ENHANCING CAPACITY TO PREPARE AND IMPLEMENT POVERTY REDUCTION STRATEGIES Progress, Issues and Challenges International Symposium on Capacity Development.
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ENHANCING CAPACITY TO PREPARE ENHANCING CAPACITY TO PREPARE AND IMPLEMENT POVERTY AND IMPLEMENT POVERTY REDUCTION STRATEGIESREDUCTION STRATEGIES
Progress, Issues and ChallengesProgress, Issues and Challenges
International Symposium on Capacity Development Manila, Jan. 14-16, 2003
OutlineOutline1. 1. PRSPs present new challenges and opportunities in PRSPs present new challenges and opportunities in
capacity enhancementcapacity enhancement
2. Capacity for what? for whom? PRSP reviews underscore 2. Capacity for what? for whom? PRSP reviews underscore capacity needscapacity needs::
……. in the participatory process. in the participatory process……. in poverty diagnostics. in poverty diagnostics……. to effectively undertake priority public actions. to effectively undertake priority public actions……. in setting goals, and in monitoring and evaluation of . in setting goals, and in monitoring and evaluation of
outcomesoutcomes
3. Developing a balanced multi-level approach to capacity 3. Developing a balanced multi-level approach to capacity enhancementenhancement
…….at the national level.at the national level…….at the program level.at the program level
4. 4. PRSPs confirm need for donor collaboration and PRSPs confirm need for donor collaboration and alignment in support to capacity enhancementalignment in support to capacity enhancement
1. PRSPs present new 1. PRSPs present new challenges and opportunities challenges and opportunities
in capacity enhancementin capacity enhancement
The PRSP approach in a global The PRSP approach in a global contextcontext
A growing number of countries are pursuing poverty reduction A growing number of countries are pursuing poverty reduction within PRSPs, in addition to countries seeking to reduce poverty within PRSPs, in addition to countries seeking to reduce poverty outside a PRSP approachoutside a PRSP approach
Reviews of early experiences in PRSP preparation and Reviews of early experiences in PRSP preparation and implementation can inform our overall approach to the changing implementation can inform our overall approach to the changing agenda for capacity enhancement agenda for capacity enhancement
The PRSP approach reflects emerging new lines of thinking on The PRSP approach reflects emerging new lines of thinking on capacity enhancement as well as the related challenges and capacity enhancement as well as the related challenges and opportunities for countries and their development partnersopportunities for countries and their development partners
Given these new lines of thinking, capacity enhancement within Given these new lines of thinking, capacity enhancement within thematic, sector, or organizational programs raise similar issues thematic, sector, or organizational programs raise similar issues to those of PRSPsto those of PRSPs
PRSP – an increasingly widespread approach to poverty reduction
PRSPs reflect overall shifts in PRSPs reflect overall shifts in approaches to capacity approaches to capacity
enhancementenhancement Capacity enhancement is regarded as an Capacity enhancement is regarded as an
endogenous processendogenous process Broad-based country participation is Broad-based country participation is
accepted as fundamentalaccepted as fundamental Capacities at different levels are Capacities at different levels are
recognized as interdependent recognized as interdependent Greater focus on linking capacity Greater focus on linking capacity
enhancement to achieving resultsenhancement to achieving results Need to strengthen global, regional and in-Need to strengthen global, regional and in-
country partnerships, knowledge sharing country partnerships, knowledge sharing and learningand learning
PRSP reviews confirm that capacity PRSP reviews confirm that capacity enhancement is a central challenge in enhancement is a central challenge in
poverty reductionpoverty reduction““Lack of capacity, and the inability to use Lack of capacity, and the inability to use existing capacity effectively, remain important existing capacity effectively, remain important constraints to the preparation, implementation constraints to the preparation, implementation and monitoring of PRSPs in many countries.”and monitoring of PRSPs in many countries.”World Bank/IMF, Review of the PRSP Approach, March 2002
“…“…capacity building is not merely a technical capacity building is not merely a technical exercise; it is also rooted in the political exercise; it is also rooted in the political economy of the country. Thus, an economy of the country. Thus, an understanding of the sources of current understanding of the sources of current weaknesses, as well as how incentives change weaknesses, as well as how incentives change behavior, is critical to fully address the behavior, is critical to fully address the challenges the PRSP presents.”challenges the PRSP presents.” World Bank/IMF, PRSP Progress Report, September 2002
PRSP approach presents PRSP approach presents new opportunities and challenges new opportunities and challenges
to capacity enhancementto capacity enhancement
Potential for greater results focus in capacity enhancement Potential for greater results focus in capacity enhancement with medium-term targets owned by country at the macro and with medium-term targets owned by country at the macro and program levelprogram level
Capacity enhancement efforts are moving beyond executive Capacity enhancement efforts are moving beyond executive branch of Government and beyond national levelsbranch of Government and beyond national levels
Framework within which host country could lead process of Framework within which host country could lead process of greater donor coordination and donor alignment with national greater donor coordination and donor alignment with national capacity enhancement strategycapacity enhancement strategy
Shared global and regional learning – the Bank and partners Shared global and regional learning – the Bank and partners mobilize global knowledge, the client adapts and customize mobilize global knowledge, the client adapts and customize with local knowledge, while opportunities for South-South with local knowledge, while opportunities for South-South learning expandlearning expand..
PRSPs sharpen focus on three PRSPs sharpen focus on three levels which embed national levels which embed national
capacity capacity INSTITUTIONAL ENVIRONMENTINSTITUTIONAL ENVIRONMENT: It requires ‘rules of the game’ : It requires ‘rules of the game’
which induces and permits organizations and individuals to seek which induces and permits organizations and individuals to seek and capture the rewards to development-promoting behavior.and capture the rewards to development-promoting behavior.
PEOPLEPEOPLE: Development capacity requires both formal training and : Development capacity requires both formal training and exposure to growth skills such as entrepreneurship, work exposure to growth skills such as entrepreneurship, work discipline, problem-solving, etc. discipline, problem-solving, etc.
ORGANIZATIONSORGANIZATIONS: It requires organizations with a clear sense of : It requires organizations with a clear sense of their objectives and the staffing, incentives, structures and their objectives and the staffing, incentives, structures and processes to meet them. processes to meet them.
Capacity must exist at all three levels to ensure successful Capacity must exist at all three levels to ensure successful and sustainable outcomes in PRSP implementation. and sustainable outcomes in PRSP implementation.
2. Capacity for whom? for 2. Capacity for whom? for what? what?
Findings of PRSP reviewsFindings of PRSP reviews
Capacity for whom? For Capacity for whom? For what?what?
PRSP reviews look at capacity issues for:PRSP reviews look at capacity issues for: preparation of poverty reduction strategiespreparation of poverty reduction strategies implementation of poverty reduction strategiesimplementation of poverty reduction strategies monitoring and evaluationmonitoring and evaluation
Focus is on four critical areas:Focus is on four critical areas: participatory processparticipatory process poverty diagnosticspoverty diagnostics priority public actionspriority public actions setting targets and goals and monitoring and setting targets and goals and monitoring and
evaluationevaluation
Capacity Enhancement within Capacity Enhancement within PRSP: Four Core ElementsPRSP: Four Core Elements
Participatory process
Poverty diagnosis
Monitoring & evaluation systems
Priority public actions
Core Elements of Capacity : Core Elements of Capacity : Participatory processParticipatory process
Participatory process Parliamentary oversight
Civil society organizations
Sectoral agencies
Core Elements of Capacity : Core Elements of Capacity :
Poverty diagnosisPoverty diagnosis
Poverty diagnosis
Poverty diagnostics capacity
Poverty and social impact analysis
Core elements of Capacity :Core elements of Capacity :Priority public actionsPriority public actions
Priority public actions
Capacity to prioritize and cost programs
Analysis of inter-sectoral linkages and cross-cutting issues
Capacity related to developing and implementing programs for service delivery is key in all PRSPs
Core Elements of Capacity:Core Elements of Capacity:Monitoring and evaluationMonitoring and evaluation
Monitoring & evaluation systems
Capacity to monitor poverty related spending at different levels
Demand for M & E is crucial success factor in building capacity
Supply side of PRSP monitoring requires
diverse sources of data
3. Developing a balanced multi-3. Developing a balanced multi-level approach to capacity level approach to capacity
enhancementenhancement
Balancing capacity Balancing capacity enhancement across different enhancement across different
levelslevels Inter-dependent capacities need to be enhanced:Inter-dependent capacities need to be enhanced:
at the horizontal (national) level to generate key outputs at the horizontal (national) level to generate key outputs such as national statistics, budgets, legislation, etc.such as national statistics, budgets, legislation, etc.
At the vertical (program) level to generate outcomes for At the vertical (program) level to generate outcomes for final beneficiariesfinal beneficiaries
Within each level, specific capacity issues of Within each level, specific capacity issues of institutional environment, organizations and institutional environment, organizations and individuals need to be addressedindividuals need to be addressed
No blueprint: each country will need to develop a No blueprint: each country will need to develop a unique overall capacity enhancement strategy unique overall capacity enhancement strategy based on institutional endowments, political based on institutional endowments, political traditions, geographic characteristics, etc.traditions, geographic characteristics, etc.
Capacity enhancement for what? For whom?Capacity enhancement for what? For whom?
Vertical (program) level capacity enhancement (examples)Vertical (program) level capacity enhancement (examples)
Horizontal (national) level capacity enhancement (examples)• Poverty monitoring, assessment, diagnostics• Public expenditure management• Public sector management• Statistical capacity• Monitoring & evaluation• Aid management
OUTPUTS
Pollution management
HIV/AIDS prevention
Basic education
Rural water provision etc.
Program-level Monitoring & Evaluation
Program-level Expenditure management/MTEF
Final beneficiary outcomes
Enhancing capacity at the Enhancing capacity at the national levelnational level
e.g. setting up a poverty monitoring e.g. setting up a poverty monitoring systemsystem People skills to conduct ex-ante and ex-post People skills to conduct ex-ante and ex-post
poverty assessments and diagnostics poverty assessments and diagnostics
Organization support to national and line Organization support to national and line ministry statistical offices/units to generate ministry statistical offices/units to generate and share reliable poverty dataand share reliable poverty data
Institutional environment for participatory Institutional environment for participatory
assessments, citizen feedback, etc.assessments, citizen feedback, etc.
Enhancing capacity at the Enhancing capacity at the national levelnational level
e.g. Public Sector Managemente.g. Public Sector Management
People skills through collaborative work on design of People skills through collaborative work on design of programs and implementation.programs and implementation.
Organization support through work on public sector Organization support through work on public sector management processes including procurement and management processes including procurement and financial management and budget formulation, financial management and budget formulation, execution, reporting, audit, and monitoring.execution, reporting, audit, and monitoring.
Institutional environment through focus on governance, Institutional environment through focus on governance, particularly anti-corruption programs, and on achieving particularly anti-corruption programs, and on achieving transparency and accountability.transparency and accountability.
Enhancing capacity at the Enhancing capacity at the program levelprogram level
Need to define clear, time-bound and specific program Need to define clear, time-bound and specific program objectives.objectives.
People: needs at the program level are specific; can include People: needs at the program level are specific; can include formal training, special learning events, study tours, on-the-formal training, special learning events, study tours, on-the-job learning supported by external advisers, on-line job learning supported by external advisers, on-line communities of practice, etc.communities of practice, etc.
Organization: needs at the program level can include Organization: needs at the program level can include defining objectives, designing new structures and processes defining objectives, designing new structures and processes to meet them, providing IT and specialist support. to meet them, providing IT and specialist support.
Institutional environment: need to examine the environment Institutional environment: need to examine the environment in which the program operates and identifying the areas in which the program operates and identifying the areas where people and organizations are constrained from where people and organizations are constrained from operating effectively.operating effectively.
Enhancing capacity at the Enhancing capacity at the program level to generate program level to generate
beneficial outcomesbeneficial outcomes Capacity enhancement at program level is Capacity enhancement at program level is
part of a results chain leading to tangible part of a results chain leading to tangible benefits benefits
Implementation often requires some degree Implementation often requires some degree of regionalizing/localizing PRSPs. Thus, of regionalizing/localizing PRSPs. Thus, capacities also need to be enhanced at capacities also need to be enhanced at these levels to achieve results at the locus of these levels to achieve results at the locus of problems and solutionsproblems and solutions
To achieve results, inter-To achieve results, inter-dependent capacities dependent capacities
needed at different levelsneeded at different levels E.g. PRSP monitoringE.g. PRSP monitoring
People: interaction of national and local skills to People: interaction of national and local skills to translate PRSP goals into region-specific targets for translate PRSP goals into region-specific targets for indicatorsindicators
Organizational capacities: ranging from national Organizational capacities: ranging from national statistical offices, academic institutions, interface statistical offices, academic institutions, interface points with poor (rural clinics, schools, etc), local points with poor (rural clinics, schools, etc), local authorities, etc. to track inputs and outputs and assess authorities, etc. to track inputs and outputs and assess outcomes and impact outcomes and impact
Institutional environment: effective capacities require Institutional environment: effective capacities require clarity of rights, responsibilities and priorities for clarity of rights, responsibilities and priorities for setting targets and for data gathering and analysis setting targets and for data gathering and analysis
4. PRSP assessments confirm 4. PRSP assessments confirm need for donor collaboration and need for donor collaboration and alignment in support to capacity alignment in support to capacity
enhancementenhancement
Implications of multi-level Implications of multi-level and results-oriented and results-oriented
capacity enhancementcapacity enhancement Bottom line is not just whether the PRSP is Bottom line is not just whether the PRSP is
effectively managed, but whether the programs effectively managed, but whether the programs supported through the PRSP are effective in supported through the PRSP are effective in reducing poverty and achieving the MDGs.reducing poverty and achieving the MDGs.
PRSP reviews confirm that capacity enhancement PRSP reviews confirm that capacity enhancement cannot be seen as an “add on” to a poverty cannot be seen as an “add on” to a poverty reduction strategy, but must lie within the core of reduction strategy, but must lie within the core of that strategy that strategy
National capacity enhancement strategies within a National capacity enhancement strategies within a PRSP framework could provide a basis for aligning PRSP framework could provide a basis for aligning donor capacity enhancement support in specific donor capacity enhancement support in specific sub-sectors or thematic areas.sub-sectors or thematic areas.
Key ChallengesKey Challenges For PRSP countriesFor PRSP countries
Strengthen & institutionalize the participatory processStrengthen & institutionalize the participatory process Incentivize and enable key actors in developing pro-poor growth Incentivize and enable key actors in developing pro-poor growth
strategies and effective poverty diagnosticsstrategies and effective poverty diagnostics Improve public expenditure management systemsImprove public expenditure management systems Greater emphasis on monitoring and evaluation and feedback to Greater emphasis on monitoring and evaluation and feedback to
strategiesstrategies
For development partners For development partners Make alignment real: align assistance programs with country Make alignment real: align assistance programs with country
priorities priorities Support utilization and development of national capacities, Support utilization and development of national capacities,
including for poverty and social impact analysisincluding for poverty and social impact analysis
For both PRSP countries and development partnersFor both PRSP countries and development partners Development of knowledge products, dissemination of good Development of knowledge products, dissemination of good
practices, and a “learning culture” for proper institutional, people, practices, and a “learning culture” for proper institutional, people, and organizational capacitiesand organizational capacities
Harmonization agenda can Harmonization agenda can reduce transactions costs of reduce transactions costs of
donor supportdonor support
Need for data collection and processing Need for data collection and processing which keeps accurate records of aid which keeps accurate records of aid commitments and disbursementscommitments and disbursements
Need for guidelines for management of Need for guidelines for management of donor programs.donor programs.
Need for regular communications Need for regular communications between aid coordination authorities between aid coordination authorities and donors.and donors.
At global level, several efforts underway At global level, several efforts underway to advance the harmonization agenda to advance the harmonization agenda (OECD-DAC-MDB working groups)(OECD-DAC-MDB working groups)
Aligning donor approaches to Aligning donor approaches to enhancing capacity is essentialenhancing capacity is essential
Country leadership is essential for improving Country leadership is essential for improving harmonization and donor alignmentharmonization and donor alignment
Solid diagnostics on capacity needs and transactions Solid diagnostics on capacity needs and transactions costs of current approaches can provide foundation costs of current approaches can provide foundation for more effective country/donor dialoguefor more effective country/donor dialogue
Emerging experiences with increased local Emerging experiences with increased local ownership, donor alignment and monitoring of donor ownership, donor alignment and monitoring of donor performance (e.g. Ethiopia, Vietnam, Tanzania)performance (e.g. Ethiopia, Vietnam, Tanzania)
PRSP provides a framework for achieving donor PRSP provides a framework for achieving donor alignment to national capacity enhancement alignment to national capacity enhancement strategiesstrategies
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