This project will bridge the FY13 CSOs Mapping and Capacity Assessment study and the preparation of the planned Civil Society Support Project requested by the Government, which are both referenced in the ISN. The project also builds on other activities referenced in the ISN: e.g., for existing programs under the Social Fund for Development in support of community-level engagement, the non-lending technical assistance for decentralization and local governance, and gender activities is already underway to support strategic implementation of gender mainstreaming under the Multi-Donor Trust Fund on Gender Operations and Programs.
-
Project Components
-
The project has three components (i) Knowledge for Development Partnership, (ii) Partnership and Mutual Accountability for Improved Participation and Inclusion, and (iii) Sector Action Plans for Improved Development Results and Capacity Building Activities. These will provide them with the space and opportunity to exchange views on sector development issues, develop a shared vision and understanding of sector priorities, and jointly identify their complementarities and overlaps. Based on the dialogue outcomes, specific results oriented action plans (SAPs) will be developed in select sectors on a pilot basis. The dialogue will build on the findings and operational recommendations of the FY13 CSO Mapping and Capacity Assessment study that will inform both the proposed project as well as the planned Civil Society Support Project.
Component One: Knowledge for Development Partnership (US$500,000 - Bank-executed)
-
A cornerstone of the change process towards sustainable government-CSO partnerships is learning from international and regional experiences in the countries that have undergone similar transitions. In addition, the project will facilitate interactions across different stakeholder groups. These interactions have traditionally been limited in Yemen, contributing to a certain lack of trust and collaboration. Bringing different groups together towards a common objective will help break down barriers and facilitate spaces for dialogue. Lessons learnt from Indonesia, Turkey and the Philippines, countries that have successfully put in place government-CSO partnerships for development, will be presented and discussed to foster Government-CSO dialogue in Yemen. From the Middle East and North Africa region, the Palestinian NGO experience with regard to NGO self-regulation for improved internal governance and social service delivery, will also be presented and discussed.
-
Therefore, this component will finance the preparation and organization of the National Learning Forum with the support of international experts in multi-stakeholder network and coalition building. The Forum will gather government representatives and CSO leaders from different governorates in Yemen. Government and CSOs representatives from the Philippines, Turkey and Indonesia, as well as the Palestinian NGO Development Center (NDC) representatives, will be invited to present the demand and supply side perspective of their experiences. Forum discussions will be documented, translated and disseminated widely after the event to benefit a wider audience among Government and CSO representatives. Additionally, a note summarizing the international and regional experiences will be produced and disseminated in Arabic. The enabling factors that supported these partnerships and the roles played by each stakeholder in improving development results will help Yemeni stakeholders better understand and contextualize the challenges and opportunities for partnership in the Yemeni context.
-
Under this component, the following will be financed :
-
National Learning Forum on Government-CSO partnership experiences, and a summary note
-
Technical assistance to Line Ministries
-
Project management and oversight
Component Two – Partnership and Mutual Accountability for Improved Participation and Inclusion (US$520,000 - Recipient-executed):
-
A series of parallel dialogue sessions between line ministries and CSOs active in the same select development sectors will be organized to exchange views on sector development issues and priorities, and to identify complementarities and overlaps between these stakeholder groups. These sessions will cover development programs currently implemented in these sectors and the potential role of each stakeholder, in order to identify points of convergence and synergy for collaboration. Inherent weaknesses in terms of participation and accountability in the targeted sectors will be identified so that these can be meaningfully addressed with CSO involvement. Given the donor-dependent nature of development programs in Yemen in general, and in CSOs activities in particular, participation of key donors in some of the sessions will be crucial. Based on the outcome of the parallel dialogue sessions, a draft PMAF will be formulated, with the assistance of experts/facilitators of multi-stakeholder coalition and partnership building. It will be subsequently discussed and validated at a general meeting with all participants. The validated PMAF in the targeted sectors will be submitted to MoPIC and disseminated to Government ministries and CSOs across Yemen.
-
This component will finance the preparation and organization of the parallel dialogue sessions with the support of international experts in multi-stakeholder network and coalition building. Specific technical assistance will be provided to MoPIC to put in place a transparent process before and throughout the parallel dialogue sessions. Line ministries representatives and sector mapped CSOs will participate to the parallel dialogue sessions with regular public outreach and dissemination events to inform the public as the dialogue evolves. The results of the discussions will be documented, translated and disseminated widely across Yemen once agreements are reached in terms of partnership and mutual accountability. The following specific activities will be financed under this component:
-
Preparation and organization of sector dialogue sessions
-
Development and validation of PMAF
-
Public awareness raising, knowledge sharing, dissemination and outreach activities
Component Three – Sector Action Plans for Improved Development Results and Capacity Building Activities (US$480,000 - Recipient-executed):
-
Based on the outcomes of the parallel sector dialogue sessions and building on the synergies that will have emerged from the joint drafting of the PMAF, result-oriented action plans (SAPs) will be collaboratively formulated in select sectors by CSOs and line ministries as a pilot initiative. In the context of Yemen, it will also be more effective to narrow down the geographic scope of the SAPs while coordinating with other donors on their ongoing programs in the targeted sectors and areas. The SAPs will attempt to operationalize the principles enshrined in the PMAF, thereby testing its sustainability and also shed light on the aspects that need to be refined, added or clarified. These action plans are expected to be monitored by multi-stakeholder committees comprising of officials from line ministries and CSO representatives. Furthermore, a key mechanism for the sustainability of the Government-CSOs partnership will involve, at a later stage, institutionalization of the PMAF actions plans within ongoing Government and donor supported programs.
-
Capacity building needs identified in the SAPs will be addressed through ongoing capacity building ANSA-AW programs. ANSA-AW also implements a small grants program for CSOs. CSOs active in the proposed project’s pilot sectors will be encouraged to apply for grants to implement social accountability related interventions specified in SAPs in close coordination with partner line ministries. Linking the proposed project with ANSA-AW’s capacity building and grants programs will reinforce stakeholders’ capacities around social accountability concepts and approaches. In the medium term, it is expected to promote the integration of tailored social accountability tools into development projects in select sectors. The project will also encourage CSOs mapped to the pilot sectors to create sector coalitions that represent all CSOs active in the sector to act as interlocutors with the Government. Coalition and capacity building activities to institute and nurture these coalitions will be undertaken. This will be a natural step towards evolving the PMAF and enlarging it to other sectors while embedding specific social accountability initiatives into on-going and future development programs.
-
This component will finance technical assistance to support line ministries representatives and sector mapped CSOs representative to formulate sector specific results oriented SAPs. A training session on social accountability will also be financed to introduce both stakeholders to social accountability concept and approach. The activities funded under this project will be:
-
Preparation and formulation of Sector Action Plans
-
Preparatory work to implement SAPs
-
Outreach and dissemination
-
Monitoring and evaluation
-
Project Financing
-
Project Cost and Financing:
Table 1: Project Costs and Financing (Bank-Executed)
Project Components and Outputs
|
Bank Executed
|
USD
2014
|
USD
2015
|
Component One: Knowledge for Development Partnership (Bank executed)
-
National Learning Forum on Government-CSO partnership experiences
-
Technical assistance to Line Ministries
-
Project management and oversight
|
210,000
100,000
60,000
|
90,000
40,000
|
Sub Total
|
370,000
|
130,000
|
Table 2: Project Costs and Financing (Recipient-Executed)
Project Components and Outputs
|
Recipient Executed
|
US$
2014
|
US$
2015
|
Component Two: Partnership and Mutual Accountability (Recipient-executed):
-
Development and validation of PMAF
-
Awareness raising, knowledge sharing, dissemination and outreach
-
Preparation and organization of sector dialogue sessions
==========================
Component Three : Results-oriented Sector Action Plans
-
Preparation and formulation of Sector Action Plans
-
Preparatory work to implement SAPs
-
Monitoring and evaluation
-
Outreach and dissemination
|
120,000
80,000
150,000
=============
120,000
70,000
|
100,000
70,000
===========
100,000
150,000
40,000
|
Sub Total
|
540,000
|
460,000
|
Grand Total
|
1,500,000
|
-
Lessons Learned from Countries in Transition and Reflected in the Project Design
-
International experience has shown that engaging with CSOs during transitions increases the legitimacy of the government and promotes sustainability of reforms. CSOs can mediate between the state and citizens, which is key during transition periods, like in the case of Yemen. Lessons learnt from the transitions in Philippines, Turkey and Indonesia are particularly relevant to the context in Yemen. From the Palestinian territories, valuable lessons can be drawn from CSOs experience in terms of improving service delivery and promoting CSOs self regulation and internal governance.
-
Philippines: Philippines has shown some of the most successful experiences in terms of civil society-government partnerships. In 1991, the Philippines Local Government Code introduced a new framework for decentralization and local governance at the sub-national level that included significant provisions for participatory planning and citizen participation in decision making. This framework set the ground for CSOs to spearhead the implementation of various development programs and increase their effectiveness through networking and coalition building. This has resulted in some of the most internationally recognized successes as CSOs have contributed constructively to strengthening the Government’s own reform initiatives.
-
Turkey: Turkey’s performance and improvements in providing social services, especially for the poor, have been key factors behind the political stability and economic growth in the country during the recent years. With the initiation of important political reforms directly relevant to civic engagement and social accountability, CSOs became key partners in the implementation of health and education programs which resulted in increasing demand and user satisfaction rates. Among the key lessons that can be drawn from Turkey’s transition is the attention given to the improvement of basic services in response to citizen demand in partnerships with CSOs.
-
Indonesia: Indonesia’s government during the transition reached out to CSOs, academics, think-tanks, religious groups and student groups, broadening stakeholder engagement in the reform processes. One of the main achievements of the transition period was the adoption and implementation of reforms that aimed to bring services closer to the people and initiated several partnerships with CSOs to address the low quality of public services at the provincial and local levels.
-
Palestinian territories: The Palestinian Authority (PA) recognized the important role of NGOs in filling some service delivery gaps and in partnership with NGOs developed the Law No (1) of Charitable Associations and Community Organizations in 2000 which formalized and regulated their relationship. The Palestinian National Development Plan (PNDP, 2011-2014) further facilitates a partnership approach between the PA and NGOs. Based on 23 sector strategies, each illustrating sector priorities and stakeholder coordination frameworks, the PNDP identifies the need to establish a model approach to partnership with civil society, PNGOs and the private sector to ensure that social services are comprehensive, affordable and sustainable.
-
The project builds on the lessons learnt as well as best practice features derived from experiences in these countries. One of the key lessons integrated in the design of the proposed project is that Government-CSOs partnership becomes sustainable when it is based on a genuine dialogue and action plans to jointly define the rules and principles of collaboration. The proposed project also reflects one important feature derived from international best practice that shows that powerful and successful partnerships are most commonly forged in the area of service delivery where CSOs can be partners not only in implementation, but also in monitoring and awareness building. The proposed project design also integrates, the important feature of setting realistic goals and disseminating dialogue outcomes to the public, thus contributing to building trust and managing citizen’s expectations.
IMPLEMENTATION
-
Institutional and Implementation Arrangements
Implementation Agency Assessment
-
The project counterpart is MoPIC and will be implemented by the ongoing Labor Intensive Public Works Project PMU that will be in charge of all financial and procurement aspects. MoPIC is also the main counterpart for the FY13 CSO Mapping and Capacity Assessment study as well as the planned Civil Society Support Project. The request for this proposed project by the Government reflects the Government’s commitment to this process and the importance of this project in its agenda. MoPIC is well positioned to ensure a transparent and inclusive approach to promote all stakeholders’ buy-in to the dialogue process, is a cross-sectoral ministry, which is key for the proposed project, and has more leverage in terms of coordination with various line ministries, the Ministry of Social Affairs, CSOs and key donors. Finally, MoPIC was also the counterpart ministry for the FY10 Stakeholder Mapping Study, having already expressed interest to work with CSOs as development partners.
-
An individual local consultant will be hired to provide “in-house” support to MoPIC teams in terms of coordination and implementation of the project activities, including follow up actions and liaison with the Labor Intensive Public Works Project PMU who will be responsible for all financial procurement aspects. This experienced PMU administers resources from over 15 donors. It, concurrently, implements about 450 sub-projects, some of which are related to NGOs, and ensures that donor funds are utilized in accordance with the rules and procedures of each donor transparently. The PMU has proved its capacity to respond to donors’ criteria while taking into consideration the needs and constraints of targeted groups. The ability of the PMU to report in a timely manner to different donors is remarkable, as well as its monitoring capacity.
-
Results Monitoring and Evaluation
-
The PDO-level results indicators will be monitored to evaluate project’s performance towards the objectives. Monitoring and evaluation of project activities will be integrated into each of the project components’ implementation. MoPIC will be responsible for results monitoring and will submit an M&E report to the World Bank on a six months basis. The Bank will provide support for the development of the project’s M&E system through technical advice provided by the Bank staff and consultants.
-
In addition to integrating the M&E into each project component, the Bank will execute an independent evaluation on the results of the project using various methods as appropriate, including participants evaluation of dialogue sessions, in-person interviews as well as focus groups representing both stakeholders (Government and CSOs representatives).
-
Sustainability
-
The Government-CSOs Partnership project will evolve through the implementation of the SAP, and will be sustained at the sector level by the creation of sector Participation Committees comprising of representatives from line ministries and sector mapped CSOs. The project will also lay the ground for a Civil Society Support Project requested by the Government of Yemen. A key mechanism for sustainability of the Government-CSOs partnership will involve, at a later stage, through the institutionalization of the PMAF action plans within ongoing Government and donor supported programs.
KEY RISKS AND MITIGATION MEASURES
A. Risk Ratings Summary Table
Stakeholder Risk
|
Substantial
|
Implementing Agency Risk
|
| | |
Moderate
| | |
Low
|
Project Risk
|
| | |
Substantial
| | |
Low
| | |
Moderate
| -
Delivery Monitoring and Sustainability
|
Substantial
|
Overall Implementation Risk
|
Substantial
|
-
Overall Risk Rating Explanation
-
The overall risk for this operation is substantial because of the country context. The volatility of the political, security, governance, and civil society environment may impact negatively both the preparation and the implementation of the project. The dialogue and consensus-building process of the project can also be hampered by potential shifts in the political transition.
APPRAISAL SUMMARY
Economic and Financial Analyses
-
The proposed project is based on a demand-driven approach with the aim of increasing CSOs role in informing government decision making, and in the society in general. The project will therefore have an possible positive impact on the demand for CSOs, and thus a possible positive employment effect. The project provides benefits to the participants in the form of capacity building and skills development.
-
The outcomes of capacity changes, incremental revenues, and employment effects across the CSO sphere would, as seen in other similar projects, be only visible at the completion of the project. A full measure of results, upon which the above-mentioned are based, would be most likely to be achieved within 1-2 years after their completion.
-
Technical
-
The project is appropriate to Yemen’s needs and technically viable. The design is informed by lessons learned from World Bank and other experiences from countries in transition. The implementation of the components ensures that the learning from the project can be appropriately leveraged to formulate policies and scaled up programs based on the evidence provided by the project.
-
Financial Management
-
The existing FM system for the ongoing Labor Intensive Public Works Project (PWP) is satisfactory and will be used for the proposed project. The PWP PMU maintains a well-functioning FM system based on a ring-fenced approach which includes: (i) an automated accounting system (supported by Oracle software) which follows cash basis accounting and is capable of recording and reporting on all transactions; (ii) experienced financial management staff; (iii) an acceptable internal controls system based on documented procedures; (iv) Financial Management Manual; and (v) quarterly financial reports and annual financial statements, reviewed and audited, respectively, by an independent external auditor, selected by the Central Organization for Control and Audits (COCA) and acceptable to the IDA, based on agreed terms of reference.
-
Procurement
-
Procurement for the project will be administered in accordance with the World Bank’s Guidelines: Procurement under IBRD Loans and IDA Credits dated January 2011 and Guidelines: Selection and Employment of Consultants by World Bank Borrowers dated January 2011 and the provisions stipulated in the Grant Agreement. In addition, the World Bank’s Guidelines on Preventing and Combating Corruption in Projects Financed by IBRD Loans and IDA Credits and Grants dated January 2011 has been shared with the recipient. The World Bank’s Standard Bidding Documents, Requests for Proposals, and Forms of Consultant Contract will be used. Procurement of goods will follow National Competitive Bidding (NCB) procedures and shall be procured using the agreed Standard Bidding Documents (SBDs) for Yemen. In the event of a conflict between IDA Procurement/Consultant Guidelines, as per Article 4 (2) and the Procurement Law of July 2007 and its bay-law 1999 of the GoY, the IDA Procurement/Consultant Guidelines shall prevail.
-
Given the very small financial dimensions of procurement for all the project components, procurement of consultancy services financed plans under the Labor Intensive Public Works Project PMU will be carried out by firms following locally established commercial practices acceptable to the Bank, and in accordance with the provision of paragraphs 3.13 of the Bank’s Procurement Guidelines.
-
Technical assistance services will be procured by the firms following locally established commercial practice acceptable to the Bank and or in accordance with the provision of paragraph 3.13 of the Bank’s Consultant Guidelines. Consultants to be financed under the Labor Intensive Public Works Project PMU business plans would include individual consultant and consultant firms
-
Consultant firms and individuals will be selected in accordance with IDA Guidelines for selection and Employment of Consultants (dated January 2011). For firms, all contracts above US$300,000 would be procured using Quality and Cost Based Selection method (QCBS). Least Cost-Based Selection (LCS) and selection based on consultant qualification procedures would be used for small contracts of standard or routine nature estimated to cost less than US$300,000 or equivalent. Shortlist of consulting firms for services estimated to cost less than US$300,000 equivalent per contract may be composed entirely of national consultants in accordance with the provisions of paragraph 2.7 of the Consultant Guidelines. All consulting services contracts above US$300,000 would be subject to IDA’s prior review. All individual consulting assignments would be selected on the basis of comparison of CVs in accordance with Section V of the Guidelines for Selection of Consultants.
-
Social (including Safeguards)
-
Social safeguard policies are not triggered, and the social impacts of this project are expected to be positive. The project activities will promote participation and inclusion and build trust in state institutions.
Environment (including Safeguards)
-
Environmental safeguards policies are not triggered. The expected size of disbursements are small, and the nature of most of the activities will be procurement of services and other intangibles, with possible small scale goods or equipment which are not anticipated to have any major or irreversible environmental impacts..
Annex 1: Results Framework and Monitoring
COUNTRY: ProjectName
Results Framework
PDO Level Results Indicators*
|
Core
|
Unit of Measure
|
Baseline
|
Cumulative Target Values**
|
Frequency
|
Data Source/
Methodology
|
Responsibility for Data Collection
|
YR 1
|
YR 2
|
|
|
|
Indicator One: Number of partnerships formalized between government(s) and civil society organizations
|
|
Number
|
0
|
-
|
10
|
Semi-annually
| -
Partnership agreements reported by MOPIC
|
Government-CSOs Partnership Project implementation unit and , MOPIC
|
Indicator Two: Number of CSOs representing rural and urban constituencies engaged in the dialogue
|
|
Number
|
0
|
25
|
50
|
Semi-annually;
Once – within 6 months of project completion
| -
Monitoring report
-
Independent verification after project completion
|
Government-CSOs Partnership Project implementation unit and , MOPIC
World Bank
|
Indicator Three: Number of women and youth groups directly engaged in project’s activities
|
|
Number
|
0
|
20
|
40
|
Once – within 6 months of project completion
|
Independent verification after project completion
|
Government-CSOs Partnership Project implementation unit and , MOPIC
World Bank
|
Indicator Four: Number of direct project beneficiaries, of which female (%)13
|
|
Number
|
0
|
0
|
0
|
Once – within 6 months of project completion
|
Independent verification after project completion
|
Government-CSOs Partnership Project implementation unit and , MOPIC
World Bank
|
INTERMEDIATE RESULTS
|
PDO Level Results Indicators*
|
Core
|
Unit of Measure
|
Baseline
|
Cumulative Target Values**
|
Frequency
|
Data Source/
Methodology
|
Responsibility for Data Collection
|
YR 1
|
YR 2
|
|
|
|
Intermediate Results (Component One): Successfully disseminating knowledge for developing partnerships (Bank-executed)
| -
National Learning Forum held
|
|
Yes / no
|
No
|
Yes
|
Yes
|
Once
|
Forum Completion Report
|
Government-CSOs Partnership Project implementation unit and MOPIC
World Bank
| -
Number of government officials and CSO representatives jointly trained in capacity building workshops
|
|
Number
|
0
|
50
|
100
|
Semi-Annually
|
Monitoring report
|
Government-CSOs Partnership Project implementation unit and MOPIC
| -
Technical assistance notes
|
|
Number
|
0
|
-
|
2
|
Upon completion of notes
|
Implementation Status Reports
|
World Bank
| -
Sector Dialogue Sessions
|
|
Number
|
0
|
2
|
4
|
Ongoing
|
Monitoring report
|
Government-CSOs Partnership Project implementation unit and MOPIC
| -
Development of a Partnership and Mutual Accountability Framework
|
|
Yes / no
|
No
|
-
|
Yes
|
Once
|
Monitoring report
|
Government-CSOs Partnership Project implementation unit and MOPIC
| -
Creation of Sector Participation Committees (comprising representatives from line ministries and CSOs) to sustain dialogue and collaboration
|
|
Number
|
0
|
|
2
|
Semi-Annually
|
Monitoring report
|
Government-CSOs Partnership Project implementation unit and MOPIC
|
Intermediate Result (Component Three): Successfully developing Sector Action Plans (SAPs) for effective development results (Recipient-executed)
| -
Number of Sector Action Plans (SAP) to promote government-CSO collaboration
|
|
Number
|
0
|
-
|
2
|
Semi-Annually
|
Monitoring report
|
Government-CSOs Partnership Project implementation unit and MOPIC
| -
Number of sector networks/coalitions created
|
|
Number
|
0
|
-
|
2
|
Semi-Annually
|
Monitoring report
|
Government-CSOs Partnership Project implementation unit and MOPIC
| -
Number of identified actions in SAPs implemented
|
|
Number
|
0
|
-
|
5 out of 10
|
Once
|
Implementation Status Reports
|
World Bank
| -
Number of direct project beneficiaries, of which female (%)14
|
|
Number
|
|
|
|
|
Monitoring report
|
World Bank
|
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