Transcript Country Ownership of PRSPs: Experience in 4 countries

Country Ownership: What does it really mean?
Janet Entwistle and Filippo Cavassini
An Operational Approach to Assessing Country
Ownership of PRSs with a Focus on the Role of
Government Institutions
PRS Implementation Series
June 15, 2005
An Operational Approach to Assessing
Country Ownership of PRSs

Define country ownership operationally to:

help countries develop better processes for
formulating country-owned development
strategies

help Bank staff and staff of other agencies to
better understand and advance the concept of
country ownership
Methodology
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Review of literature on country ownership
Four detailed country case studies (Bolivia,
Ghana, Kyrgyz Republic and Senegal) chosen
based on other PRS reviews and case study
efforts, including CDF Progress Reports


Countries among those thought to have made
progress in developing a country owned PRS as their
national development strategy
All cases have strengths and weaknesses – none
have full country ownership
Beyond the case study countries
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
Review of 59 countries
Gives understanding of extent of
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country ownership of PRS, alongside
link to long-term vision and budget, alignment
of external resources and focus on results
What is country ownership?

Johnson and Wasty (1993), OED (1995), Killick
(1998)
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Locus of initiative, intellectual conviction, public support
from leadership, stakeholders and institutionalization
Definition difficult to apply operationally and
participation often used as a proxy
OED (2004) – clearer milestones needed for what
ownership is expected to achieve
Towards a common framework for assessing
country ownership of PRSs
Common framework of analysis – 6 factors of
country ownership

I.
II.
III.
IV.
V.
VI.
Leadership within and participation across the
executive
Role and impact of national institutions
Government-stakeholder dialogue
Role and impact of internal partners
Role and impact of external partners
Political and economic shocks
17 indicators within these 6 factors
Focus on the role of government institutions
Common framework of analysis—2 factors of
country ownership

I.
II.
Leadership within and participation across the
executive
Role and impact of national institutions
7 indicators within these 2 factors
I. Leadership within and participation across
the executive
1.
PRS has a clear role vis-à-vis other national
development strategies
2.
Finance and planning functions are clearly aligned,
and the PRS coordination function is backed by
high-level leadership
3.
PRS formulation and implementation are embedded
in interministerial coordination mechanisms and
linked to a medium-term expenditure framework
and national budget processes
4.
Line ministries systematically align sector action
plans with PRS priorities
5.
PRS M&E system integrated into country-level
system
II. Role and impact of national institutions
6.
Parliamentary committees contribute to PRS
formulation and monitoring
7.
Local development plans are compatible with PRS
priorities
III. Government-stakeholder dialogue
8.
Government and stakeholders have a mechanism for
systematic consultation, with mutually agreed
objectives and timetable.
9.
Capacity building supports the development of
negotiation skills across government and stakeholders.
10.
Communication strategy includes translating PRS into
local languages.
11.
M&E system incorporates information exchange
between government and stakeholders to inform
strategy refinements
IV. Role and impact of internal partners
12.
Umbrella CSOs and business associations consult
with members before engaging the government on the
PRS.
V. Role and impact of external partners
13.
Financing and technical assistance are tailored to
country circumstances.
14.
Assistance strategies are aligned with PRS priorities
and PRS business processes match the country’s
systems.
15.
Consultations for assistance strategies are tied to PRS
participatory structures.
16.
Consultative meetings are held on a regular basis in
the country and chaired/co-chaired by the government.
VI. Political and economic shocks
17.
Interruptions due to political and economic events,
including electoral cycles, are anticipated and factored
in.
1. Clear role vis-à-vis other national development
strategies—Overview
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10 of 59 countries PRS is the only medium-term
strategy linked to long-term vision
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7 of 59 countries PRS is being integrated into
traditional/constitutional planning processes

PRS participatory and strategic approach helping integrate
pro-poor focus into national planning processes in
Cambodia, Ethiopia, Lao PDR, Pakistan, Tajikistan, Vietnam,
Yemen.
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29 of 59 countries PRS not yet widely considered by
policymakers as the national development strategy
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13 of 59 countries, mostly LICUS, PRS not yet
completed
1. Clear role vis-à-vis other national development
strategies—Country experience
Kyrgyz Republic
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Kyrgyz CDF is the long-term development vision
through 2010
NPRS is the medium-term strategy through 2005 to
guide vision implementation
Uganda
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PEAP is the national vision for poverty eradication
through 2017
Every 3-4 years PEAP updates to identify mediumterm policies
1. Clear role vis-à-vis other national development
strategies—Country experience (cont.)
Pakistan
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Ten-Year Perspective Development Plan for 2001-11 is
traditional federal development plan linked to five-year
investment plan (MTDF)
PRS for FY03-08 covering development expenditures at the
federal and provincial levels
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with limited links with the Perspective Development Plan and MTDF
PRS only framework guiding provincial expenditures
Medium-term Development Framework (MTDF) for 2005-10 as
the new five-year plan, linked to PRS instead of Perspective
Development Plan
Yemen
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Strategic Vision through 2025
PRS 2003-05 coexisting with 2nd Five-year Plan 2001-05
3rd Five-year Plan 2006-10 integrating PRS and MDGs
1. Clear role vis-à-vis other national development
strategies—Country experience (cont.)
Bolivia
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Constitutionally-mandated Plan General de
Desarrollo Económico y Social (PGDES) based on
National Dialogue 1997 and guiding development
policies through 2002
EBRP based on National Dialogue 2000, with limited
links with the PGDES
Senegal
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Perspective Study through 2015 developed by the
Ministry of Planning
DSRP, coordinated by Ministry of Finance, coexisting
with constitutionally mandated 5-year 10th Economic
and Social Development Plan prepared by Ministry of
Planning and not well linked to long-term Perspective
Study
2. Finance and planning functions aligned, and
PRS coordination backed by leadership—
Overview
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27 of 59 countries one institution in charge of
coordinating PRS process
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6 Ministry of Finance
8 Ministry of Planning.
7 Ministry of Finance and Planning
6 Presidency or Prime Minister’s office
32 of 59 countries more than one institution in charge
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coordination can be problematic, time consuming and costly
2. Finance and planning functions aligned, and
PRS coordination backed by leadership—
Country experience
Uganda
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Ministry of Planning and Ministry of Finance merged
in 1992 to enhance coordination of government
policies
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Ministry of Finance, Planning and Economic
Development leads PEAP implementation and
coordinates the preparation of PEAP Progress
Reports and PEAP Revisions
2. Finance and planning functions aligned, and
PRS coordination backed by leadership—
Country experience (cont.)
Mozambique
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The Ministry of Planning and Finance (MPF) took the
initiative on PARPA preparation and had been in
charge of PARPA updating
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The President, elected in February 2005, has
substituted the MPF with two separate Ministries: the
Ministry of Finance, and the Ministry of Planning and
Economic Development
3. PRS embedded in interministerial coordination
mechanisms, linked to MTEF/budget—Overview

6 of 59 countries MTEF is helping increase
expenditures in the priority areas identified in the PRS
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24 of 59 countries MTEF is under development but
not yet facilitating strong link between PRS and
budget
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29 of 59 countries MTEF not yet under development
3. PRS embedded in interministerial coordination
mechanisms, linked to MTEF/budget—Country
experience (cont.)
Bosnia and Herzegovina
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Coordination Board of Economic Development and EU
integration, including the Chairman of the BiH Council of
Ministers, BiH line ministers, as well as the prime
ministers and finance ministers of both entities,
responsible for overall government policies, including
PRSP and EU integration
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Finance ministers of both entities prepared MTEFs
based on PRSP that guide preparation of the entities’
budgets and the BiH budget
3. PRS embedded in interministerial coordination
mechanisms, linked to MTEF/budget—Country
experience
Pakistan
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National PRSP Steering Committee, chaired by the
Minister of Finance and composed of line ministers,
the Planning Commission and Additional Chief
Secretaries of the provinces, oversees PRSP
implementation and reports to the Cabinet Committee
on Economic Affairs and the National Economic
Council

Federal Budget FY05 starts shifting allocations in line
with PRSP and Medium-term Budget Frameworks are
in place in some of the provinces
3. PRS embedded in interministerial coordination
mechanisms, linked to MTEF/budget—Country
experience (cont.)
Rwanda
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Interministerial Committee on Poverty chaired by the
Prime Minister coordinates PRS implementation
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Line ministries prepare sector MTEFs that feed into a
macro MTEF, underpinning budget preparation
4. Sector action plans aligned with PRS—
Overview
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36 of 59 countries sector action plans are aligned with
PRS
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23 of 59 countries sector action plans are not yet
aligned with PRS
4. Sector action plans aligned with PRS—
Country experience
Mozambique
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Line ministries were significantly involved in PARPA
formulation to incorporate previously developed
sector strategies
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Sector strategies are being updated in line with
PARPA and integrated into a constitutionallymandated annual Plano Económico e Social guiding
government policies
4. Sector action plans aligned with PRS—
Country experience (cont.)
Malawi
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Ministry of Economic Development and Planning
working with line ministries to align policies with
MPRS
Senegal
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Line ministries have prepared sector operation
programs identifying actions to meet DSRP targets,
with timetable and budget
Government workshop to harmonize and coordinate
them
5. PRS M&E system integrated into countrylevel system—Overview

3 of 59 countries a country-level M&E system tracks
PRS implementation
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23 of 59 countries action is being taken to develop a
county-level M&E system
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33 of 59 countries there are plans to develop a
country-level M&E system incorporating PRS M&E
5. PRS M&E system integrated into countrylevel system—Country experience
Uganda
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There is a single M&E system for both government
and external partner needs
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Performance indicators are spelled out in the Policy
and Results Matrix of the revised PEAP
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Benchmarks for assessing annual progress feed into
the government progress status reports transmitted to
Parliament during preparation of the annual budget
5. PRS M&E system integrated into countrylevel system—Country experience (cont.)
Mozambique
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Monitoring of PARPA activities and programs and
MDGs integrated in semi-annual and annual
Progress Reports of the constitutionally-mandated
Plano Económico e Social (PES), transmitted to
Parliament
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Link of line ministries’ M&E systems with PES timing
and indicators developing
5. PRS M&E system integrated into countrylevel system—Country experience (cont.)
Bolivia
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EBRP M&E is conducted through a Sistema de
Seguimiento y Evaluacion (SIGMA) integrated into a
broader government information management system
under development
It is coordinated across government institutions,
although now is operational only at the central level
reaching a limited number of ministries
Some external partners are harmonizing their M&E
systems with SIGMA
Goal is to expand SIGMA across the executive,
incorporate regions and municipalities and harmonize
external partners’ M&E around it
6. Parliamentary committees contribute to PRS
formulation and monitoring—International
experience
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7 of 59 countries parliamentary committees contribute
to PRS formulation and monitoring
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5 parliament approved PRS
52 of 59 countries parliamentary committees do not
contribute to PRS formulation and monitoring
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13 parliament approved PRS
6. Parliamentary committees contribute to PRS
formulation and monitoring—Country experience
Ghana
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In 2002 Parliament formed a special committee on
poverty reduction, assembling parliamentarians from
standing committees, to discuss the GPRS
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Parliament approved the Coordinated Program for
Economic and Social Development, Ghana’s
constitutionally mandated development vision, in
December 2002 and the GPRS in early 2003
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The special committee continues to report to the
plenary on the focus, content and adequacy of GPRS
implementation
6. Parliamentary committees contribute to PRS
formulation and monitoring—Country experience
(cont.)
Honduras
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The National Congress is constitutionally mandated
to approve development plans and approved the ERP
in 2001, the 2002-06 Government Plan presented by
the new Government and based on the ERP in 2002
and the ERP Progress Report in 2003

In 2004 the National Congress approved a Poverty
Reduction Law identifying the ERP goals as the
objectives for the country’s social policy through 2015
and providing for the submission of ERP Progress
Reports to the National Congress

The Budget Committee of the National Congress is
responsible for overseeing the alignment of the
general budget with the ERP
7. Local development plans are compatible
with PRS priorities—Overview
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7 of 59 countries there is evidence of local
development plans prepared in alignment with
PRS priorities
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52 of 59 countries there is no evidence local
development plans reflecting PRS PRS
priorities
7. Local development plans are compatible with
PRS priorities—Country experience
Pakistan
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The Government encouraged each province to draft
its own PRS
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Three of the four provinces completed a PRS, which
served as input for the national PRS
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The PRS of the poorest province was not completed
in time and remains in draft form
7. Local development plans are compatible with
PRS priorities—Country experience (cont.)
Bolivia
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Municipalities develop Programas Operativos
Anuales to have access to financial resources, based
on five-year development plans identifying
development objectives at the local level
Municipalities completed five-year development plans
in 1999, 2000 and 2001
The EBRP, launched in 2000 and completed in 2001,
allocates HIPC resources to municipalities with
limited links to municipal development plans
Challenges

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New emphasis on domestic versus external
accountability can help enhance common
understanding and application of country
ownership of PRSs.
Integrating PRSs into national planning
processes is key to broadening country
ownership across government institutions.
Institutionalization of stakeholder participation
and external dimensions of country ownership
also important.