Transcript Country Ownership of PRSPs: Experience in 4 countries

What do we mean by country ownership?
Janet Entwistle
Operational Approaches and Tools in Support of the
Country-Driven Model
PREM Learning Week
April 26, 2005
An Operational Approach to Assessing
Country Ownership of PRSs
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Define country ownership operationally to:
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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.
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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 55 countries
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Gives understanding of extent of 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, OED (1995), Killick
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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.
Country ownership of the PRS is
multidimensional

Domestic (internal) dimensions
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Broad agreement within the executive on country
priorities
Broad support among national institutions
(parliament, local governments)
Broad support among internal partners/domestic
stakeholders (civil society, private sector)
External dimension
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The extent to which the PRS builds on the needs and
priorities of an individual country rather than those of
its external partners, and to which external partners
align with the PRS
Country ownership of PRSs is dynamic
Unlikely to be achieved in any one PRSP
cycle.
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Capacity constraints pervasive in the executive,
parliament, local government, internal partners
Entrenched practices, vested interests slow to
change
Must be viewed on a continuum
LICUS countries especially difficult
Case Studies
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.
I. Leadership within and participation across
the executive
1.
PRS has a clear role vis-a-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 existing systems.
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.
Kyrgyz Republic
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NPRS is the sole medium-term strategy for the
implementation of the KCDF, the long-term vision.
Cambodia, Lao PDR, Vietnam, Yemen, Ethiopia,
Tajikistan
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Strategic and participatory approach of PRS being
integrated into national development planning
process.
2. Finance and planning functions aligned, and
PRS coordination backed by leadership.
Uganda
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The Ministry of Finance, Planning and Economic
Development (MFPED) 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.
(second example)
Mozambique
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The MPF took the initiative on PARPA preparation
and had been is 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
2. Finance and planning functions aligned, and
PRS coordination backed by leadership.
(preliminary international experience)
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25 of 55 countries one institution in charge of
coordinating PRS process.
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6 Ministry of Finance
7 Ministry of Planning
6 Ministry of Finance and Planning
6 Presidency or Prime Minister’s office
30 of 55 countries more than one institution in charge
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coordination problematic
3. PRS embedded in interministerial
coordination mechanisms, linked to
MTEF/budget.
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.
Mozambique
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Line ministries were significantly involved in PARPA
formulation to incorporate previously developed
sector strategies
Malawi
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Ministry of Economic Development and Planning
working with line ministries to align policies with
MPRS.
5. PRS M&E system integrated into existing
consolidate system.
Bolivia
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The Sistema de Seguimiento y Evaluacion is
integrated into a broader government information
management system under development.
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It is coordinated across government institutions,
although now is operational only at the central level
reaching a limited number of ministries.
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Goal is to expand across the executive, and to
incorporate regions and municipalities.
6. Parliamentary committees contribute to PRS
formulation and monitoring.
Ghana
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In 2002 Parliament formed a GPRS special
committee, and several workshops were held to
discuss the GPRS.
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Parliament approved the Coordinated Program for
Economic and Social Development, Ghana’s longterm 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. (second example)
Honduras
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A congressional budget committee oversees the
alignment of the general budget with the ERP.
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The presentation of ERP Progress Reports to the
National Congress has been made mandatory
through a Poverty Reduction Law.
7. Local development plans are compatible
with PRS priorities.
Pakistan
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The Government encouraged each province to draft
its own PRS.
PRSs for the four provinces were prepared as input.
The poorest province’s strategy remains in draft.
Burkina Faso
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PRSP II formulation was enriched by ten regional
consultations for the creation of regional strategies,
which fed into the national strategy.
8. Mechanism for systematic participation, with
mutually agreed objectives/timetable.
Senegal
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Terms of reference and timetable for consultations
were agreed by government and stakeholders at a
National Seminar prior to PRS formulation.
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Validation seminars at various stages solidified
participation.
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Participatory steering units have been established in
each region.
8. Mechanism for systematic participation, with
mutually agreed objectives/timetable.
(second example)
Rwanda
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The National Unity and Reconciliation Commission
(NURC) consults regularly.
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The NURC is widely considered as a permanent
consultation mechanism to resolve lingering tensions
and the frequent meetings it organizes also feed into
the PRS.
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Efforts are underway to further integrate specific PRS
participatory processes with NURC consultations.
8.
Mechanism for systematic participation,
with mutually agreed objectives/timetable.
(third example)
Burkina Faso
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Consultations for formulation of the first PRSP and its
progress reports, led by the Ministry of Economic
Development, were inclusive but inconsistent.
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Consultations for PRSP II took place over a period of
seven months, and ranged from consultations to
review the old strategy, to final consultations to review
the draft PRSP II.
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Under a new framework, yearly participatory PRSP
revisions are to take place at the national and
regional levels, and regional councils serve as a
permanent venue for dialogue with stakeholders.
9. Capacity building supports development of
negotiation skills for government/stakeholders.
Democratic Republic of Congo
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Intercongolese Dialogue following Lusaka Peace
Agreement includes training courses for consultation.
Central African Republic
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The Demobilization and reintegration program
includes leadership capacity building.
10. Communication strategy includes
translating PRS into local languages.
Ghana
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Government implementing a “development
communication enhancement program”
 Simplified version of GPRS circulated in local
languages
 Broad dissemination of the Annual Progress
Report – radio broadcasts and government vans
with displays and video presentations
 Website
11. M&E system incorporates information
exchange between government/stakeholders.
Tanzania
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Poverty Monitoring Steering Committee – joint
committee of government and stakeholders.
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Revised medium-term indicators to strengthen
coherence with PRS objectives.
12. Umbrella CSOs/business groups facilitate
deepening of dialogue.
Tanzania
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CSOs participated in PRS formulation workshops,
however their inputs had limited influence on the
PRS policy content.
NGOs and academics have been actively engaged in
dialogue with the government during PRS
implementation.
NGOs established a NGO policy forum, chaired by
member NGOs on a rotating basis, that participates
in PER working groups underpinning budget
preparation and the formulation of a new PRS.
12. Umbrella CSOs/business groups facilitate
deepening of dialogue.
(second example)
Mali
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Private sector modestly involved in consultations for
PRSP formulation.
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Government has increased its efforts to deepen the
private sector’s inclusion during implementation.
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Government helping to clarify the mandate of and
strengthening intermediation institutions like the Private
Sector Moderator and the National Investment Promotion
Center (CNPI).
Economic and Social Council could also be a strong force
given its mandate to advise Parliament on economic and
social issues.
(External Dimensions)
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.
17. Factoring in interruptions due to political
events, including electoral cycles.
Mongolia
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EGSPRS rooted in the main policy directions of the
Government which left office in June 2004.
New government adopted a constitutionally-mandated Action
Plan for 2005-08, and is now updating the EGSPRS.
Bolivia, Georgia, Nicaragua, Sri Lanka
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Also rethinking PRS.
Country-owned long-term vision could help buffer policy
disruptions due to government transitions
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Challenges
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Enhancing common understanding and
application of country ownership of PRSs
– new emphasis on domestic versus
external accountability will help