Refund of salary compensation and salary compensation for parental

leave;

Refund of salary compensation and salary compensation for for part-

time employment.

Travel allowances for persons with disabilities. o Cases related to services in the field social and child protection

o General mail

o Other

In addition to development of software components, a system platform has been fully set up and it includes:

- Server environment consisting of a necessary server, storage system, necessary active network, networking equipment and system security;

- System platforms in the Centres consisting of new computers, printers and scanners, while the existing IT equipment was integrated in the system;

- Setting up local computer networks in the Centres; - Interconnection between all centres, MLSW and established ISWIS Data Centre, which is located in

the Data Centre of the Government of Montenegro, i.e. Ministry for Information Society and telecommunications.

All IT components developed in Phase I will be used to upgrade the system, and particularly the system platform, as well as some software components that can be used for functionalities under Phase II.

3. Project components

Having in mind the activities implemented so far, and for the purpose of implementing the Integrated Social Welfare Information System - ISWIS, the Project is organized in the following components:

1. System design and conceptualisation.

2. Interoperability framework and inter-institutional connection.

3. Development and implementation of ISWIS applications and interconnection modules.

4. Capacity building.

5. Project management.

Given the relatively short deadlines for the overall Project implementation, we have to emphasize that these components largely overlap in their implementation and that the Project will use to the maximum extent the activities that have been completed so far, as well as the relevant technical documentation.

3.1 System design and conceptualisation

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Design and conceptualisation of the system covers all the activities related to definition of the basic concept of the "Phase II of the Social Welfare Information System“ and the design and specifications of the system that are to be implemented. The system will be designed in a comprehensive way and the plan will be made for its development in the next 2 years. Development in the first stage (1 year) will be planned in more details, which will be implemented through this project.

This component of the project will precisely define the functional requirements of the ISWIS Phase II. In this process we should start from the following functions of the system:

- Social welfare - General, included in Phase II of the project

- Case/beneficiary management application

This a basic software component that needs to be available in a very similar way to all social welfare institutions, i.e. all institutions to be covered by Phase II. Currently, in almost all institutions records on beneficiaries are in kept in paper and handwriting, in a form of a register. The initial analysis has shown that a significant part of operational process "case management", in the Centres where information system was already introduced in Phase I, can be used for development and implementation of this application.

- Application for beneficiary health care management

Given the particularities of beneficiaries in all institutions, this is one of highly important system components. Currently, data on beneficiary health care in all institutions are recorded manually in paper records. There is no possibility for a quick overview of used medical materials and medicines or of medical services, provided within an institution or with support of health professionals from health institutions of Montenegro.

- Operational Information System

Operational Information System (PIS) is a set of applicative mutually integrated modules that cover all operational processes within an enterprise. These systems are also often called ERP (Enterprise Resource Planning) systems, and they represent a basis for monitoring operations of any legal entity or project. All components of this subsystem will be closely mutually integrated, as well as with other components of the system that are to be used by institutions in order to meet the precondition that one piece of data is entered only in one place in the system and used by all system components where needed.

Admission form Findings and opinions of experts Individual plan Beneficiary monitoring list Discharge form

Possibility to record provided health care services in beneficiary's file within the institution.

Possibility to manage procurement and distribution of medicines and medical materials. Management of central pharmacy at the level of an institution and departmental pharmacies within institution.

Possibility to keep records of used medicines and medical tools for each beneficiary (periodical therapy plan for chronic diseases), as well as automatic entry of these data into beneficiary's file within the institution.

Possibility to plan procurement of medical materials based on the report generated from the system.

Human Resource management - HR Finance management Calculation of salaries Fixed assets management Material bookkeeping Contract monitoring Report

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- Management of placement capacities

Placement capacities are one of the most restrictive categories in operations of social welfare institutions. Given the large fluctuation in some institutions, placement capacity planning and management is a big challenge. Currently, placement capacity management in all institutions is performed manually in paper form, by using admission logs.

- General system functionalities

The system will certainly have some general functionalities that can be taken over from components produced in Phase I or, depending on the results of the analysis, new components could be implemented.

- Integration

It has already been defined that one of the key goals of further ISWIS development is full integration of all its components. Regardless of obvious differences in case management approaches at the primary level, in the CSWs, and at the secondary level, in an institution, it is necessary to ensure full integration and use of common data.

Definition of placement capacities by the smallest placement unit - bed. Grouping of placement units into rooms, pavilions, etc. Categorisation of placement units, rooms, pavilions, etc. Coupling placement units with a specific beneficiary directly on the admission form. Individual and group reservations of placement units. Control of materials by place of use (connection with material operations module).

Reports on provided services. Acceptance and scanning of supporting documentation. Reporting from database and checks. Automatic exchange of data and documents with external systems (those that are technologically ready for that in the course of the Project). Reporting on individual situation of social welfare beneficiary (social card). Determination of eligibility for receiving social benefits. Monitoring of provision of social welfare services. Recertification. Reporting based on various criteria (individual, group, by institutions, by programmes, geographically, ...) Performance monitoring. Supervision and checks.

Connecting operational processes of the Centres for Social Work that were set up in Phase I with operational processes to be set up in Phase II.

"Supplement" beneficiary's social card with relevant data generated in institutions.

The process of defining coverage of Phase II should start from potential functions as well as from specification of institutions to be included in the ISWIS expansion through Phase II and general functionalities to be implemented in those institutions:

Potential Phase II functions General, included in Phase II of the project

1. Information system for the following institutions:

o PI Children's Home “Mladost” Bijela

o PI Old Age Home (Risan and Bijelo Polje)

Currently, there are two old age homes, although

1. Case management application;

2. Application for managing beneficiary health care;

3. Operational Information System;

4. Management of placement capacities;

5. Integration;

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the system needs to provide a possibility of simple integration of new similar institutions.

o PI Institute “Komanski most”

o PI Centre “Ljubović”

o JU ”Lovćen-Bečići”

2. Information system for institutions that are not under the direct authority of the MLSW:

o PI for Placement, Rehabilitation and Re-socialisation of Drug Users -Podgorica (under the authority of the Capital City),

o Special hospital Dobrota, Kotor

o Resource Centre for Hearing and Speech - Kotor "Dr. Peruta Ivanović" (Ministry of Education)

o PI Resource Centre fo Children and Young Persons "Podgorica" - Podgorica (Ministry of Education)

o PI Resource Centre for Children and Persons with Intellectual Disabilities and Autism "1.jun" - Podgorica (Ministry of Education)

3. Information systems for day care centres, shelters and other services for support to living in community that are fully or partially funded from public sources.

4. Development of the information system for the Social Welfare Inspection.

5. Expansion of interoperability based on an analysis of needs and possibilities.

6. General functionalities of the system;

7. Interoperability.

Along with the implementation of the system design and specifications, this component of the project should also include an overall assessment of current work processes, as well as an evaluation of organisational and structural changes that are to be made with introduction of the ISWIS in the administrative flow of activities. Work processes should then be changed in line with the assessment and evaluation. The important thing is to improve the work processes and to achieve better integration of administration of benefits and services. This should turn into the simple "computerization“ of the processes as they are now. Therefore, the list of functions and covered activities, given in the above tables, should be considered as a general one and only as the beginning of the analysis. This component of the project should start from the ideas provided in this document and it should precisely define the functions and the coverage of the system in such a way that the conceptual vision of Phase II is comprehensive and ambitious but that it is realistic to implement.

With the view to achieving clear and comprehensive design of the future system, we need to make an analysis of policy, guidelines, standards and administrative provisions related to the implementation of the ISWIS and develop and introduce new system procedures and standards5. In that context, conceptual design of the system solutions should be developed in such a way that, along with the implementation of the ISWIS Phase II application solutions, it also ensures introduction of appropriate standards related to the adequate implementation of the new information system, as well as introduction of all regulations and guidelines

5

12

needed for smooth application of the entire ISWIS and, finally, necessary inter-institutional cooperation. Clearly, the new components of the information system usually bring with them the requirements to restructure the existing work processes, so we could expect that a number of internal documents related to the operational activities of the MLSW, CSWs and social welfare institutions will be changed.

The following activities are planned in this regard:

- Analysis of work processes and information demands; - Analysis and development of internal rules and introduction of changes; - Definition of the framework for restructuring work processes; - Analysis and specification of the functional requirements of the ISWIS for institutions as well as for

internal exchange of data between the MLSW, CSWs and institutions; - Specification of the non-functional requirements of the ISWIS Phase II; - Technical design and specification of the ISWIS system Phase II; System design, conceptualisation and planning will result in the following products: - System study – Conceptual development plan and implementation of the ISWIS Phase II, which will

be presented to the Government and adopted as the foundation for further development. The system study will contain a clear specification of functions and coverage of the system, as well as the division of development into two stages of two years each;

- Analysis and identification of key partners in the project implementation; - The analysis and changes in the relevant work processes, particularly work processes related to the

flow of information, structure and course of management and decision making, exchange of data and storing of data and communication;

- Defined policy of internal information systems, defined standards and guidelines, as well as all the necessary supporting documents/regulations;

- Technical specifications for the application software for implementation of the ISWIS Phase II (including the subsystem for automatic exchange of data with external systems);

- Technical specifications for the system platform (computer equipment, system software, local computer networks and global computer network);

In the process of system conceptualisation, in addition to the primary analytical work, we will also use documents already generated in the implementation of the social card through Phase I. That work has resulted in successful implementation of all application modules included in the Phase I, but it has also generated a number of useful and applicable documents.

In the process of system conceptualisation, we need to take into account the systems that are already used, or that are already being developed, such as:

- ISWIS software components developed under Phase I; - Different smaller systems developed independently by social and child protection institutions;

In that sense, attention should be paid to:

o The current state and migration of data from the existing systems; o Logics and knowledge built into the existing systems;

3.2 Expansion of interoperability framework and inter-institutional connection

"Interoperability" can be defined as a set of standards, recommendations and guidelines describing a method/conditions that organisations have agreed on, or should agree on, how to communicate with each other and how they should be used in practice. The Interoperability Platform is not final, i.e. it is not a static document, and will have to be adapted in time, as technologies, standards, operational and administrative conditions change.

There are some principles that all interoperability platforms are based on:

• Accessibility - there is a need to ensure that equal possibilities for all are created through open, inclusive electronic publicly available services. Generally accepted principles for interface design should be applied to ensure access for persons with disabilities and provide services in the official language.

• Security - reliable data exchange has to take place in line with defined security policy. From the perspective of a beneficiary, functions related to security: authorisation, authentication, non-repudiation and

13

confidentiality need to have a maximum level of transparency, which includes/implies minimum effort to ensure agreed level of security;

• Privacy - exchange of data must to be in accordance with national legislation on personal data protection. Also, exchange of data must be in line with existing European and national regulations on protection of national data;

• Use of open standards - use of publicly available and applicable standards can increase compatibility of different hardware and software components of the system.

Observance of aforementioned principles for both existing and planned communications from and towards the ISWIS should be ensured in Phase II. In this phase, special attention should be paid to the expansion of capacities and quality of data exchange, arising from real needs of operational processes within the ISWIS as well as from actual ability of the other side to provide them.

Interoperability is often, and without reason, identified with web services and automatic exchange of data, as if there is no interoperability without web services. Web services and automatic exchange of data are only a part of an interoperability platform. The definition of a platform implies a wide range of possibilities for data exchange between two institutions: mail, portal, database, report, web services, etc. and all for the purpose of improving quality of data and decisions that are made based on those data.

In Phase II, the platform for data exchange should be developed according to the following items:

1. Collection and processing of information related to family violence - Provide adequate platform for receiving and processing: family violence reports (Ministry of Interior and Emergency Room), information on measures taken, occasional visits (Ministry of Interior and the Court), etc., supporting information if children are victims of family violence (Ministry of Education).

2. Connecting centres with municipal secretariats/services involved in social protection - There are secretariats-services within local administrations involved in social protection: day care centres, one-off support, war veteran protection, etc. Exchange of information on a monthly basis would significantly improve the quality of information on persons or social protection measures applied in cooperation with local administrations.

3.3 Development and implementation of the ISWIS applications in Phase II and interconnection modules

Development component of the Project and implementation of the ISWIS application in Phase II and accompanying interconnection modules represents a central component of the overall Project and will result in a fully established and functional, comprehensive social welfare information system in Montenegro. In this context, the previously prepared conceptual plan for the development and implementation of the ISWIS Phase II, as well as technical specifications for the application software that will be used for implementation of the ISWIS Phase II, then technical specification for interfaces to other institutions and accompanying system platforms, will be a basis that the project team will use for analysis, tendering and selection of best bidders/partners for creating ISWIS applications from Phase II and other system components.

Taking all the above mentioned into account, the ISWIS Phase II will be implemented through three key segments:

A. New application modules.

Implementation of new ISWIS application modules with functions and coverage as defined under item 3.1 (System Design and Conceptualisation).

B. Interconnection modules

Automatic and semi-automatic system for data exchange and verification between databases of new institutions as defined under item 3.2. Institutions involved in the implementation of “electronic social card” need to adjust their information systems in order to apply modules which will enable effective exchange of information, and task of this Project is to provide them with necessary technical, professional and financial support in implementation of these interconnected modules. These modules are connected with the data exchange subsystem, which is part of the ISWIS core already developed under Phase I.

C. System platform

For the purpose of full implementation of the ISWIS Phase II it is necessary to provide technical infrastructure at central locations and in the social welfare institutions. This includes a system platform at the central

14

location in the MLSW, then local system platforms as well as necessary communication infrastructure in the institutions.

What is already known is that the central ISWIS location is in the Data Centre of the Government of Montenegro, which is managed by the Ministry for Information Society and Telecommunications. The selected bidder or several bidders, under the supervision of the Project Team, will prepare software for the ISWIS applications from Phase II and then carry out implementation and testing of the entire ISWIS as well as all interconnection modules. Since the ISWIS is a web application, no special investments are needed when it comes to end-users, except for the provision of necessary system platform for the ISWIS to operate or, in cases where it is necessary, provision of a local system platform and necessary communication infrastructure in institutions. Also, as an integral part of the ISWIS implementation activities, all professional staff employed at institutions, MLSW and CSWs will be trained. The training will be organised by system modules, but in two time-separated cycles.

The following activities are planned in this context:

- Preparation of tender documentation for the ISWIS Phase II (which includes a subsystem for automated data exchange with external systems);

- Preparation of tender documentation for individual interconnection modules in external systems (or specification for direct contracting, on a case by case basis - some modules will have to be developed as an upgrade to the existing software solutions in some institutions, in which case the tender does not make sense because the intervention must be done by the supplier of that particular software);

- Analysis of necessary investments and preparation of technical documentation for the system platform in the MLSW;

- Analysis of the necessary investments and preparation of technical documentation for the system platform in social welfare institutions;

- Preparation of tender documentation for the system platform; - Supervision, control and testing during the ISWIS Phase II development; - Supervision, control and testing of implementation of services and the system platform in the

MLSW and institutions; - Supervision, control and testing during the ISWIS implementation in the MLSW; - The ISWIS roll-out in all institutions and SWCs; - Roll-out of interconnection modules in connected institutions; - The ISWIS-based training for the staff in institutions; - Final testing and technical acceptance of the ISWIS Phase;

Results of this project component are: - Consistent system platform at the level of all key participants of the ISWIS is established; - Comprehensive ISWIS implemented in accordance with the above description, and detailed technical

specification of the system adopted; - Upgrade of information systems in connected institutions is completed, and data exchange though

the ISWIS is enabled; - Training of the staff to use the comprehensive ISWIS is completed.

3.4 Capacity building

In order to implement comprehensive legislative, institutional and organisational changes and overall processes in the social sector, it is necessary to take reform-oriented actions, as well as conduct additional specialist trainings of the staff in institutions and CSWs. This component should enable implementation of reforms and better use of the ISWIS. In this context it is necessary to organise training of civil servants in the MLSW and managers of institutions on system administration and management, and comprehensive professional and IT trainings for the staff working in institutions and CSWs. The overall result of this component will be developed internal capacities in both the MLSW, institutions and SWCs, as well as system capacities for proper use, maintenance and further development of the ISWIS as a platform for the entire social welfare system in Montenegro.

Targeted beneficiaries of the training are:

- Middle level decision makers and civil servants in the MLSW and the Institute;

15

- Staff of the IT and Analytics Department at the MLSW and key users from institutions and CSWs;

- Staff of the MLSW and the Institute involved in social welfare activities;

- All professional staff in institutions and SWCs (about 162 employees);

- Relevant administrative staff in institutions and SWCs.

Within this component of the Project a comprehensive assessment of training needs will be conducted (Training Needs Assessment) that will be the basis for the preparation of a detailed and customized training plan. The training program must include the aspect of computer literacy (ECDL or similar programme), and the use of the ISWIS itself. In order to have more comprehensive reform of the entire welfare system, there is a possibility to organise a study trip to acquaint stakeholders with best practices in the EU and the region, as well as with methods and software that enable more efficient and more effective work of this segment of public administration.

In addition to IT, specialized and management trainings, capacity building will also include the design, planning and implementation of organisational changes in institutions and CSWs in order to provide ongoing support to functioning, maintenance and further development of the ISWIS. Work and development of organisation and capacities of the IT and Analytics Department of the MLSW will also be monitored. The analysis of this Department's human and other resources will be updated when necessary, to ensure that the Department can support the above mentioned functions.

ECDL, accredited specialized trainings, will be organised, as well as trainings for application software. Further support will be provided to institutional development of management, personnel, expert, etc. capacities of the CSWs. Furthermore, with regard to personnel capacities, an internal survey may be conducted on the topic of satisfaction with job, relations (internal and with beneficiaries), management, etc. A plan for enhancement of personnel and managerial capacities can be produced and implemented based on this survey. Trainings on operational planning and management, communications skills will be organised, as well as trainings for those who get employed in the meantime.

With regard to institutions, a study of capacities and development plans of social welfare institutions will be produced. Some activities will also cover the regulatory legal framework: adaptation, analysis of procedures set by secondary legislation that is a basis for introduction of the information system and enhancement of institutional capacities of institutions. A training plan/curriculum will be developed. A tender will be announced and a consultant will be hired, who will conduct the trainings. Trainings for service providers will be organised in line with the new standards and new rulebooks. A manual for application of standards will be produced, as well as indicators for monitoring performance of institutions and service providers and reporting, and all activities will include monitoring and evaluation.

TIMEFRAME

The Project is planned for a total of two and a half years i.e. January 1, 2015 – July 1, 2017). The following diagram presents a quarterly-based estimate of time needed for the proposed Project cycle:

I/2015 II/2015 III/2015 IV/2015 I/2016 II/2016 III/2016 IV/2016 I/2017 II/2017

1. System design and conceptualisation

2. Interoperability framework and inter-institutional

connection

3. Development and implementation of the ISWIS applications and interconnection modules

3.a. Core of the ISWIS system

3.b. Interconnection modules

16

3.c. System platform

4. Capacity building

III. PROJECT MANAGEMENT

Project management is under the competence of the Government. UNDP, as an implementing agency, will provide assistance in implementation, with strong engagement of all involved partners and stakeholders and primarily the MLSW and its line departments. Roles and responsibilities regarding the Project implementation will comply with the new UNDP’s Results Management Guide (which includes PRINCE2 Project Management Framework), which sets minimum requirements to be met so that UNDP can accept responsibility for program activities involving use of resources.

The Ministry of Labour and Social Welfare is responsible for the Project on behalf of the Government of Montenegro, while UNDP is in charge for direct aspects of implementation.

The Project is managed by the Steering Committee headed by Deputy Prime Minister and Minister for Information society and Telecommunications, and it is comprised of: the Minister of Labour and Social Welfare, Minister of Finance, a representative of the Office of Deputy Prime Minister and a representative of the Union of Free Trade Unions of Montenegro. Primary tasks of the Steering Committee are as follows:

- Ensuring that objectives of the Project are achieved,

- Decision-making regarding the implementation of specific phases of the Project,

- Ensuring that problems are solved in time,

- Ensuring that relevant participants are actively involved in the Project implementation,

- Supervision of the Project quality assurance,

- Public presentation of the Project.

An important aspect of the overall implementation is the establishment and work of the Government's Operational Team for project implementation, which includes representatives of line ministries of labour and social welfare, information society and telecommunication and finance, as well as representative/s of the Deputy Prime Minister's office, appointed by the Project Steering Committee.

Task of the Operational Team is to ensure full coordination and smooth implementation of all Project components, then comprehensive institutional support of all connected institutions, and timely information for the Project Steering Committee on implemented Project activities and potential difficulties and problems. In addition to aforementioned members, representatives of other relevant institutions may also be appointed to the Operational team, for example:

- Representatives of key users from the Centres for Social Work and representatives of institutions;

- Representatives of institutions with which it is important to establish interoperability,

- UNDP representatives,

- Experts in the field, etc.

The experience from Phase I implementation has shown that the contribution of the Working Team (a team of key users from the CSWs), i.e. system end-users, appointed by the MLSW, was of great importance for the quality of the IS in its development stage as well as in the IS implementation stage. Therefore, this team will be formed, with composition that meets the needs of Phase II.

In the sphere of implementation, UNDP will form the Project Team that will have: - Managerial functions: – Project Manager (full time) and Project Assistant (part-time) - Technical functions: Information System Analysts (2 positions) in consulting role and

Coordinator/Consultant for social welfare (part-time).

17

All day-to-day management duties are performed by the Project Manager who is appointed by and responsible to UNDP. Primary, but not the only role of Project Manager is to ensure: operational, administrative, financial and overall management and implementation of the Project; adoption and implementation of a detailed plan of Project realisation, including the structural dynamics of all Project activities and support to public relations; work in accordance with agreed plan of reporting and for relations with competent Government bodies; creation of a systematic classification for the purpose of organising internal/external information and knowledge; preparation of necessary expert and other plans of activities in accordance with Project work plan and personnel needs; identification of experts/research based on the Project requirements and based on the nature and subject matter of research/field work; development of partnerships with connected institutions and Government bodies and institutions from the social protection system at all levels to implement the defined components of the Project; organisation and facilitation of discussions between stakeholders; budget management and other activities to ensure smooth running of the Project. An Administrative Assistant will provide assistance to the Project Manager in carrying out his/her everyday activities and tasks.

Primary, but not the only role of the Technical Team is to ensure: design, development and adoption of the ISWIS conceptual design; development of the ISWIS system design study; development of sustainable and functional organisational arrangement for the ISWIS; design, development (procurement), installation and training on how to use the ISWIS in accordance with the system design study; link to the overall activities related to the introduction of the ISWIS; transfer of knowledge for contractor, they write specifications and from the expert position participate in procurement procedures for setting up technical preconditions, as well as other activities that provide necessary expertise and technical assistance to Project Manager in ensuring smooth functioning of all components of the Project. Each of the consultants in the Technical Team is responsible for specific activities related to individual components of the Project and among other things is responsible for designing, developing and solving problems related to specific components of the Project; development of necessary studies and system solutions to support the overall implementation of the ISWIS; ensuring functional organisational arrangements necessary for sustainability of the ISWIS; and connection to overall activities related to introduction of the ISWIS as well as for other activities that provide necessary expertise and technical assistance to Project Manager in overall implementation of all Project components.

The following figure shows Project's organisational structure.

Project Manager

Minister of Labor and Social Welfare

Minister of Finance

Social Welfare Coordinator/Consultant

Information System Analysts

Senior Info. System Analysts

Representative of Prime Minister Cabinet

Minister of Information Society &Telecommunications

Admin. Assistant

Social welfare consultant

Operation team

18

IV. MONITORING AND EVALUATION

UNDP has introduced results-based management which represents an approach to business management in which performance is systematically measured and improved at the level of development objectives and results. In this sense, monitoring and evaluation are key factors for the improvement of performance and achieving results. Monitoring and evaluation are carried out by analyzing the results based on quantitative and qualitative indicators listed within the expected Program results and budget allocation table.

Goal of monitoring at the Project level is to provide a systematic assessment of performance and course of activities aimed at achieving the desired results. For this reason, UNDP will document the achievements through periodical activity implementation status reports. Key control points of the Project will be defined in cooperation with the Operational team and the Steering Committee, and Project Manager will be responsible for making regular reports on their implementation.

Basic 'tools' for monitoring include a series of central documents that define target qualitative and quantitative success indicators – or more precisely as follows:

- The Results and Resources Framework), and

- The Annual Work Plan – AWP, which is checked through UNDP's IS.

In line with the present UNDP practice, the Project will produce semi-annual, and if necessary quarterly, reports to show all achievements and results of the Project and define objectives for the following period. In addition to the narrative part, the reports will also offer an overview of the activity plan realisation level (by components), as well as an overview of budget spending.

With regard to Project evaluation, UNDP will monitor efficiency, effectiveness, sustainability and relevance of project objectives in the context of this Project. In order to improve quality of activities, collection of qualitative results is an important reflective task of UNDP. This analysis enables recording of achieved quantitative results and practical experiences and building up on the lessons learned, to repeat successful initiatives and avoid making the same mistakes.

UNDP will conduct periodic evaluation of the Project for the purpose of analyzing efficiency, effectiveness, sustainability and relevance of project objectives. This analysis will ensure that quantitative results and achievements of the Project are not forgotten, and that the Project relies on knowledge and experience gained so far, to maintain positive results and replicate successful initiatives. During the implementation of the Project, formal evaluation of the Project that will include all stakeholders will be conducted and results will serve the Project Steering Committee to adapt and adjust Project activities for the purpose of more efficient and more complete implementation of the given Project components.

V. LEGAL CONTEXT

This document together with the CPAP signed by the Government and UNDP which is incorporated herein by reference, constitute together a Project Document as referred to in the Standard Basic Assistance Agreement (SBAA) signed on December 15, 2006; as such all provisions of the CPAP apply to this document. All references in the SBAA to “Executing Agency” shall be deemed to refer to “Implementing Partner”, as such term is defined and used in the CPAP and this document. UNDP as the Implementing Partner shall comply with the policies, procedures and practices of the United Nations safety and security management system. UNDP will undertake all reasonable efforts to ensure that none of the Government of Montenegro funds and UNDP funds 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 sub-contracts or sub-agreements entered into under this Project Document.

The New Government contribution is 810,000 Eur (1,003,717 USD). The Unspent resources are approximately 300,000 Eur (371,747 USD). December 2014 exchage rate used 0.807. 19

VI. (PROJECT RESULTS AND RESOURCES FRAMEWORK)

Intended Outcome as stated in the Country Programme Results and Resource Framework:

Outcome indicators as stated in the Country Programme Results and Resources Framework, including baseline and targets:

Applicable Key Result Area: Integrated Social Welfare Information System is implemented in Montenegro by the end of the second quarter of 2017, including implementation of automatic exchange of data with other institutions in the system. Capacities of the Ministry of Labour and Social Welfare (MLSW), Centres for Social Work (CSR), Institute and institutions for planning, development and use of the ISWIS are strengthened, as well as the overall IT infrastructure of the social welfare system in Montenegro.

Partnership Strategy: Key partners in Project implementation are: Ministry of Labour and Social Welfare, Centres for Social Work, institutions and UNDP. In addition, all key partners agree that they will demonstrate maximum commitment to involve all stakeholders from this sector.

Project title: and ID (ATLAS Award ID): TBD

EXPECTED RESULTS GOALS BY YEARS KEY ACTIVITIES RESPONSIBLE INPUTS (Euro)

Integrated Social Welfare Information System is implemented in Montenegro by the end of the second quarter of 2017, including implementation of automatic exchange of data with other institutions in the system. Capacities of the Ministry of Labour and Social Welfare (MLSW), Centres for Social Work (CSR), Institute and institutions for planning, development and use of the ISWIS are strengthened, as well as the overall IT infrastructure of the social and child welfare system in Montenegro.

Baseline:

- High expenditures for social welfare;

- High administrative costs of providing social welfare services;

- Lack of adequate and targeted planning of social benefits;

- Lack of IT resources in institutions;

- Lack of targeted sub-systems;

Targets:

Year 2015:

- Activities related to design and conceptualisation of the system are completed, and the overall concept of the "Phase II of Integrated Social Welfare Information System Development” in Montenegro is defined.

- Detailed design and technical specification of the Phase II of the ISWIS system is completed, i.e. all functions of Phase II, participants and stakeholders, and benefits that should be covered by the future SWIS system are precisely defined.

- A complete assessment of the current work process, evaluation of organisational and structural changes, which must be made with the introduction of the ISWIS in the administrative course of activities, are prepared and accordingly changes to work processes are proposed.

- Analysis of policies, guidelines, standards, and administrative provisions relating to the implementation of the ISWIS is conducted, and proposal for the introduction of new system procedures and standards is prepared.

1. System design and conceptualisation

System design and conceptualisation cover all activities related to defining the basic concept for the “Phase II of the Integrated Social Welfare Information System” and to design and specification of the systems to be implemented.

- Analysis of the work process and requirements in terms of information;

- Analysis and development of internal policies and introduction of changes;

- Definition of the framework for restructuring the work processes;

- Analysis and specification of functional requirements of the ISWIS;

- Specification of the ISWIS non-functional requirements;

- Technical design and specification of the ISWIS system.

2. Expansion of the interoperability framework and inter-institutional connectivity

Under this activity of the Project it is necessary to establish an internal interoperability framework between all the connected institutions of the Montenegrin social welfare system, and ensure specific inter-institutional links between connected institutions of the system covered by Phase II.

UNDP & partner Government entities

UNDP & partner Government entities

Total project budget:

Total

(activity 1):

Contractual services/companies

Total

(activity 2):

Contractual services/companies

1,200.000

20,000

20,000

80,000

80,000

20

- Inability to adequately address the needs of specific vulnerable groups;

- Difficult monitoring of performance and work of institutions;

- Lack of human, technological and technical capacities in institutions.

Indicators:

- The extent and quality of services provided by institutions;

- The level of harmonisation of plans and programs with specific needs of target groups;

- Availability of exact data on services provided in institutions;

- Alignment with gender policies of the Government of Montenegro.

- An analysis of possibilities for expansion of interoperability after implementation of Phase I is completed.

- Elements are defined and necessary regulation to ensure inter-institutional agreement as a precondition for implementation of the ISWIS is prepared.

- A comprehensive assessment of training needs (Training Needs Assessment) as a basis for the preparation of a detailed and customized training plan is completed.

- An overview of current state and an analysis of available technical infrastructure in social welfare institutions are prepared.

- Organisational interoperability is defined in the form of inter-institutional contract that governs the manner of implementation, necessary preconditions, budget, and individual responsibilities in the exchange of data with new institutions that the analysis of interoperability expansion identifies as important.

- Expansion of Phase II technical interoperability framework as the basis for the development of specific systems/modules for interaction and communication between interconnected applications/information systems within various institutions of the system of social welfare is completed.

- Detailed designed and development of interconnection ISWIS modules are completed.

- Procedure for selection of a contractor for development of components that will constitute Phase II and interconnection modules on the ISWIS for new inter-institutional exchange of data is completed.

- Tender documentation is prepared and procedure conducted for the part of the training that will be provided by an external supplier.

Year 2016:

- Analysis of participants and connected institutions, and supporting information systems

- Definition and signing of inter-institutional agreements/contracts.

- Finalisation and adoption of the Interoperability Framework expansion for the social welfare sector of Montenegro.

- Analysis and specification of functional requirements for the development of specific systems/modules for interaction and communication between interconnected applications/information systems within various institutions of the social welfare system.

- Technical specification of the subsystem for data exchange with other institutions (as part of the ISWIS technical specification).

3. Development and implementation of the ISWIS Phase II applications and interconnection modules

A central component of the Project is the development and implementation of new ISWIS components related to social welfare institutions, as well as supporting interconnection modules, which will result in fully established and functional Montenegrin social welfare information system.

- Preparation of tender documentation for the ISWIS Phase II applications;

- Preparation of tender documentation for individual interconnection modules in external systems;

- Analysis of necessary investments, and preparation of technical documentation for expansion of the system platform and enhancement of human resources in the IT department of the MLSW;

- Analysis of necessary investments, and preparation of technical documentation for the system platform in social welfare institutions;

- Preparation of tender documentation for the system platform in the MLSW and institutions;

- Supervision, control and testing during the development of the ISWIS Phase II application modules.

UNDP & partner Government entities

Total

(activity 3):

Contractual services/companies

(stuct.cabling system)

Local consult (Development of the ISSS system)

Contractual services (Development of the ISSS system)

Contractual services (hardware)

695,000

80,000

55,000

330,000

200,000

21

- A detailed training plans is defined;

- Study Trip for key for key staff of the MLSW, CSWs and social welfare institutions is organised;

- Trainings for the staff of social welfare institutions are organised;

- Internal organisation and budget of the MLSW in terms of conducting activities aimed at providing ongoing support to functioning, maintenance and further development of the ISWIS are redefined;

- Implementation of the ISWIS Phase II in all social welfare institutions and other relevant institutions is completed;

- Development and implementation of the ISWIS interconnection modules in all connected institutions is completed;

- Adequate technical infrastructure in social welfare institutions is provided;

- Training of all staff from social welfare institutions that will use the ISWIS is completed.

- An ISWIS maintenance and enhancement continuity plan is developed.

Year 2017:

Implementation and start of the system operation.

Monitoring of system performances.

Maintenance and improvement of system functionalities.

- Supervision, control and testing of implementation of the system platforms services and systems in the MLSW and SWCs and institutions.

- Monitoring, control and testing during the implementation

of the ISWIS Phase II in social welfare institutions.

- ISWIS roll-out in all institutions.

- Roll-out of interconnection modules in connected institutions.

- ISWIS-based training of staff and social welfare institutions, as well the MLSW and SWCs in connected system components

- Final testing and technical acceptance of the ISWIS Phase II.

4. Capacity building

Capacity building should allow for a better use of the ISWIS, and ongoing maintenance and further development of the ISWIS. This component involves training of civil servants in the MLSW in the field of management and best practices when it comes to similar systems, and a comprehensive training for the staff of social and welfare institutions on how to use the ISWIS and its potentials.

- Study Trip for the key staff of the MLSW, CSWs and institutions;

- Training needs assessment;

- Curriculum development and training programme design for some target groups;

- Preparation of tender documentation for the part of training to be provided by external supplier;

- Trainings in all institutions;

- Review of the organisation and capacities of the IT and Analytics Department of the MLSW in terms of performing activities aimed at providing ongoing support to functioning, maintenance and further development of the ISWIS.

- Monitoring and evaluation

5. Project management

UNDP & partner Government entities

Contractual services (Inter-connection modules)

Total

(activity 4):

Contractual services (Trainings/Capacity development)

Internat.consult. (Trainings/Capacity development)

Travel (Study tour/Capacity development)

Total

(activity 5):

Contractual services individuals

30,000

185,000

110,000

45,000

30,000

147,382

120,000

22

Budget overview: The following table gives a draft overall Project budget, structured by individual components:

Components and key activities Estimated costs in EURO

1. System design and conceptualisation 20.000

2. Interoperability framework and inter-institutional connection 30000

3. Development and implementation of the ISWIS application and interconnection modules 30.000

4. ISWIS system 330.000

5. Interconnection modules 50.000

6. System platform (hardware) 200.000

7. Structure cabling system 80.000

8. Capacity building - ECDL I professional trainings 140.000

9. Services of consultants (social welfare, information technologies, institutional setup and interoperability) 100.000

10. Project management - Project team, transportation costs, offices, etc.) 120.000

11. Other expenses (related expenses, communications and similar (incl. 7% UNDP DEX fee) 100.000

Total: 1.200.000

The following table gives a budget overview by years:

Components and key activities ESTIMATED COSTS IN EURO

2015 2016 2017 TOTAL

1. System design and conceptualisation 20,000 0 0 20.000

Travel

Rental&Maintenance –Premises/misc.ISS

GMS

10,346

17,036

72,618

23

2. Interoperability framework and inter-institutional connection 10,000 20,000 0 30.000

3. Development and implementation of the ISWIS application and interconnection modules 0 30,000 0 30.000

4. ISWIS system 0 200,000 130,000 330.000

5. Interconnection modules 0 0 50,000 50.000

6. System platform (hardware) 0 200,000 0 200.000

7. Structure cabling system 50,000 30,000 0 80.000

8. Capacity building - ECDL I professional trainings 40,000 50,000 150,000 140.000

9. Services of consultants (social welfare, information technologies, institutional setup and interoperability)

40,000 35,000 25,000 100.000

10. Project management - Project team, transportation costs, offices, etc.) 42,000 42.000 36,000 120.000

11. Other expenses (related expenses, communications and similar (incl. 7% UNDP DEX fee) 20,000 55,000 25,000 100.000

TOTAL: 222,000 662,000 316,000 1.200.000

The New Government contribution is 810,000 Eur (1,003,717 USD). The Unspent resources are approximately 300,000 Eur (371,747 USD). December 2014 exchage rate used 0.807. 24

VII. ANNUAL WORK PLAN BUDGET SHEET

PLANNED ACTIVITIES

TIMEFRAME RESPONSIBLE PARTY

PLANNED BUDGET

Q1 Q2 Q3 Q4 Source of

Funds Budget Description

Amount 2015 Amount 2016 Amount 2017

EUR EUR EUR

System study

UNDP 30071 GoM

72100 Contractual services for design&conceptualization of system

20,000.00

Interoperability framework

UNDP 30070 GoM

72100 Contractual services.for Interoperability Framework &interinstitutional connections

10,000.00 20,000.00 50,000.00

Development and Implementation of ISSS

UNDP UNDP TRAC

72100 Contractual services (stuct.cabling system)

40,000.00 30,000.00

UNDP 30071 GoM

72100 Contractual services (stuct.cabling system)

10,000.00

UNDP 30071 GoM 71300 Local consult (Development of the ISSS system)

20,000.00 20,000.00 15,000.00

UNDP 30071 GoM

72100 Contractual services (Development of the ISSS system)

190,000.00 120,000.00

UNDP UNDP TRAC

72100 Contractual services (Development of the ISSS system)

10,000.00 10,000.00

25

UNDP 30071 GoM 72100 Contractual services (hardware)

200,000.00

UNDP 30071 GoM

72100 Contractual services (Inter-connection modules)

30,000.00

Training

UNDP 30071 GoM

72100 Contractual services (Trainings/Capacity development)

30,000.00 40,000.00 40,000.00

UNDP 30071 GoM

71200 Internat.consult. (Trainings/Capacity development)

20,000.00 15,000.00 10,000.00

UNDP 30071 GoM 71600 Travel (Study tour/Capacity development)

10,000.00 10,000.00 10,000.00

Project management

UNDP 30071 GoM 71400 Contractual services individuals

24,300.00 24,300.00 20,250.00

UNDP 30071 GoM 62100 Salaries;GS Staff

17,700.00 17,700.00 15,750.00

UNDP 30071 GoM 71600 Travel 2,000.00 7,692.00 654.00

UNDP 30071 GoM 73100 Rental&Maintenance -Premises

6,093.00 6,616.00 4,327.00

GMS 7 %

30071 GoM 11,907.00 40,692.00 20,019.00

TOTAL FUNDS 222,000.00 662,000.00 316,000.00

TOTAL FUNDED BY GOVERNMNET OF MONTENEGRO 182,000.00 622,000.00 306,000.00

TOTAL FUNDED BY UNDP

40,000.00 40,000.00 10,000.00

TOTAL FOR ALL YEARS 1,200,000.00

26

VIII ANNEX 1. : RISK ANALYSIS

Project title: Integrated Social Welfare Information System (ISWIS) Project ID: Date: 26/09/2014

# Description Date Type of risk Impact & probability Countermeasures Owner Responsible for monitoring

Last updated

Status

1. Inadequate and limited human resources of the social welfare system

26/9/2014 Organisational (Executive and operational capacities)

Due to limited national labour market and current situation with human resources in social welfare system institutions to which new human resource regulations ought to be applied, additional investments in human resources (both IT and professional), which differ from one institution to another, will be necessary.

U = 5; V = 5

The project includes a capacity building component that, together with measures to be taken by the line Ministry, should provide a basis for successful implementation and system reform.

MLSW

UNDP

Project Manager

20.10.2014

2. Commitment of the Government and competent Ministry to Project implementation

26/9/2014 Strategic and political

All national and international experiences indicate that the commitment of the most senior leadership is of crucial importance and a key precondition in system-related reform projects like this one.

U = 3; V = 2

The Government of Montenegro has provided funds for project implementation and set up the Project Steering Committee and the Operational Team for Project implementation and monitoring.

MLSW

Project Steering Committee

MLSW 20.10.2014

3. Provision of technical prerequisites

26/9/2014 Operational Technical preconditions for the ISWIS differ from one institution to another. The Project will timely provide them at an optimal level in all institutions and through several phases and interventions.

U = 3; V = 2

Necessary funds are included in the Project.

UNDP Project manager

20.10.2014

27

4. Lack of national Interoperability Framework and the issue of personal data protection.

26/9/2014 Strategic and organisational

This issue must be approached with due attention, as those are confidential personal data. Interoperability would significantly improve procedures conducted at the centre, and detailed analysis will show availability of data and readiness of other ISs for establishment of additional interoperability with the ISWIS.

U = 4; V =3

- Signing of the Data Exchange Agreement.

- Urgent request of the Project Steering Committee.

UNDP

Project Steering Committee

Project Manager

20.10.2014

5. Delays in adoption of secondary legislation and modification of secondary legislation forms for processing data in the ISWIS.

26/9/2014 Operational Delays in adoption of secondary legislation could lead to delays in project implementation.

U=3; V=2

Adoption of key rulebooks is planned by mid 2015.

Ministry of Labour and Social Welfare (MLSW)

Project Manager

20.10.2014

6. ISs of institutions, with which interoperability is to be established, are not technically ready for exchange with the ISWISS.

26/9/2014 Technical Carry out an analysis of ISs in institutions with which interoperability is to be established.

U = 2; V = 3

Plan funds in the budget for possible procurement of necessary equipment and licenses.

UNDP Project Manager

20.10.2014

7. Inadequate quality of project implementation due to limited capacities of institutions and resistance of some employees to introduction of changes.

26/9/2014 Organisational (executive and operational capacity)

After the adoption of rulebooks, it is necessary to implement institutional and organisational changes in institutions, which is often demanding and difficult for employees. This is followed by introduction of the IS, which most of employees will see as an additional burden and thus bring implementation into question.

U = 4; V = 4

Timely formation of the team of Key users, so called Agents of Changes from the system. Motivate and involve managers and as many employees as possible from the early implementation stages, to create a critical mass.

Carry out the training programme.

MLSW; Project Steering Committee

UNDP

Project Manager

20.10.2014

28

8. Wrong public perception of the Social Card Project.

26/9/2014 Political

The project may be presented as a failure for political reasons, as well as by incompetent persons making comments about it.

U = 4; V = 4

Draft and publish in media a uniform message about this Project's goal and what has been accomplished thus far.

MLSW,

project Steering Committee,

UNDP

Project Manager

20.10.2014

9. Hiring local social welfare experts for the project

26/9/2014 Organisational We did not manage to hire a competent national expert for social protection in the Phase I. That situation did not contribute to sustainability, it made the project implementation difficult and increased the cost of this service.

U = 5; V = 5

Use resources provided by the project for improvement of local professional resources.

20.10.2014

10. If there is no demand for data, analytical overviews and studies from the Ministry, Social Welfare Institute, Monstat and others, the system may fail to deliver it analytical function .

26/9/2014 Strategic Decision/policy makers often do not use these options optimally, if analysts on the other hand do not produce analyses and reports regularly, in time they tend to forget to apply analytical and statistical skills they have been trained for.

U = 4; V = 3

Inform all bodies and institutions about the possibilities offered by the system, as well as about advantages that allow social policy making based on real data. Investments in system statistics and analytics personnel.

MLSW Project Manager

20.10.2014

11. Provide enough time for post-implementation stage for the purpose of monitoring, evaluation and proper system maintenance.

26/9/2014 Strategic Many quality ISs did not become operational due to the lack of post-implementation stage.

In order for the ISWIS to become sustainable, it is necessary to plan enough time and resources for upgrade, monitoring, maintenance and support to this system, once it is made operational.

U = 3; V=3

Carry out implementation in a timely manner, so that there is enough time for this stage. If deemed necessary, project duration should be extended without requiring additional funds.

Further capacity development of the MLSW Directorate.

Project Steering Committee, UNDP

20.10.2014