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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. Country Ownership: What does it really mean?.

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Country Ownership: What does it really mean?

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  1. 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 Country Ownership: What does it really mean?

  2. 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

  3. Methodology • 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

  4. Beyond the case study countries • Review of 59 countries • 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

  5. What is country ownership? • Johnson and Wasty (1993), OED (1995), Killick (1998) • 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

  6. Towards a common framework for assessing country ownership of PRSs • Common framework of analysis – 6 factors of country ownership • 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

  7. Focus on the role of government institutions • Common framework of analysis—2 factors of country ownership • Leadership within and participation across the executive • Role and impact of national institutions 7 indicators within these 2 factors

  8. I. Leadership within and participation across the executive • PRS has a clear role vis-à-vis other national development strategies • Finance and planning functions are clearly aligned, and the PRS coordination function is backed by high-level leadership • PRS formulation and implementation are embedded in interministerial coordination mechanisms and linked to a medium-term expenditure framework and national budget processes • Line ministries systematically align sector action plans with PRS priorities • PRS M&E system integrated into country-level system

  9. II. Role and impact of national institutions • Parliamentary committees contribute to PRS formulation and monitoring • Local development plans are compatible with PRS priorities

  10. III. Government-stakeholder dialogue • Government and stakeholders have a mechanism for systematic consultation, with mutually agreed objectives and timetable. • Capacity building supports the development of negotiation skills across government and stakeholders. • Communication strategy includes translating PRS into local languages. • M&E system incorporates information exchange between government and stakeholders to inform strategy refinements

  11. IV. Role and impact of internal partners • Umbrella CSOs and business associations consult with members before engaging the government on the PRS.

  12. V. Role and impact of external partners • Financing and technical assistance are tailored to country circumstances. • Assistance strategies are aligned with PRS priorities and PRS business processes match the country’s systems. • Consultations for assistance strategies are tied to PRS participatory structures. • Consultative meetings are held on a regular basis in the country and chaired/co-chaired by the government.

  13. VI. Political and economic shocks • Interruptions due to political and economic events, including electoral cycles, are anticipated and factored in.

  14. 1. Clear role vis-à-vis other national development strategies—Overview • 10 of 59 countries PRS is the only medium-term strategy linked to long-term vision • 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. • 29 of 59 countries PRS not yet widely considered by policymakers as the national development strategy • 13 of 59 countries, mostly LICUS, PRS not yet completed

  15. 1. Clear role vis-à-vis other national development strategies—Country experience Kyrgyz Republic • Kyrgyz CDF is the long-term development vision through 2010 • NPRS is the medium-term strategy through 2005 to guide vision implementation Uganda • PEAP is the national vision for poverty eradication through 2017 • Every 3-4 years PEAP updates to identify medium-term policies

  16. 1. Clear role vis-à-vis other national development strategies—Country experience (cont.) Pakistan • 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 • 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 • 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

  17. 1. Clear role vis-à-vis other national development strategies—Country experience (cont.) Bolivia • 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 • 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

  18. 2. Finance and planning functions aligned, and PRS coordination backed by leadership—Overview • 27 of 59 countries one institution in charge of coordinating PRS process • 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 • coordination can be problematic, time consuming and costly

  19. 2. Finance and planning functions aligned, and PRS coordination backed by leadership—Country experience Uganda • Ministry of Planning and Ministry of Finance merged in 1992 to enhance coordination of government policies • Ministry of Finance, Planning and Economic Development leads PEAP implementation and coordinates the preparation of PEAP Progress Reports and PEAP Revisions

  20. 2. Finance and planning functions aligned, and PRS coordination backed by leadership—Country experience (cont.) Mozambique • The Ministry of Planning and Finance (MPF) took the initiative on PARPA preparation and had been in charge of PARPA updating • 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

  21. 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 • 24 of 59 countries MTEF is under development but not yet facilitating strong link between PRS and budget • 29 of 59 countries MTEF not yet under development

  22. 3. PRS embedded in interministerial coordination mechanisms, linked to MTEF/budget—Country experience (cont.) Bosnia and Herzegovina • 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 • Finance ministers of both entities prepared MTEFs based on PRSP that guide preparation of the entities’ budgets and the BiH budget

  23. 3. PRS embedded in interministerial coordination mechanisms, linked to MTEF/budget—Country experience Pakistan • 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

  24. 3. PRS embedded in interministerial coordination mechanisms, linked to MTEF/budget—Country experience (cont.) Rwanda • Interministerial Committee on Poverty chaired by the Prime Minister coordinates PRS implementation • Line ministries prepare sector MTEFs that feed into a macro MTEF, underpinning budget preparation

  25. 4. Sector action plans aligned with PRS—Overview • 36 of 59 countries sector action plans are aligned with PRS • 23 of 59 countries sector action plans are not yet aligned with PRS

  26. 4. Sector action plans aligned with PRS—Country experience Mozambique • Line ministries were significantly involved in PARPA formulation to incorporate previously developed sector strategies • Sector strategies are being updated in line with PARPA and integrated into a constitutionally-mandated annual Plano Económico e Social guiding government policies

  27. 4. Sector action plans aligned with PRS—Country experience (cont.) Malawi • Ministry of Economic Development and Planning working with line ministries to align policies with MPRS Senegal • Line ministries have prepared sector operation programs identifying actions to meet DSRP targets, with timetable and budget • Government workshop to harmonize and coordinate them

  28. 5. PRS M&E system integrated into country-level system—Overview • 3 of 59 countries a country-level M&E system tracks PRS implementation • 23 of 59 countries action is being taken to develop a county-level M&E system • 33 of 59 countries there are plans to develop a country-level M&E system incorporating PRS M&E

  29. 5. PRS M&E system integrated into country-level system—Country experience Uganda • There is a single M&E system for both government and external partner needs • Performance indicators are spelled out in the Policy and Results Matrix of the revised PEAP • Benchmarks for assessing annual progress feed into the government progress status reports transmitted to Parliament during preparation of the annual budget

  30. 5. PRS M&E system integrated into country-level system—Country experience (cont.) Mozambique • 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 • Link of line ministries’ M&E systems with PES timing and indicators developing

  31. 5. PRS M&E system integrated into country-level system—Country experience (cont.) Bolivia • 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

  32. 6. Parliamentary committees contribute to PRS formulation and monitoring—International experience • 7 of 59 countries parliamentary committees contribute to PRS formulation and monitoring • 5 parliament approved PRS • 52 of 59 countries parliamentary committees do not contribute to PRS formulation and monitoring • 13 parliament approved PRS

  33. 6. Parliamentary committees contribute to PRS formulation and monitoring—Country experience Ghana • In 2002 Parliament formed a special committee on poverty reduction, assembling parliamentarians from standing committees, to discuss the GPRS • 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 • The special committee continues to report to the plenary on the focus, content and adequacy of GPRS implementation

  34. 6. Parliamentary committees contribute to PRS formulation and monitoring—Country experience (cont.) Honduras • 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

  35. 7. Local development plans are compatible with PRS priorities—Overview • 7 of 59 countries there is evidence of local development plans prepared in alignment with PRS priorities • 52 of 59 countries there is no evidence local development plans reflecting PRS PRS priorities

  36. 7. Local development plans are compatible with PRS priorities—Country experience Pakistan • The Government encouraged each province to draft its own PRS • Three of the four provinces completed a PRS, which served as input for the national PRS • The PRS of the poorest province was not completed in time and remains in draft form

  37. 7. Local development plans are compatible with PRS priorities—Country experience (cont.) Bolivia • 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

  38. Challenges • 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.

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