Document of
The World Bank
FOR OFFICIAL USE ONLY
PROJECT APPRAISAL DOCUMENT
ON A
PROPOSED GRANT FROM THE MIDDLE EAST AND NORTH AFRICA TRANSITION
FUND
TO THE
REPUBLIC OF YEMEN
IN THE AMOUNT OF US$ 1.5 MILLION EQUIVALENT
FOR A
GOVERNMENT-CSO PARTNERSHIP PROJECT
January 23, 2013
Social Development Sector
Middle East and North Africa Region
This document has a restricted distribution and may be used by recipients only in the
performance of their official duties. Its contents may not otherwise be disclosed without World
Bank authorization.
CURRENCY EQUIVALENTS
(Exchange Rate Effective January22, 2013)
Currency Unit = Yemeni Rial (YR)
YR 215.15 = US$1
FISCAL YEAR
January 1 – December 31
ABBREVIATIONS AND ACRONYMS
AFD
ANSA-AW
CBO(s)
CDD
COCA
CPS
CSF
CSO(s)
EIDHR
EU
FM
GCC
GNR
GoY
IDA
IFC
INGO(s)
ISN
M&E
MAF
MENA
MIS
MoPIC
MoSA
MOU
NAMFREL
NDC
NDI
NSA/LA
PNGO
PNPM
PDO
PMAF
PMU
PTCA
PWP
PYCE
RTI
Agence Française de Développement
Affiliated Network for Social Accountability in the Arab World
Community-based organization(s)
Community-driven development
Central Organization for Control and Audits
Country Partnership Strategy
Civil Society Fund
Civil Society Organization(s)
European Instrument for Democracy and Human Rights
European Union
Financial Management
Gulf Cooperation Council
Government of National Reconciliation
Government of Yemen
International Development Association
International Finance Corporation
International Non-governmental Organization(s)
Interim Strategy Note
Monitoring and Evaluation
Mutual Accountability Framework
Middle East and North Africa
Management Information System
Ministry of Planning and International Cooperation
Ministry of Social Affairs
Memorandum of Understanding
National Citizen’s Movement for Free Elections
Palestinian NGO Development Center
National Democratic Institute
Non State Actors and Local Authorities in Development
Palestinian Non-Governmental Organization ProjectNational Program for Community
Empowerment
Project Development Objectives
Partnership and Mutual Accountability Framework
Project Management Unit
Parents-Teachers-Community Associations
Labor Intensive Public Works Project
Promoting Youth Civic Engagement
Research Triangle Institute
RGP
SAP
SNACC
TA
USAID
WBG
Responsive Governance Project
Sector Action Plan
Supreme National Authority for Combating Corruption
Technical Assistance
United States Agency for International Development
World Bank Group
Regional Vice President:
Country Director:
Sector Director:
Sector Manager:
Task Team Leader:
Inger Andersen
Hartwig Schafer
Junaid Kamal Ahmad
Franck Bousquet
Najat Yamouri
REPUBLIC OF YEMEN
Government-CSOs Partnership
TABLE OF CONTENTS
Page
I.
STRATEGIC CONTEXT .................................................................................................1
A. Country Context ............................................................................................................ 1
B. Sectoral and Institutional Context ................................................................................. 2
C. Higher Level Objectives to which the Project Contributes .......................................... 4
II.
PROJECT DEVELOPMENT OBJECTIVES ................................................................5
A. PDO............................................................................................................................... 5
Project Beneficiaries ........................................................................................................... 6
PDO Level Results Indicators ............................................................................................. 7
III.
PROJECT DESCRIPTION ..............................................................................................7
A. Project Components ...................................................................................................... 8
B. Project Financing ........................................................................................................ 11
Project Cost and Financing ............................................................................................... 11
C. Lessons Learned and Reflected in the Project Design ............................................... 12
IV.
IMPLEMENTATION .....................................................................................................13
A. Institutional and Implementation Arrangements ........................................................ 13
B. Results Monitoring and Evaluation ............................................................................ 14
C. Sustainability............................................................................................................... 14
V.
KEY RISKS AND MITIGATION MEASURES ..........................................................15
VI.
APPRAISAL SUMMARY ..............................................................................................15
A. Economic and Financial Analyses .............................................................................. 15
B. Technical ..................................................................................................................... 16
C. Financial Management ................................................................................................ 16
D. Procurement………………………………………………………………………… 16
E. Social (including Safeguards) ..................................................................................... 17
F. Environment (including Safeguards) .......................................................................... 17
Annex 1: Results Framework and Monitoring .........................................................................18
Annex 2: Detailed Project Description .......................................................................................21
Annex 3: Implementation Arrangements ..................................................................................26
Annex 4: Operational Risk Assessment Framework (ORAF) .................................................28
Annex 5: Implementation Support Plan ....................................................................................32
PAD DATA SHEET
Republic of Yemen
Government-CSOs Partnership Project
PROJECT APPRAISAL DOCUMENT
.
Middle East and North Africa Region
MNSSD
.
Basic Information
Date:
January 23, 2013
Sectors:
Social Development (100%)
Country Director:
Hartwig Schaefer
Themes:
Social Development, Civil Society Engagement and Community
Development, Gender, Youth, Economic Empowerment
Sector Manager/Director:
Franck Bousquet / Junaid Kamal
Ahmad
EA Category:
C
Project ID:
Lending Instrument:
TAL
Team Leader(s):
Najat Yamouri
Joint IFC:
.
Borrower: Republic of Yemen
Responsible Agency: Ministry of Planning and International Cooperation (MOPIC) for Components 2 and 3.
Contact:
Dr. Mohammed Ahmed Ali AI-Hawri
Telephone No.: 967-1-250-665
Title:
Deputy Minister for Economic Studies and Forecasts, MOPIC
Email:
[email protected]
.
Project Implementation Period:
Start Date: June 30, 2013
Expected Effectiveness Date:
End Date: June 30, 2015
Mayl 2013
Expected Closing Date: June 30, 2014
.
Project Financing Data(US$M)
[ ]
Loan
[X]
Grant
[ ]
[ ]
Credit
[ ]
Guarantee
Other
For Loans/Credits/Others
Total Project Cost :
Total Co financing :
US$1.5 million
n/a
Total Bank Financing :
MNA Transitional Fund
Financing Gap : n/a
.
Financing Source
Amount(US$1.5M)
BORROWER/RECIPIENT :
IBRD
IDA: New
IDA: Recommitted
Others: MNA Transition Fund
US$1.5 million
Financing Gap
Total
US$1.5 million
.
Expected Disbursements (in USD Million)
Fiscal Year
2014
2015
Annual
0.91
0.59
Cumulative
0.91
1.5
.
Project Development Objective(s)
To enhance Government-CSOs partnership in the implementation and monitoring of sector development programs.
.
Components
Component Name
Cost (USD Millions)
Component One: Knowledge for Development Partnership (Bank-executed)
0.50
Component Two: Partnership and Mutual Accountability for Improved
Participation and Inclusion (Recipient-executed)
0.55
Component Three : Results-oriented Action Plans for Effective Development
Results (Recipient-executed)
0.45
.
Compliance
Policy
Does the project depart from the CAS in content or in other significant respects?
Yes [ ]
No [ X ]
Does the project require any waivers of Bank policies?
Yes [ ]
No [X]
Have these been approved by Bank management?
Yes [ ]
No [X ]
Is approval for any policy waiver sought from the Board?
Yes [ ]
No [X]
Does the project meet the Regional criteria for readiness for implementation?
Yes [X]
No [ ]
.
.
Safeguard Policies Triggered by the Project
Yes
No
Environmental Assessment OP/BP 4.01
X
Natural Habitats OP/BP 4.04
X
Forests OP/BP 4.36
X
Pest Management OP 4.09
X
Physical Cultural Resources OP/BP 4.11
X
Indigenous Peoples OP/BP 4.10
X
Involuntary Resettlement OP/BP 4.12
X
Safety of Dams OP/BP 4.37
X
Projects on International Waterways OP/BP 7.50
X
Projects in Disputed Areas OP/BP 7.60
X
.
Legal Covenants
Name
Recurrent
Due Date
Frequency
Description of Covenant
.
Team Composition
Bank Staff
Name
Title
Specialization
Unit
UPI
Najat Yamouri (TTL)
Senior Social Development
Specialist
Social development
MNSSD
237027
Balakrishna Menon Sanjay
Lead Social Development
Specialist
Local governance and
decentralization
MNSSD
155077
Ali Khamis
Sr. Operations Officer
Urban development
MNSUR
156172
Sanjay Agarwal
Senior Social Development
Specialist
Social development
SDN
257670
Moad Alrubaidi
Financial Management Specialist Financial management
MNAFM
324944
Samira Al Harithi
Procurement Specialist
Procurement
MNAPC
364899
Hassine Hedda
Finance Officer
Disbursement
CTRLA
17700
Maya El-Azzazi
Program Assistant
Project Support
MNSSD
191011
Nikolai Soubotin
Legal Counsel
Legal
LEGAM
77725
Name
Title
Office Phone
City
TBD
Local STC
Non-Bank Staff
.
Locations
Country
First Administrative
Division
Republic of Yemen
Ministry of Planning and
International Cooperation
.
Location
Planned
Actual
Comments
I.
STRATEGIC CONTEXT
A. Country Context
1. Yemen, one of the poorest countries in the Middle East and North Africa (MNA)
region, faces daunting development challenges. With a GDP per capita of US$1,209
(PPP1), Yemen ranked 154 out of 187 countries in the 2011 Human Development Index.
Rapid population growth of over 3% a year, lack of clear alternatives to an oil economy,
rapidly depleting water reserves, poor infrastructure with inadequate access to basic services
for the majority of the population and acute gender inequality are amongst the development
challenges Yemen is confronted with. Since the unification in 1990, Yemen has been
grappling with establishing a pluralistic political system within a unified nation-state. With
the Arab Spring uprising, protests in Yemen started against unemployment and weak
governance, escalating to specific demands for political and social change. Following a
subsequent power transfer agreement, President Ali Abdullah Saleh stepped down after 33
years in power. Elections took place on February 21, 2012, and Abdo Rabbo Mansoor Hadi
assumed office as the new President.
2. Yemen has embarked on a political transition process since the transfer of power in
February 2012. Although the implementation of the National Dialogue is largely on track,
Yemen faces significant risks if reforms do not materialize quickly and if substantive
changes are not felt by the population. Gains achieved so far by the National Dialogue are
fragile and important challenges lie ahead that need to be addressed collectively by all
stakeholders.
3. Civil society organizations (CSOs) in Yemen are one of the most vibrant and dynamic
in the MNA region. Although their activities were constrained throughout the last three
decades, the current transition has brought new opportunities for CSOs to engage
constructively with the Government and donors on development and reform programs. The
Government of National Reconciliation (GNR) has a unique opportunity to harness the
constructive engagement emerging in Yemeni civil society in order to collectively address
complex reform issues and support the immediate transition and longer term state-building.
4. In October 2012, G-8 countries, regional partners, and international financial
institutions launched the Deauville Partnership, a new Transition Fund, to provide
partnership countries, including Yemen, with technical assistance to undertake sustainable
policy reforms.2 The commitments made in the Riyadh conference, the subsequently Mutual
Accountability Framework and the Deauville Partnership Transition Fund, are supporting
participation to promote sustainable reforms and state building in Yemen.
5. The Government-CSOs Partnership Project supports this objective by providing
technical assistance to both stakeholders to facilitate their dialogue and inform the
formulation of a joint Government-CSOs Partnership and Mutual Accountability Framework
(PMAF). Through capacity building and targeted technical assistance at sector level, the
1
Purchasing Power Parity.
The United States, United Kingdom, Saudi Arabia, Canada, Japan, France, Kuwait, Russia, and Qatar all
announced their proposed contributions, totaling about US$165 million towards a goal of US$250 million over
several years.
2
1
project will help them operationalize the PMAF on a pilot basis with the goal of improving
development programs’ results and promoting more inclusive reform policies.
B. Sectoral and Institutional Context
6. The role of CSOs in effective service delivery, participation, and decentralization
programs has also been embraced by the GNR and the donor community. In the Riyadh
conference in September 2012, the GNR and donors reaffirmed their commitment to work
with CSOs as key development partners. This was specifically mentioned as one of the
pillars in Yemen’s Mutual Accountability Framework (MAF), which also emphasized the
need to focus on women and youth in both economic and governance realms. These
developments signal an increasing recognition among the GNR and the donor community
that CSOs’ constructive engagement, particularly in areas that impact women, youth as well
as other marginalized groups, will contribute to a peaceful and successful transition and to
more inclusive and sustainable development in Yemen. Yemen ISN highlights the Bank’s
overriding objective as to “help the Government produce tangible results that stabilize the
transition in the short term.”3. Building inclusive and sustainable partnerships between the
Government and CSOs is one of the cornerstones in Yemen’s transition process.
7. Although fragmented along various social and political fault lines, Yemeni civil society
is dynamic, large and diverse. Before the transition process in 2011, about 7,000 CSOs
were registered across different sectors, most of them being welfare oriented and located in
urban centers.4 Limited participation of women, youth and marginalized groups, as well as
growing attempts by the Government to control CSO activities characterized the CSO sphere.
CSOs did not have a strong role in service delivery and had limited impact in holding the
Government accountable or in establishing appropriate mechanisms to voice community
needs and grievances. Although promising initiatives occurred in terms of dialogue between
CSOs and the Government, such initiatives and dialogue opportunities were limited, ad-hoc,
and personality dependent. The World Bank’s 2010 Yemen Civil Society Landscape report
highlighted CSOs’ aspiration of creating a participation mechanism to promote CSOs’ role in
the Government decision-making, and the Government’s interest to work with committed
CSOs as development partners.5
8. The political transition in Yemen has created a momentum for CSOs to engage
constructively with the Government and donors. For the first time in Yemen’s modern
history, CSOs have an explicit mandate to engage actively with Government counterparts.
With the country facing transition challenges, engaging with Yemeni CSOs is no longer seen
as an opportunity but a necessity, as it has the potential of building a sustainable link between
the state and citizens, channeling the voices of Yemenis to government entities and reaching
out to women, youth and marginalized groups while helping to hold the Government
accountable.
3
Interim Strategy Note for the Republic of Yemen, FY 2013-2014. World Bank 2012, pg. i.
The paragraph builds on Civil Society in Yemen – A National Participatory Review (2nd draft). European Union
Delegation – Yemen, 2010, pg. iv
5
A Landscape of Civil Society in Yemen: Issues and Options for World Bank Country Program. World Bank, 2010,
pg. 9.
4
2
9. CSOs, youth and women’s groups, in the current transition in Yemen, are seeking to
enhance their legitimacy and enhance their voice vis-à-vis the Government and the
society at large. Many of these formal and informal organizations have been driving the
recent change in the country and are also giving voice to various marginalized groups. The
transformation of civic participation during the current transition has created a unique
opportunity for constructive dialogue between the Government and CSOs that supports
collaborative approaches to address development challenges. It is crucial to take advantage of
this historical window of opportunity, as Yemen embarks on a two-year National Dialogue
(until Spring 2014).
10. Several donors currently provide assistance to CSOs in Yemen to build their capacity,
and partner with them to implement specific development programs or to reach out to
local communities and marginalized groups. A summary of current donor activities is
provided below:
(a) European Union is the leading donor for non-state actors in Yemen. Since 2005, the EU
has facilitated dialogue and closer partnership between the Government and CSOs
through its Sharaka program, focusing on promoting democracy and human rights.
Currently, several projects are being implemented in different parts of the country, all
working with CSOs for increased participation. About 50% of EU assistance to Yemen is
channeled through CSOs.
(b) USAID: Funds the AMIDEAST (see below), as well as a Yemen Responsive Governance
Project (RGP), a 3-year project working to strengthen government institutions and
improve the delivery of public services while encouraging more citizen participation in
the political process.
(c) Oxfam is working with the Government and CSOs on implementing various projects,
including the response to the rising hunger levels and emergency programs and has also
successfully partnered with CSOs in the implementation of the cash transfer program
reaching more than 12,000 households.
(d) Islamic Relief works on conflict transformation and peace building programs that include
capacity building of influential persons in communities.
(e) AMIDEAST is implementing the Youth Civic Engagement (PYCE), a two-year project to
engage youth in sports and recreational activities in five governorates.
(f) An estimated US$5-10 million is provided by GCC countries to support humanitarian and
Islamic charitable associations in Yemen.
(g) Partneraid partners with the people of disadvantaged communities providing relief with a
focus on rehabilitation, education, health and water and nutrition.
(h) Progressio focuses on increasing the capacity of partner CSO’s, local authorities and
communities in participatory governance to help promote citizen involvement in
development planning and local decision making.
11. The World Bank has for long acknowledged the important role of civil society and has
worked with CSOs for several decades across a wide range of activities. In particular,
global experience shows that the role of CSOs in periods of transition is considered critical
by the World Bank and donors, as they can mediate effectively between the state and citizens
and increase the legitimacy and sustainability of reforms. The World Bank has undertaken
significant analytical work on the conflict in Yemen. The companion piece to the 2011
3
World Development Report, Reducing Conflict Risk: Conflict, Fragility and Development in
the Middle East and North Africa notes that political transitions are followed by increased
risk of conflict, as newly arrived regimes and citizenries attempt to assert their authority and
rights. To mitigate the risk, the report recommends that development actors enhance focus on
strengthening both the supply and demand sides of governance, and recognizes increasing
citizen accountability through creating an enabling environment for CSOs as one of the
means to achieve these objectives.6 The project design also builds on the 2010 report A
Landscape of Civil Society in Yemen: Issues and Options for World Bank Country Program,
which was prepared through extensive consultations with 165 civil society organizations
across Yemen. The report recommends Bank support for Government-led consultations with
civil society as one of the options for better civil society engagement in development
operations, and highlights Yemeni CSOs’ aspiration for creating a CSO participation
mechanism.7
12. Yemen Interim Strategy Note (ISN) highlights the Bank’s overriding objective as to
“help the Government produce tangible results that stabilize the transition in the short
term, while laying the groundwork for medium-term reforms and sustainable longerterm benefits.”8 Building inclusive and sustainable partnerships between the Government
and CSOs as shown by global experience9 can play an important role in restoring confidence
in the government’s ability to implement institutional and social change and in extending the
state’s capacity to deliver – objectives underlined across ISN’s three strategic pillars.10
13. The proposed Government-CSOs Partnership Project builds on successful
Government-CSOs experiences in countries that have undergone similar political and
economic transitions, such as the Philippines, Turkey and Indonesia, as well as the lessons
learnt from the Bank’s Palestinian Non-Governmental Organization (PNGO) Project in the
Palestinian territories. The proposed project will build on the findings and recommendations
of the FY13 CSOs Mapping and Capacity Assessment study that is underway in Yemen. It
will also inform the preparation of the Civil Society Support Project requested by the
Government of Yemen for FY14.
C. Higher Level Objectives to which the Project Contributes
14. The Bank adopted an Interim Strategy Note (ISN) in October 2012 to lay out the World
Bank Group’s strategy of support to Yemen for FY2013–2014, corresponding to the
current transition period and its immediate aftermath. The ISN aims to help the
Government produce tangible results that stabilize the transition in the short term, while
laying the groundwork for medium-term reforms and sustainable longer-term benefits. The
ISN proposes to support these objectives across three strategic pillars: (i) achieving quick
wins and protecting the poor by creating short-term jobs, restoring basic services, improving
6
Reducing Conflict Risk: Conflict, Fragility and Development in the Middle East and North Africa. World Bank
2011, pg. ix-x.
7
A Landscape of Civil Society in Yemen: Issues and Options for World Bank Country Program. World Bank,
Internal Report for Regional Management, 2010, pg. 9.
8
Interim Strategy Note for the Republic of Yemen, FY 2013-2014. World Bank 2012, pg. i.
9
The paragraph builds on World Development Report 2011: Conflict, Security, and Development. World Bank,
2011. pg. 13.
10
More about the ISN’s objectives in Section: C. Higher Level Objectives to which the Project Contributes.
4
access to social safety nets, and revitalizing livelihoods; (ii) promoting growth and improving
economic management by helping maintain macro stability, strengthening fiscal policies and
public financial management, and improving the enabling environment for private sector
growth and competitiveness; and (iii) enhancing governance and local service delivery by
supporting transparency, accountability, capacity building, institutional strengthening, and
improved citizen engagement. The implementation of the ISN is guided by three principles
that will be mainstreamed across the program: (i) intensifying participation and inclusion,
especially among women and young people; (ii) strengthening institutional capacity,
governance, transparency, and accountability; and (iii) enhancing the operational flexibility
of the Bank’s program. Adhering to these principles will be critical if the collective efforts of
the Government and donor community are to produce long-lasting development impact.
15. The proposed Government-CSOs Partnership Project directly links to the ISN pillar
(iii) enhancing governance and local service delivery by supporting transparency,
accountability, capacity building, institutional strengthening, and improved citizen
engagement. Additionally, the proposed project directly links to the ISN’s implementation
principles of: (a) intensifying participation and inclusion, especially among women and
young people; and (b) strengthening institutional capacity, governance, transparency, and
accountability. Specifically, through facilitating an informed dialogue between line ministries
and CSOs, and supporting their efforts to agree on a PMAF with a results-oriented action
plan for each targeted pilot sector, the project will help to promote more inclusive
implementation of various sectoral development programs as well as the ISN’s objective of
engaging with non-government actors. More broadly, the proposed project will contribute to
enhancing the development impact of the Bank and other donor supported programs.
Additionally, CSOs will engage with government institutions in channeling community
grievances that will thus be addressed more effectively and in a timely manner. Inclusive
partnerships will give voice to various groups, including women and youth, and promote
responsive and accountable service delivery especially at the local level. These actions are
critical for rebuilding trust between stakeholders and the legitimacy of state institutions,
which will contribute to reducing the overall conflict risk in the country. 11
II.
PROJECT DEVELOPMENT OBJECTIVES
A. PDO
The development objective of the proposed project is to enhance Government-CSOs
partnerships in the implementation and monitoring of sector development programs.
Project Stakeholders and Beneficiaries
16. The main target audiences for the proposed project will be the Ministry of Planning and
International Cooperation (MoPIC), the Ministry of Social Affairs (MoSA), participating
In “Reducing Conflict Risk: Conflict, Fragility and Development in the Middle East and North Africa WDR
(World Bank 2011), large youth cohorts combined with economic decline is one of the main drivers of conflict in
the MENA region. “Reducing Conflict Risk: Conflict, Fragility and Development in the Middle East and North
Africa”. World Bank 2011, pg. 9-10.
11
5
sector-mapped CSOs and line ministries, the Bank’s Country Management Unit and the
Country Team. The broader audience also includes donors and INGOs engaged in
operational work across sectors in Yemen, as well as the CSO community at large.
(a) Government of Yemen ministries: MoPIC requested the proposed project that bridges the
FY13 CSO Mapping and Capacity Assessment study and the planned Civil Society
Support Project, requested by the Government. The list of sector ministries which will be
part of this Project is yet to be finalized.
(b) Civil Society Organizations: CSOs have been recognized as key development partners by
the GNR and the international community. The project will give them a seat at the table
to take part in defining the PMAF of engagement with the Government in development
operations and in select pilot sectors. The project will also enable CSOs to strengthen
their own institutional capacities in order to better perform as development partners. The
dialogue with line ministries will give the CSOs the opportunity to voice their vision of
development priorities and better understand reform tradeoffs that underpin policy
decisions or the formulation of development programs. This will help them identify entry
points for sustainable partnerships with the Government and key donors. Sector mapped
CSOs that will take part in the implementation of the SAPs will receive capacity building
on social accountability concepts and tools and grant-financing support through the
Affiliated Network for Social Accountability in the Arab World (ANSA-AW). The CSOs
that will be mapped to the sectors where pilot SAPs will be implemented are the main
target of the training sessions on social accountability to improve the operational skills.
(c) Women CSOs and Youth Groups: The CSOs which are led by and engaged in
representing women and youth identified in the CSO Mapping and Capacity Assessment
study will be called on to contribute and partake in this project. This will give them voice
to influence a more gendered and overall more inclusive approach in the preparation,
implementation and monitoring of Government development programs.
(d) Donors and INGOs: At the Riyadh donor conference in September 2012, the
international community committed to supporting Yemen’s institution-building. The
resulting Mutual Accountability Framework (MAF) commits both the GNR and donors
to a set of specific development actions. This project complements the objectives of the
MAF and supports more effective delivery of various donor supported programs. The
proposed project is also in line with various donor and INGO programs involving the
CSO community in Yemen.12
(e) Citizens: The general population of Yemen is expected to benefit from a sustainable
Government-CSO partnership at the national level. At the sectoral level, citizens living in
the targeted governorates and benefiting from the pilot sectors’ development programs
are also expected to benefit over the time through better service delivery. Additionally,
the partnership between line ministries and sector mapped CSOs will improve the
implementation and monitoring of development programs and enhance citizens’
participation and inclusion.
12
See above for a brief summary of current donor activities.
6
PDO Level Results Indicators
17. The expected key results of the Government-CSOs Partnership Project are:
(a) Enhanced capacity and knowledge of the Government and CSOs regarding the value of
partnership and participation as critical factors in improving development outcomes.
(b) Clearly defined frameworks for mutual collaboration, partnership and accountability
between the Government and CSOs to enhance participation and inclusion, and to
improve development results in select sectors.
(c) Improved on-the-ground collaboration and partnership between the Government and
CSOs for enhanced participation and inclusion, and improved development results in
select sectors.
18. Results indicators for the project are:
(a) Number of partnerships formalized between government(s) and civil society
organizations;
(b) Number of CSOs representing rural and urban constituencies engaged in the dialogue;
(c) Number of women and youth groups directly engaged in project’s activities;
(d) Number of direct project beneficiaries, of which female (%)
III. PROJECT DESCRIPTION
19. In the context of Yemen, Government-CSOs engagement and partnership needs to be
supported by a pragmatic approach and mechanisms for genuine dialogue. Through technical
assistance the proposed project will facilitate the Government-CSOs dialogue and the joint
formulation of a Partnership and Mutual Accountability Framework (PMAF), and
subsequently, sector-specific action plans (SAPs) between line ministries and CSOs working
on select sectors. The joint PMAF will help clarify the rules and principles of partnership and
accountability between the Government and CSOs. It is critical to operationalize this PMAF
on a pilot basis in select sectors to test its feasibility and improve its implementation. The
project’s select pilot sectors will be identified in consultation with sectors, MOPIC and line
ministries after the completion of the FY13 CSO Mapping and Capacity Assessment study
and the proposed sectoral dialogue sessions. Given the emphasis on service delivery and
decentralization, the pilot sectors are likely to be from the health, education, social
protection, water supply, and sanitation sectors.
20. The following principles lay the ground for the dialogue towards formulating the PMAF and
the pilot SAPs, while giving them the responsibility to agree on the partnership rules and
principles:
(a) The Government seeks to: (i) improve operational collaboration and coordination with
CSOs on sectoral development programs, (ii) harness community participation more
effectively, (iii) and promote CSOs contributions to service provision and support to
more inclusive development programs;
(b) CSOs seek a constructive engagement with the Government at the national and sectoral
levels on specific development and reform programs;
7
(c) Government and CSOs develop an effective process to develop the PMAF, especially
through implementing specific SAPs on a pilot basis in select sectors in close
coordination between line ministries and sector mapped CSOs; and
(d) Government and CSOs consider various tools to improve the partnership including
reforms of laws and regulations relating to the sector.
21. The proposed Project will be implemented through two tracks: a Bank-executed track aimed
at distilling international and regional experiences of the demand and supply side
perspectives on government-CSO partnerships (the Bank with its international experience
being better placed to implement this component), and a Recipient-executed track with the
objective of organizing and facilitating sector dialogue sessions.
22. 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 MultiDonor Trust Fund on Gender Operations and Programs.
A. Project Components
23. 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)
24. 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,
8
the Palestinian NGO experience with regard to NGO self-regulation for improved internal
governance and social service delivery, will also be presented and discussed.
25. 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.
26. Under this component, the following will be financed :
a) National Learning Forum on Government-CSO partnership experiences, and a
summary note
b) Technical assistance to Line Ministries
c) Project management and oversight
Component Two – Partnership and Mutual Accountability for Improved Participation and
Inclusion (US$520,000 - Recipient-executed):
27. 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.
28. 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
9
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:
a) Preparation and organization of sector dialogue sessions
b) Development and validation of PMAF
c) 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):
29. 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.
30. 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.
31. 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:
a) Preparation and formulation of Sector Action Plans
b) Preparatory work to implement SAPs
10
c) Outreach and dissemination
d) Monitoring and evaluation
B. Project Financing
32. Project Cost and Financing:
Table 1: Project Costs and Financing (Bank-Executed)
Bank Executed
USD
USD
2014
2015
Project Components and Outputs
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
Sub Total
210,000
100,000
90,000
60,000
40,000
370,000
130,000
11
Table 2: Project Costs and Financing (Recipient-Executed)
Recipient Executed
US$
US$
2014
2015
Project Components and Outputs
Component Two: Partnership and
Mutual Accountability (Recipientexecuted):
- 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
Sub Total
120,000
80,000
100,000
150,000
70,000
============= ===========
120,000
70,000
100,000
540,000
150,000
40,000
460,000
Grand Total
1,500,000
C. Lessons Learned from Countries in Transition and Reflected in the Project Design
33. 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.
(a) 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.
12
(b) 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.
(c) 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.
(d) 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.
34. 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.
IV. IMPLEMENTATION
A. Institutional and Implementation Arrangements
Implementation Agency Assessment
35. 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
13
inclusive approach to promote all stakeholders’ buy-in to the dialogue process, is a crosssectoral 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.
36. 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.
B. Results Monitoring and Evaluation
37. 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.
38. 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).
C. Sustainability
39. 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.
14
V.
KEY RISKS AND MITIGATION MEASURES
A. Risk Ratings Summary Table
Stakeholder Risk
Substantial
Implementing Agency Risk
- Capacity
Moderate
- Governance
Low
Project Risk
- Design
Substantial
- Social and Environmental
Low
- Program and Donor
Moderate
- Delivery Monitoring and Sustainability
Substantial
Overall Implementation Risk
Substantial
B. Overall Risk Rating Explanation
40. 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.
VI. APPRAISAL SUMMARY
A. Economic and Financial Analyses
41. 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.
42. 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
15
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.
B. Technical
43. 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.
C. Financial Management
44. 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 wellfunctioning 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.
D. Procurement
45. 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.
46. 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.
47. 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
16
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
48. 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.
E. Social (including Safeguards)
49. 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.
F. Environment (including Safeguards)
50. 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..
17
Annex 1: Results Framework and Monitoring
REPUBLIC OF YEMEN: Government-CSOs Partnership Project
PDO Level Results
Indicators*
Core
Results Framework
Unit of
Measure
Cumulative Target Values**
Data Source/
Methodology
Frequency
Baseline
YR 1
Responsibility
for Data
Collection
YR 2
Indicator One: Number of
partnerships formalized
between government(s) and
civil society organizations
Number
0
-
10
Semiannually
1.
Partnership
agreements
reported by
MOPIC
GovernmentCSOs
Partnership
Project
implementation
unit and ,
MOPIC
Indicator Two: Number of
CSOs representing rural and
urban constituencies engaged
in the dialogue
Number
0
25
50
Semiannually;
Once –
within 6
months of
project
completion
1.
Monitoring
report
Independent
verification
after project
completion
GovernmentCSOs
Partnership
Project
implementation
unit and ,
MOPIC
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
Indicator Four: Number of
direct project beneficiaries, of
Number
0
0
0
Once –
within 6
Independent
verification after
18
2.
World Bank
GovernmentCSOs
Partnership
Project
implementation
unit and ,
MOPIC
World Bank
GovernmentCSOs
which female (%)13
months of
project
completion
project
completion
Partnership
Project
implementation
unit and ,
MOPIC
World Bank
PDO Level Results Indicators*
Core
INTERMEDIATE RESULTS
Unit of
Measure
Cumulative Target
Values**
Baseline
Frequency
Data Source/
Methodology
Responsibility
for Data
Collection
YR 1
YR 2
Intermediate Results (Component One): Successfully disseminating knowledge for developing partnerships (Bank-executed)
1.
National Learning Forum held
Yes / no
No
Yes
Yes
Once
Forum
Completion
Report
2.
Number of government officials and CSO
representatives jointly trained in capacity
building workshops
Number
0
50
100
Semi-Annually
Monitoring
report
GovernmentCSOs
Partnership
Project
implementation
unit and
MOPIC
3.
Technical assistance notes
Number
0
-
2
Implementation
Status Reports
World Bank
4.
Sector Dialogue Sessions
Number
0
2
4
Upon
completion of
notes
Ongoing
Monitoring
report
GovernmentCSOs
Partnership
Project
implementation
unit and
MOPIC
GovernmentCSOs
Partnership
Project
implementation
unit and
MOPIC
World Bank
13
Target numbers will be specified based on the findings from the FY13 Mapping and Capacity Assessment study.
19
5.
Development of a Partnership and Mutual
Accountability Framework
Yes / no
No
6.
Creation of Sector Participation Committees
(comprising representatives from line ministries
and CSOs) to sustain dialogue and collaboration
Number
0
-
Yes
Once
Monitoring
report
2
Semi-Annually
Monitoring
report
GovernmentCSOs
Partnership
Project
implementation
unit and
MOPIC
GovernmentCSOs
Partnership
Project
implementation
unit and
MOPIC
Intermediate Result (Component Three): Successfully developing Sector Action Plans (SAPs) for effective development results (Recipient-executed)
7.
Number of Sector Action Plans (SAP) to
promote government-CSO collaboration
Number
0
-
2
Semi-Annually
Monitoring
report
8.
Number of sector networks/coalitions created
Number
0
-
2
Semi-Annually
Monitoring
report
9.
Number of identified actions in SAPs
implemented
Number
0
-
5 out of
10
Once
Implementation
Status Reports
World Bank
Monitoring
report
World Bank
10. Number of direct project beneficiaries, of which
female (%)14
14
Number
Target numbers will be specified based on the findings from the FY13 Mapping and Capacity Assessment study.
20
GovernmentCSOs
Partnership
Project
implementation
unit and
MOPIC
GovernmentCSOs
Partnership
Project
implementation
unit and
MOPIC
Annex 2: Detailed Project Description
REPUBLIC OF YEMEN: Government-CSOs Partnership Project
1. The proposed project aims to enhance Government-CSOs partnership in the implementation
and monitoring of sector development programs. This focus stems from the global
experience that shows how government-CSOs partnerships can help the government to
increase the sustainability of its reforms and improve participation and inclusion which
promotes effective development results.
2. Literature on change emphasizes the importance of stakeholders’ sustainable collaboration.
Partnerships are increasingly necessary to solve development challenges because individual
stakeholders do not have all the functional means to provide for change. Although collective
action can be challenging, coalitions for reform and networks often emerge around shared
vision of development issues or priority reforms. By making development issues the focus of
engagement, the process of change pushes stakeholders to identify their key concerns, what
they involve, and how they can be collectively addressed. As a result, stakeholders learn to
look for contextually relevant opportunities for change, and build the necessary processes for
change to happen. This process requires collective identification of problems and solutions
by stakeholders. Global experience shows that joint learning from lessons learnt in other
countries during similar transition periods can help stakeholders to better contextualize the
development issues and work collectively towards a shared vision of the way forward in
terms of collaboration and partnerships.
3. In the context of Yemen, while engaging with CSOs will help the Government to increase the
sustainability of its reforms and improve the results of its development programs, it still
needs to be supported by a pragmatic approach and mechanisms for genuine dialogue to
jointly define a Partnership and Mutual Accountability Framework (PMAF), clarifying the
rules and principles of partnership and accountability. It is also critical to operationalize the
PMAF on a pilot basis in select sectors to test its feasibility and improve its implementation.
The following principles lay the ground for the dialogue towards formulating the PMAF and
the pilot Sector Action Plans:
(a) The Government seeks to: (i) improve operational collaboration and coordination with
CSOs on sectoral development programs, (ii) harness community participation more
effectively, (iii) and promote CSOs contributions to service provision and support to
more inclusive development programs;
(b) CSOs seek a constructive engagement with the Government at the national and sectoral
levels on specific development and reform programs;
(c) Government and CSOs develop an effective process to evolve the PMAF, especially
through implementing specific SAPs on a pilot basis in select sectors in close
coordination between line ministries and sector mapped CSOs; and
(d) Government and CSOs consider various tools to improve the partnership including
reforms of laws and regulations relating to the sector.
These principles will shape the dialogue between the stakeholders and guide their discussion
towards expanding the number of collaboration options while giving them the responsibility
to agree on the partnership rules and principles.
21
4. Through its three components the project will help foster a dialogue between line ministries
and sector mapped CSOs working on service delivery, participation and decentralization
programs. This 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 will be developed in select sectors on a pilot basis. The
dialogue will build on the findings and operational recommendations of the CSO Mapping
and Capacity Assessment study that will inform both the proposed activity as well as the
upcoming Civil Society Support Project
5. The project will draw on research related to activation of multi-sectoral networks and
coalitions for governance. It aims to organize, as a first step, a National Learning Forum to
distill lessons from international and regional experiences and the CSO Mapping and
Capacity Assessment study. This will be followed by a series of parallel sector dialogue
sessions between line ministries and the sector mapped CSOs. Based on the results of the
dialogue sessions SAPs for select sectors will be developed on a pilot basis. The pilot SAP
will be implemented within the defined framework of the PMAF. This sequenced dialogue
will allow for the initiation of a gradual participatory process from joint learning and
discussion of sector development issues to formulating specific collaborative action plans.
6. The participants of the parallel sector dialogue sessions to follow the National Learning
Forum will be representatives of line ministries and sector mapped CSOs that will be
identified by the mapping exercise as a part of the CSO Mapping and Capacity Assessment
study. The participation will reflect the variance in age, gender and diversity of the CSO
community in Yemen. The results of the parallel sector dialogue sessions will help to build a
shared vision of development priorities and challenges in targeted sectors, which will then be
presented at a joint workshop to allow for broader consultation and consensus-building. In
the final general meeting, the participants will then collaboratively define and agree on the
draft PMAF. As a last step, based on the developed synergies, the participants will agree on
pilot sectors that will take the lead on formulating and piloting the implementation of sector
specific results-oriented action plans. Focusing the scope of the SAPs to specific pilot sectors
will provide a likelihood of effective implementation and has more potential for impact in
terms of raising awareness of the feasibility and importance of partnerships for development.
While the proposed project will support CSOs’ constructive engagement with the
Government on the implementation and monitoring of ongoing development programs, it
will also set the ground for operationalizing the donors’ pledge of US$7.5 billion for
development programs during the transition period. The PMAF will also be key in supporting
the Government in the implementation and monitoring of development projects in an
inclusive and participatory manner.
7. Two technical assistance notes will be produced through this process to inform public
policies and programs of the Government of Yemen, as well as donors and the CSO
community: (i) a note collecting lessons learnt from government-CSO partnerships in other
countries that went through political and economic transitions, such as the Philippines and
Indonesia. At the regional level, the note will illustrate the experience of the self-regulated
CSO community in the Palestinian territories, and its impact on CSOs’ internal governance
and efficiency gains in service delivery; and (ii) a note on the complementarities and overlaps
22
between the Government and CSOs in targeted sectors based on line ministries’ and CSOs’
parallel sector dialogue sessions. Both notes will be translated into Arabic and disseminated
widely. The agreed PMAF, which will provide the framework for an inclusive and
sustainable collaboration between the Government and CSOs, will also be published. Finally,
the results oriented action plans (SAPs) for pilot sectors that have been identified during the
sector dialogue sessions will be developed jointly by targeted line ministries and CSOs that
are active in the same sector and will focus on the implementation and monitoring of specific
sector development programs. This sequenced process will lay the necessary foundations for
a sustainable partnership between the Government and CSOs.
8. The proposed Project will have two tracks: a Bank-executed track aimed at distilling
international and regional experiences and presenting both the demand and supply side
perspectives on government-CSO partnerships, and a Recipient-executed track with the
objective of leading the process of organizing and facilitating sector dialogue sessions.
Project Components
Component One: Knowledge for Development Partnership (Bank-executed)
9. A cornerstone of the change process towards sustainable partnerships is learning from
experiences in the countries that have undergone similar transitions. In addition to learning
from international and regional experiences, the project will facilitate interactions across
different stakeholder groups. These interactions have traditionally been limited in Yemen,
contributing to a lack of trust and collaboration. Bringing different groups together towards a
common objective will help break down barriers and facilitate spaces for dialogue. The
World Bank, as a global and regional convener of development stakeholders and connector
of practitioner groups to knowledge and other resources, is in a unique position to support
this kind of multi-stakeholder, broad-based approach, working in partnership with other
institutions. 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. 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. From the Middle East
and North Africa region, the Palestinian NGO experience with regard to self-regulation for
improved networking and internal governance, and in the field of service delivery, will also
be presented and discussed. This particular experience from the region is of high importance
to many CSOs and government actors in Yemen. A note summarizing these experiences will
be produced and disseminated in Arabic.
10. 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.
Discussions will be documented, translated and disseminated widely after the event.
23
Component Two – Partnership and Mutual Accountability for Improved Participation and
Inclusion (Recipient-executed):
11. Parallel dialogue sessions between line ministries and CSOs that are active in the same
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, as
well as 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 by experts/facilitators of multi-stakeholder coalition and
partnership building. The draft PMAF will be discussed and validated at a general meeting
with all participants. The validated PMAF in the targeted sectors will be submitted to MoPIC
and disseminated.
Component Three – Sector Action Plans for Improved Development Results and Capacity
Building Activities (Recipient-executed):
12. Given that any reform is a long-term process, and rests on the credibility of effectiveness of
formal and informal institutions, it is important to test the feasibility of the PMAF through
sector-specific, results oriented action plans. An important lesson from international
experiences on government-CSO partnerships shows that having a sectoral focus ensures
more development effectiveness by concentrating coordinated interventions on specific
sector projects. Based on the outcomes of the parallel sector dialogue sessions and building
on the synergies that will have emerged from drafting the PMAF, SAPs that are results
oriented will be jointly formulated in select sectors by CSOs and line ministries
collaboratively as a pilot initiative. In the context of Yemen, it will also be more effective to
narrow down the geographic scope of the action plans 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.
13. Recognizing the need to build the capacity of CSOs through action learning to implement
and monitor inclusive development projects while facilitating participation and giving voice
to local communities and marginalized groups, the project will dovetail CSOs’ capacity
building efforts with the ongoing capacity building program of Affiliated Network for Social
24
Accountability in the Arab World (ANSA-AW)15. Several capacity building sessions on the
approach and concept of social accountability have already been organized at the regional
and country levels in MNA by ANSA-AW. Capacity building needs identified in the SAPs
will be addressed through ANSA-AW’s programs.
14. Another component of ANSA-AW is an action learning 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. The promotion of social accountability initiatives by sector mapped CSOs in
collaboration with select line ministries in Government development projects in Yemen,
through ANSA-AW capacity building and grants programs, 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.
15
ANSA-AW is a regional network of practitioners on participatory governance and social accountability modeled
after similar networks established in South Asia and East Asia Pacific, but tailored to the Arab world. ANSA-Arab
World serves as a platform for engagement and dialogue with civil society organizations (CSOs) and governments
25
Annex 3: Implementation Arrangements
REPUBLIC OF YEMEN: Government-CSOs Partnership Project
Institutions
1. The project will be implemented by the Ministry of Planning and International Cooperation
(MoPIC). The ministry is well positioned to ensure a transparent and inclusive approach to
promote all stakeholders’ buy-in to the dialogue process. MoPIC has also more leverage in
terms of coordination with various line ministries, with the Ministry of Social Affairs, CSOs
as well as key donors. The MoPIC Economic Studies and Forecasts unit will be in charge of
putting in place the various workshops and following up on the outreach and dissemination
activities. The Economic Studies and Forecasts unit is established for more than ten years
and has been implementing UNDP and World Bank funded projects. For an enhanced
implementation, an individual local consultant will be hired to provide “in-house” support to
MoPIC teams in terms of coordination with project stakeholders and a sequenced
implementation of the project activities on a daily basis. He will alos provide support for
follow up actions and liaison with the Labor Intensive Public Works Project PMU who will
be responsible for all financial transactions.
Technical Assistance
2. MoPIC, line ministries and sector mapped CSOs are expected to require technical assistance
on coalition building, developing a PMAF as well as results-oriented action plans and M&E.
Technical assistance will be provided by Bank staff and consultants to advise on the design
the implementation at every stage of the project. The Bank will employ staff and consultants
to support technical assistance needs.
Financial Management
3. The Labor Intensive Public Works Project PMU will be in charge of financial management
and procurement. The PMU is composed of experienced teams and 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.
Procurement
4. Procurement for the project will be administered in accordance with the World Bank’s
Guidelines. 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. 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
26
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.
Trust Fund Arrangements
5. Recipient-Executed Components (Component 2-3): The Deauville Partnership Transition
Fund (DPTF) first enters into a Financial Procedures Agreement with the World Bank as the
Implementation Support Agency. Upon approval by the Steering Committee of the DPTF of
the grant application for the proposed project the Bank, acting as Implementation Support
Agency (ISA), will enter into a Grant Agreement with MoPIC which according to the
provisions of the DPTF Operation Manual and the Transition Fund Grant Application is a
Recipient Entity for the purposes of this grant.
6. Bank Executed Component (Component 1): The Deauville Partnership Transition Fund
(DPTF) signs a Grant Agreement with the World Bank as recipient and implementing agency
with endorsement from the Government of Yemen represented by MoPIC for bank-execution
of the component.
Coordination with Donors and Other National Entities
7. The Bank will maintain coordination with Donors, INGOs and other national entities
implementing activities with CSOs, particularly in the area of service delivery to ensure
continued synergy and regular flow of information on project activities.
Safeguards
8. Social and environmental safeguards are not expected to be triggered.
27
Annex 4: Operational Risk Assessment Framework (ORAF)
REPUBLIC OF YEMEN: Government-CSOs Partnership Project
Stage: Appraisal
1.
Project Stakeholder Risks
Description:
(i) Given that the project’s focus is on dialogue and consensus building
between the Government and CSOs, there is a risk that the stakeholders’
dialogue is impacted negatively by an unanticipated shift in the political,
security, governance and civil society environment.
Description:
(ii) The growing number of CSOs in Yemen during the current transition
and the fragmentation of the CSO community as well as the tensions
associated with the multiple fault lines that characterize Yemen social
fabric limit the ability of some groups to collaborate with each other.
The low capacity and lack of CSOs networking may also hamper or
delay the consensus-building based dialogue between CSOs and the
government.
2.
Rating
Substantial
Risk Management:
The ongoing transition in Yemen has created a unique opportunity to facilitate a dialogue between the
government and CSOs that support inclusive and collaborative approaches. The Government has increasingly
embraced the transformations in the CSOs landscape and despite many challenges, the Government and various
development CSOs are trying to find ways to better define mechanisms of collaboration.
Risk Management:
A CSO Mapping and Capacity Assessment Study is underway to map the evolving NGO landscape to identify
the key development NGOs working on service delivery, participation, decentralization and institution building,
including women and youth organizations in five governorates and at the national level. The study will also
identify the sectoral and thematic focus of these NGOs, as well as their size, influence and effectiveness.
Resp: Bank
Stage: Preparation
Due Date: May 2013
Status: ongoing
Operating Environment Risks (Note for information: this section is not disclosed at negotiation and Board presentation stages)
2.1 Country (Note for information: this section is not disclosed at
negotiation and Board presentation stages)
Rating
Substantial
(i) Politics: With February 21 polls, a political transition and a national
dialogue was launched putting an end to the 33-year rule of President
Saleh. The single-candidate presidential election featured Abdu Rabu
Mansour Hadi, who served as Saleh's vice president and has now assumed
the presidency. Although violence is reported in the south and in Sa’ada,
other major cities as well as Sana’a are relatively quiet. The political gains
are fragile, The military still divided and several provinces are still outside
the central government control.
Risk Management:
Suspension of WB disbursements was lifted on January 20, 2012 and the Bank office is now open, with a core
team led by the Country Manager, who is back in Yemen. The Bank is closely monitoring the situation and will
adjust as needed.
(ii) Fiduciary Management: The main risk is related to the misuse of
resources made available under Bank Group-financed projects
Risk Management:
The Bank is closely monitoring the situation and stands ready to provide assistance in this area when the
government is ready.
Resp: Bank
Resp: Bank
Stage:
Implementation
Preparation
Stage:
28
Due Date:
Due Date:
Status:
Status:
Ongoing
Ongoing
(iii) Corruption: There is a perception of widespread corruption in the
country. The Government had taken steps towards improving governance
and fighting corruption. These includes:
-Investigations of corruption complaints by the Supreme National
Authority for Combating Corruption (SNACC) established in 2006
- The ratification of the Financial Disclosure Bill in August 2006 under
which senior civil servants are to disclose their assets to the SNACC.
(iv) Economic Management: Fiscal sustainability continues to be
macroeconomic challenge in Yemen, as the reduction of oil revenues is
not sufficiently compensated by increased revenues from other sources.
The recent political crisis resulted in oil and food shortages which
deteriorated the humanitarian situation. With the political transition now
in place, the shortages have abated although the humanitarian crisis
continues.
2.2. Sector/multi-sector (Note for information: this section is not
disclosed at negotiation and Board presentation stages)
Description: The pioneering nature of the Project, the difficult transition
period, the weak capacities of key Government ministries and the
fragmented CSO landscape will pose challenges in ensuring strong
continued ownership by key stakeholders.
Risk Management:
Close monitoring of governance indicators and progress made in improving the situation. The Bank is also
providing support to few initiatives, including Public Financial Management that will improve government ability
to fight corruption.
Resp: Client
Preparation
Stage:
Ongoing
Resp: Client
Stage: Preparation
Due Date:
Status: Ongoing
Substantial
Rating:
Risk Management:
MoPIC has expressed a strong interest in the Project and several CSOs working in various development areas
were consulted and they have welcomed the project. Consultations will continue with line Ministries, other
government institutions, CSOs and donors. Consultation and coordination with the Ministry of Social Affairs
and donors will also be in place on a continuous basis
Stage: Preparation
Due Date: Continuous
Status:
Implementing Agency Risks (including fiduciary)
3.1. Capacity
Description: The project will be implemented by the PMU of the Labor
Intensive Public Works Project under MoPIC. The capacity of some of
the sectoral CSOs may pose a challenge.
Rating:
Moderate
Risk Management: The PMU has proved its capacity to respond to donors criteria while taking into
consideration targeted groups’ needs and constraints as well as the ability to report in a timely manner to
different donors. Where required, the CSOs will be provided targeted facilitation and support to execute their
part of the partnership.
Resp:
3.2.
Status:
Risk Management
The Bank is working with the IMF and other development partners to help government improve Economic
Management during these challenging times.
Resp: Bank and Government
3.
Due Date:
Governance
Description: There is risk of weak inter-ministerial coordination
between line ministries and MoPIC.
Client
Rating:
Stage: Implementation
Due Date: Continuous
Status: not yet due
Low
Risk Management: The team will support the MoPIC in establishing clear and transparent communication
channels with line ministries to ensure a regular flow of information throughout the project preparation and
implementation in order to address any issues upfront.
Status:
Stage: Preparation and
implementation
Resp: Client
4. Project Risks
4.1. Design
Description:
Rating:
Substantial
Risk Management :
29
Due Date: Continuous
Description: The Project design is based on multi-stakeholders coalition
building. The CSOs low capacity as well as the current fluid political
context and the weak governance may hamper or delay the consensusbuilding based dialogue between CSOs and the Government.
Also, given the difficult security context, it may be difficult to
implement, monitor and supervise the results-oriented sector action
plans.
Resp:
Social & Environmental
Stage: Implementation
Client and Bank
Rating:
Stage: Implementation
Due Date : Continous
Status:
Stage: Preparation and
Implementation
Due Date :
Status:
Stage: Preparation
Due Date :
Status:
Low
Risk Management : Environmental Management Plan
4.3.
Rating:
Resp:
Resp:
4.4.
Delivery Monitoring & Sustainability
Description: Monitoring of Project delivery may be a challenge due to
the uncertainties of the transition period and potential political shifts.
There is also a risk associated with the likelihood of weak capacity and
reporting.
Rating:
Other
Description: Possibility of an upsurge in political unrest and insecurity
could hamper or delay project implementation.
Moderate
Bank
Substantial
Client
Stage: Implementation
Due Date :
Status:
Risk Management: The PMAF created as a part of the project will establish clear mechanisms of engagement.
The pilot results-oriented action plans will help operationalize the PMAF while feeding into the preparation of
the Civil Society Support project which will help consolidate these coordination and partnership mechanisms.
Resp:
4.5.
Client
Risk Management: To mitigate this risk, the project provides for technical assistance to support MoPIC and
line ministries. Local consultants will also provide support in terms of coordination, event organization and
follow up. For the implementation of sector action plans, the use of third party monitoring, as currently being
established by the CMU across the portfolio, is also expected to mitigate this risk.
Resp:
Description: Both the GoY and the CSOs may face a challenge in
sustaining the partnership beyond the duration of the project.
Status:
The project’s activities will be based in Sanaa, making sure that participants to all project components can travel
to Sanaa and do represent different governorates and regions. The results-oriented action plans will exclude
activities in the most difficult regions, namely Saada and Abyan, due to their high security risk even for locals.
Description: The nature of most of the activities will be procurement of
services and other intangibles, with possible small scale goods or capital
equipment which are not anticipated to have any major or irreversible
environmental impacts. Consequently, the project is not expected to
trigger any safeguards and will include a negative list to screen out
potential social or environmental safeguards in the operations manual.
Program & Donor
Due Date :
Risk Management: The team will ensure that a transparent and inclusive process is in place and will support
MoPIC in holding regular consultations to be able to address issues upfront. All meetings proceedings will be
documented and published as well as documents that will be agreed on by the stakeholders. A targeted
assistance will also be provided to CSOs as needed.
Resp:
4.2.
Client
Rating:
Client
Stage: Implementation
Due Date :
Status:
High
Risk Management: If there is a major deterioration of the political context due to internal or external
circumstances at the national level, the project can only mitigate the risk by including crisis management
processes that would likely include stabilization measures, delocalization of the dialogue sessions to a
neighboring country and potential shifts between project components.
Stage: Preparation and
Resp: Client and Bank
Due Date:
Status:
Implementation
Non-disclosable Information for Management Attention (Optional) (Note for information: this section is not disclosed at negotiation and Board presentation stages)
Comments:
30
5.
Project Team Proposed Rating Before Review
5.1. Preparation Risk Rating: Substantive
Comments: The preparation risk for this project is substantial because of country context,
CSOs low capacity as well as risks related to the consensus building aspect of the project.
However, the foundations to be laid by the ongoing CSO mapping and capacity assessment
study; the diligent involvement of MoPIC and the careful and sequenced design of the
project is expected to mitigate some of these risks.
6.
5.2 Implementation Risk Rating: Substantive
Comments: The implementation risk for this operation is substantial because of country
context. The low capacity and the governance environment present risks during project
implementation and require mitigation. The incorporation of technical assistance into the
implementation of the components as well as use of local consultants and maintaining
flexibility and adaptability, is expected to mitigate the risks to the extent possible.
Implementation risks are, however, likely to remain substantial throughout the duration of the
project.
Overall Risk Following Review
6.1. Preparation Risk Rating:
Comments:
7.2 Implementation Risk Rating:
Comments:
31
Annex 5: Implementation Support Plan
REPUBLIC OF YEMEN: Government-CSOs Partnership Project
Strategy and Approach for Implementation Support
1.
The World Bank will support the implementation of this project through a combination of
fiduciary and technical supervision, technical assistance, monitoring and evaluation, as
well as coordination. These activities will be implemented by teams composed of Bank
staff, consultants as well as experts in coalition building.
2.
Through a pragmatic approach to coalition building, the project will facilitate an
informed dialogue between line ministries and CSOs based on a transparent process
throughout the project implementation. The findings of the CSO mapping and assessment
study will shed light on the existing CSOs as well as their sphere of influence which will
facilitate targeting CSOs that are seeking a constructive engagement with the
Government and will reduce the risk of confrontation. This approach will enhance the
dialogue, the joint formulation of a PMAF and will have a direct impact on participatory
and inclusive implementation and monitoring of various sectoral development programs.
3.
The focus on CSO and line ministries capacity building, will strengthen the project’s
sustainability and will have an overall effect on mitigating the risk linked with the project
implementation in a sensitive transition period. Additionally, with the establishment of
Participation Committees, CSOs will engage with government institutions in channeling
community grievances that will, thus, have a positive impact on mitigating conflict risk
and build trust in state institutions. The team will ensure that a transparent and inclusive
process is in place throughout the project and will support MoPIC in holding regular
consultations to be able to address issues upfront. All meetings proceedings will be
documented and published as well as documents that will be agreed on by the
stakeholders. A targeted assistance will also be provided to CSOs as needed.
4.
Regarding implementing agency risk, the PMU has proved its capacity to respond to
donors criteria while taking into consideration targeted groups’ needs and constraints as
well as the ability to report in a timely manner to different donors. Where required, the
CSOs will be provided targeted facilitation and support to execute their part of the
partnership. The team will support the MoPIC in establishing clear and transparent
communication channels with project stakeholders to ensure a regular flow of
information throughout the project preparation and implementation which will help
address issues upfront.
5.
To mitigate delivery monitoring and sustainability risk, the project provides for technical
assistance to support MoPIC. Local consultants will also provide support in terms of wop
organization, outreach and dissemination as well as follow up. For the implementation of
Sector Action Plans, the use of third party monitoring, as currently being established by
the CMU across the portfolio, is also expected to mitigate this risk. If there is a major
deterioration of the political context due to internal or external circumstances at the
32
national level, the project can only mitigate the risk by including crisis management
processes that would likely include stabilization measures, delocalization of the dialogue
sessions to a neighboring country and potential shifts between project components.
Implementation Support Plan
6.
Technical inputs needed: MOPIC will need technical inputs and support to design a
transparent and consensus building process. Capacity building on social accountability
will be provided to both sector CSOs and line ministries which will help the project
stakeholders better integrate this approach in various sectors and ensure more
participation and inclusion in development programs. In addition, technical inputs on the
design of the M&E system, as well as training of MOPIC staff on M&E principles and
implementation will be provided.
7.
Fiduciary requirements and inputs:
World Bank fiduciary staff will provide
implementation support including capacity building as needed.
8.
Safeguards: Social and environmental safeguards are not expected to be triggered.
9.
What would be the main focus in terms of support to implementation during:
Time
Throughout
project
Focus
Skills Needed
Adapting design
while maintaining
ability to evaluate for
impact
Coalition and consensus
building expertise
Adapting activities to
volatile circumstances
Government-CSOs
partnership building in
fragile and conflict contexts
Skills Needed
Social Development
Specialists
Impact Evaluation Specialist
M&E Specialist
Fiduciary Specialists
Number of Staff
Weeks
1-2 weeks of time for
each
33
Resource
Estimate
Number of Trips
2-4
Partner Role
Coordination
and outreach
through a
transparent
process
Comments