UNITED NATIONS DEVELOPMENT PROGRAMME
PROJECT OF THE GOVERNMENT OF SUDAN
PROJECT DOCUMENT
Project number: SUD/02/001
Project title: Support to Local Governance in Khartoum
State
Estimated start date:
2002
Estimated end date:
2006
Project site:
Khartoum
Government cooperating agent:
Khartoum State Ministry of Finance, Economy and
Manpower
Lead/executing agent: DEX
Other agent(s):
UNDP and cost-sharing
inputs
UNDP:
TRAC
$1,014,988
Cost-sharing:
Government
$ 145,632
Third party
$
Grand Total: $1,160,620
Classification information
ACC sector and subsector: Employment –
Management Development Technical and
Management Training.
DCAS sector and subsector: Technical and
Management Training.
Government sector and subsector: General
Development Issues
LPAC
2 July 2002
approval date:
Primary type of intervention: Institutional
Building.
Secondary type of intervention: Civil
Servants Popular Leaders in Localities, Localities
Support and Development Fund.
Primary target beneficiaries: Members of
Khartoum State Legislative Council.
Brief description: The objective of the project is to help create a conducive environment for
transparent local governance at Khartoum State by building the capacities of localities in planning,
financial and administrative management and revenue raising. The project will also enhance the
capacities of the communities of the target localities to play a more proactive role in the decision
making process.
On behalf of :
Signature Date
Name/Title
Government of the Sudan:
UNDP:
1
2
Government of the Sudan
United Nations Development Programme
SUD/02/001
Support to Local Governance
in Khartoum State
The objective of the project is to help create a conducive environment
for transparent local governance at Khartoum State by building the
capacities of localities in planning, financial and administrative
management and revenue raising. The project will also enhance the
capacities of the communities of the target localities to play a more
proactive role in the decision making process.
3
Ia.
Situation Analysis:
Khartoum State has an area of (22,000) sq. kilometres. It is located amid Sudan, and
surrounded by 6 neighbouring States. It is inhabited by 4,936,000 1 people. In accordance
to the Local Government Act of 1998 and Khartoum State Local Government of 1999, the
state is divided into 25 localities. Localities in Khartoum are classified into 3 categories:
municipal, town and rural councils. The roles of these localities are to:  Deliver basic public services.
 Facilitate popular participation and power sharing.
 Foster socio-economic development at the community level.
Localities are the lowest formal tier of Government consisting of two main compartments,
the elected legislative council and the executive apparatus. Both bodies have to interact in
order to formulate policies and to execute them. Chapter (3) of the Federal Local
Government Act of 1998 empowers State Governments to establish localities, taking into
account the number of people in the given locality and the common characteristics that
shape the social, cultural and economic features of the community. Moreover, the Act
stipulates that the localities should be able to raise adequate resources to fund
development activities and provide local services.
Devolution of power to local entities is the essence of decentralization to meet the
aspirations of local communities. It brings government to the grass roots and makes it
possible for them to choose the best among desirable alternatives. However, problems
arise when managerial and technical capacities are incapable of predicting or resolving
problems of rapid change, urban complexities and development planning.
There is no information available on the level of human and financial resources at the
localities in Khartoum State. However, the Khartoum State Ministry of Local Governance
conducted a study in March 2001 at three selected localities. The study revealed that the
level of human and financial resources available at each of the three localities was far less
than the needs of each one. (annex II).
Financial management and budgeting system at localities is an issue of major concern.
Localities practice a traditional repetitive budgeting system that is based on the
administrative needs of the localities, rather than on the needs of the communities. The
disadvantages of this system is that it emphasises mainly on the bureaucracy and not on
the programmes. The current system does not challenge future expectations and it hinders
creativity. Local initiatives on revenue generation are lacking and local spending badly
needs re-orientation and priority setting.
1
UNFPA CBS Population Data Sheet of 2001
4
Localities lack the strategies and planning tools that are needed to formulate sound plans
and programmes to address these development issues. They also lack the trained staff
who are able to lead the process of planning and mobilizing the communities to take up
these challenges.
Generally speaking, spending on development is less than 5% of the total localities'
expenditures. The perception of development planning at the localities is weak and the
capacities of the staff at the localities’ level to undertake development and planning
activities is also weak. Most of the developmental schemes are carried out by ministerial
agencies without the participation of the localities. Programmes, funded by NGOs, in
education, health and provision of water and other services are not co-ordinated by the
localities. In many cases the localities and the communities of those areas are not even
involved in these activities.
Lack of knowledge and information is an obvious cause for the localities' inability to
forecast, plan, assess and identify community needs. In addition, lack of information is a
major handicap for the localities to solve problems and resolve conflicts. The localities do
not have information systems, and lack information and planning specialists. There is no
system for data collection, nor an automated information storage system. The meagre
information that is available is scattered in different departments.
The legislative council members are the community representatives whose role in policy
formulation and execution of policies is continuously broadening. The majority of them
are not well informed about the basic concepts of good governance, and the role of other
civic organizations, and private sector in power sharing. This makes the role of
communities in the decision making process is rather weak
In the 1950s and 1960s, 86 corporate bodies were established as Municipal and Rural
Councils all over the Sudan according to the 1951 Local Government Ordinance.
Although their powers were meagre compared with those of the recent localities, they
were exercising their functions effectively.
In the period since 1971 up to the late 1980s, a major change occurred by the issuance of
the 1971 Peoples Local Government Act, by which the 86 councils were dissolved and
more than 550 local councils were established with delegated powers as agencies of the
People Provincial Councils (State level now). This period witnessed the creation of the
neighbourhood and village councils at the grass-roots level for the first time in Sudan.
People at the grassroots were involved in executing self-help projects and co-operatives.
One of the negative experiences during the period was that the role of the native
administration and the traditional leaders was greatly diminished and under-emphasized.
Replacement of their roles by new leaders was a major setback to the traditional grass-root
institutions that were widely respected by the people.
5
The last 12 years witnessed a shift to creating corporate bodies at the local level and
legalising them as self-autonomous bodies. More powers and responsibilities were
transferred to localities including services such as basic education with its heavy
expenditure burden. The major weakness is that, the corresponding financial resources to
meet these expenditures were lacking. The high rate of rural to urban migration and the
spread of poverty have added additional burdens causing decline in localities services.
The experience of local governance in Khartoum State has proven that devolution of
power and responsibility to the lower tiers of government has to be matched with
corresponding resources or legislation to raise revenue in order to meet the new demands.
Experience has also shown that:
 It is necessary to mobilize local leaders and officials to achieve significant reform
in local governance.
 A vibrant civil society with active community organisations will promote the
development of local government.
 Information and statistics is vital for an effective local government system.
Ib. Strategy:
The two main government partners at the state level are the State Ministry of Finance,
Economy and Manpower and the Local Government Chamber. The Ministry of Finance,
Economy and Manpower is entrusted with responsibility of availing resources to fill the
gap in local revenue generated by the poor localities that are not able to meet their needs.
The Ministry and other relevant line ministries in Khartoum State are also charged with
the responsibility of seconding the technical staff to the localities.
The Local Government Chamber (LGC) has the responsibility to manage and foster the
support to the localities as well as to create the structures of the localities and field the
administrative staff that are needed by them. The LGC is also entrusted with the
responsibility to carry out studies related to local governance and to resolve conflicts that
exists between the different localities and other government institutions. The technical and
administrative staff seconded by the State ministries and the Local Governance Chamber
to the localities are technically responsible to their line ministries, but administratively
report to their respective localities which pay their salaries and other benefits.
The interaction of these different institutions together would create a common platform
that provides the financial, human and technical resources to the localities. This
interaction should yield the necessary support that would allow the localities to address
their needs.
6
However, these institutions as well as the localities are not able to fully meet their
objectives/goals due to the following:
 Capacities of the localities to plan and manage financial and human resources
efficiently are weak;
 There are no systems available to provide data and information that would aid in
the planning process.
 There are no experiences in facilitating the process of decision-making and power
sharing at the localities level.
 The policies that govern the operations of the localities are constrained by differing
views on the concept and interpretation of the laws. There is a need for policies to
reflect the reality that local governments are the foci of development and are
needed for effective governance, which is essential to the promotion of
participatory democracy. This is only possible, if local government is strong, both
financially and functionally, and is managed efficiently, effectively and
productively with good community involvement.
To address these problems, the project will focus on four basic areas. These are:
 Improved capacity of localities to generate revenue.
 Conducive policy environment for improved local governance performance ensured.
 A state-sponsored policy for increased community empowerment is in place and
community awareness and capacities to plan and participate in the management of
local development increased.
 Transparent and enhanced mechanism for finance and budgeting developed and
increased capacity of localities to collect and manage information.
Employing these different areas collectively would contribute to achieving the objectives
of the project. The approach that would be used varies from one area of support to
another. Activities that are of a policy nature will be done at the Khartoum central level as
well as at other relevant localities. Field surveys and capacity-building programmes will
be done at the locality level and central level.
In establishing policy reform legislations, there is a need to take inventory of the existing
policies/regulations and legislation and follow that by a process of identifying gaps in
legislation and practice. Eventually there would be revised policies followed by an
implementation action plan. The project will also review the existing organizational
structures at the target localities. Upon review of those structures, the project will propose
alternative structures if needed or enhance the existing ones to meet the needs of each
respective locality. Moreover, as there is a need to enhance the performance and output of
the target staff, the project will formulate job descriptions of the staff and propose a
performance appraisal system to be piloted in selected localities.
7
One of the major problems to be addressed by the project is the inability of localities to
raise revenue. Addressing this problem would entail proposing sound criteria for resource
allocation to localities, improving the capacity of the localities to collect revenue. As
localities practice the traditional budgeting system, there is a need to pilot the performance
based budgeting system in at least one locality. The use of comparable successful models
of resource allocation and performance based budgeting systems and applying them, at
least on pilot basis would be advantageous and form a strong base for a system of
equitable resource allocation and distribution.
Facilitating popular participation in the decision making process and fostering socioeconomic development and planning at the community level would be attained through a
series of activities conducted in the target localities. These would be done through
building sustainable partnerships with Civil Society Organizations, NGOs and CBOs,
mobilizing campaigns that encourage empowerment of all community groups specially the
poor and other marginalized groups.
The project would employ a combination of direct training activities as well as on the job
training programmes to enhance the capacities of the technical and administrative staff as
well as the community representatives present in the localities. Dissemination of
experiences as well as documenting best practices and lessons learnt are considered
important activities that are intended to build awareness, build institutional memories at
the community level and support the efforts of sustainability. The project will make use of
the services of three international specialists. Each specialist will provide advise and
training support to each of the three areas (outputs 1,2 and4) at different intervals
throughout the duration of the project. The nature of the technical support will vary from
one area to the other, but it will concentrate on advisory support services and competency
enhancement.
The project will also aim to institute necessary mechanisms that would support the process
of establishing an accountable and transparent local governance system in Khartoum
State. This would be initiated by disseminating information on local governance finance
and service provision. That would be followed by deploying an effective community
oversight mechanism. Development of Information systems and establishment of database
at each of the target localities will be addressed by the project through a capacity building
programme.
8
Criteria for selecting localities.
Khartoum State consists of 25 localities. Three of them are municipalities, sixteen are
town councils and six are rural councils. The project will be working at eight target
localities. Selection of the eight target localities has been made according to the following
criteria:
 A fair representation of all the three types of localities (one municipality, five town
councils and two rural councils).
 Focus on poorer localities to help them improve their revenue generation capacities
and improvement of delivery of basic services. Notwithstanding, this important factor
in the selection criteria, one rich municipality will be selected as one of the target
localities. The reason for selecting a rich one is to have a diversity in terms of activities
and outputs throughout the state and to ensure that the model that is being developed
could be replicated in all physical, financial and administrative settings. The
distinction between poor and rich localities has been made in accordance with the per
capita expenditures at each target locality.
 For the purposes of monitoring and supervision of the work, emphasis will be focused
on localities that are accessible, especially during the rainy season.
As per the above-mentioned criteria, the following localities have been selected:
 Alsalam Town Council, per capita expenditure of 314 S.D.
 Haj Yousif Town Council, per capita expenditure of 746 S.D.
 Althawra Town Council, per capita expenditure of 856 S.D.
 Alkalaklat Town Council, per capita expenditure of 1011 S.D.
 Alazhari Town Council, per capita expenditure of 1186 S.D.
 Wadi Soba & Wadi Abu Salih Rural Council, per capita expenditure of 1504 S.D.
 Omdurman Southern Rural Council, per capita expenditure of 1720 S.D.
 Khartoum Municipality which has a per capita expenditure of 5063 S.D.
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Part II.
RESULTS FRAMEWORK
Intended Outcome as stated in the Country Results Framework: G1-3.
Local authorities and organized communities including the poor are involved in planning and management of development activities with human and
financial support from the central government.
Outcome indicator as stated in the Country Programme Results and Resources Framework, including baseline and target.
Outcome indicator: Proportion of total public revenues allocated and managed at sub-national level.
Baseline: Currently the bulk of public resources are allocated and managed at state and federal levels.
SRF End Target 2004: The proportion of the total public revenues allocated and managed at the sub-national level in Khartoum State increased by 25%.
Applicable Strategic Area of Support (from SRF) and TTF Service Line (if applicable): Decentralization Policies.
Partnership Strategy: UNDP will take the lead and provide financing. Khartoum State Ministry of Finance will provide cost-sharing contributions and
act as the focal point. The Ministry of International Cooperation will act as the coordination body. Eight localities in Khartoum State will assist the
project in implementing capacity building activities and data collection. Community organizations will participate in local planning activities and in
providing data and information. SURF will provide policy guidance and referral service.
Project title and number: SUD/02/001 Local Governance Support in Khartoum State.
Intended Outputs
1. Improved capacity of
localities to generate
revenue.
Output Targets for (years)
1.1 Policy recommendation issued
(year 1).
1.2 Policy recommendation
approved. (year 2).
1.3 Increase of revenue by 5% at
target localities. (year 2).
1.4 Increase of revenue by 10% at
target localities. (year 3).
Indicative Activities
Inputs
1.1.1 Recruitment of two national experts to design
questionnaires, formulate and carry out the necessary tasks
that will lead to issuance of the policy recommendation.
1.1.2 Participatory assessment/inventory of existing laws and
policies.
1.13. Participatory assessment of sources/flows revenue
from the central to the state, the state to the locality within
the locality and from the localities to others.
Intl consultants:
$60,000
National consultants:
$14,000.
Workshops: $21,000
Surveys,
documentation,
dissemination,
reporting and staff
11
1.5 Increase of revenue by 15% at
target localities. (year 4).
2. Conducive policy
environment for
improved local
governance performance
ensured.
2.1. Draft policy recommendations
prepared (year 1).
2.2 Policy recommendation adopted
(year 2).
2.3. Review report on piloting of
policies prepared (years 3 &4).
2.4. Draft orgainzational structures,
TORs, PAS prepared and adopted
(year 1 & 2).
1.1.4. Review of the percentage contributions (inflow) and
expenditures by sector/theme (outflow) within the target
localities.
1.1.5. Review and analysis of possible options and
opportunities on revenue generation at the locality.
1.1.6. Recruiting an international expert on local revenue
generation and financial planning to provide policy advice
prior to policy formulation.
1.1.7. Analysis of the findings.
1.1.8. Holding public debate forums at all levels to
review/validate findings.
1.1.9. Issuance of policy recommendations for
legislature/Khartoum State Government approval.
1.1.10. Follow up on the implementation of the policy
recommendations through a well structured and time bound
mechanism.
1.1.11. Documentation and dissemination of the process and
outcomes to other localities and states.
inputs: $70,075.
Missions: $4500
Equipment: $51,500
2.1.1. Recruitment of a national legal expert.
2.1.2 Review of the existing legislature related to he
mandate of localities and their inter-relationships with other
state and federal organs.
2.1.3. Study tour to India and Malaysia to review similar
experiences and use the results as input into the workshop.
2.1.4. Recruitment of an international consultant on
organizational structures/policies and systems of local
governance.
2.1.5. Workshop to discuss the findings of the review
exercise and to set forth policy recommendations.
2.1.6. Formulation of policy recommendations.
International experts:
$40,000
National experts:
$16,000
Study tour: $14,000
Local training
activities and
workshops: $30,000
Awareness raising:
$12,000
Documentation and
Dissemination: $8,500
Total Inputs for
output 1.1 :
$221,075.
12
2.5 Report on the implementation of
organizational structures, TORs and
PAS prepared (years 3 &4).
3. A state-sponsored
policy for increased
community
empowerment is in place
and community
awareness and capacities
to plan and participate in
the management of local
development increased.
3.1. Report on the study prepared
(year 1).
3.2. Plan of action formulated (year
2).
3.3.Coordination mechanism in place
by end of year 2.
3.4 50% of target groups provided
with essential knowledge and
information through seminars,
workshops and media publicity
campaigns by end of year 2.
3.5 Capacity building programmes
on oversight functions and
community awareness all remaining
target groups completed by end of
2.1.7. Policy recommendations presented to the Khartoum
State Legislature and Khartoum State Government for
approval and adoption.
2.1.8. Identification and deployment of a working group of
two national experts to design a new organizational chart job
descriptions and performance appraisal systems for the
target localities.
2.1.9. Proposed organizational structures presented to the
Khartoum State Government for adoption.
2.1.10. Follow-up on the implementation of policies
structures and design of corrective measures, if needed.
2.1.11. Dissemination of the experience to other localities
through the media, Khartoum State Government and the
internet (UNDP Governance Network).
Staff: $68,075.
Audio-visual and
other training
equipment: $51,500
Missions:$4,500
3.1.1. Recruitment of a national community
development/mobilization expert.
3.1.2. Recruitment of an international UNV on community
empowerment in local governance for two years.
3.1.3. Inventory taking and review of the role, interrelationships, strengths, mandate and composition by
gender of the existing grass-root organizations/NGOs and
the newly proposed “Administrative Committees” active at
all levels within the target localities.
3.1.4 Study of the extent and reasons for the existing gaps, in
popular participation, of the NGOs and other active
grassroot organizations at the target localities.
3.1.5. Conduct a participatory workshop to review and
validate the results of the study.
3.1.6. Formulation of a revised transparent structure that
allows increased community participation at different levels
National experts:
$14,000.
UNV: $105,600.
Training and
workshops: $32,000.
Equipment: $51500.
Study tour: $12,000
Staff: $68,075.
Documentation,
dissemination and
reporting: 8,500.
Missions:$4,500
Total Inputs for
output 2.1:
$244,575.
Total Inputs for
outputs 3.1. and 3.2:
$296,175.
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year 3.
3.6. Reports on pilot activities
prepared (years 3 &4).
4. Transparent and
enhanced mechanism for
finance and budgeting
developed and increased
capacity of localities to
collect and manage
information.
4.1. Training plan ready (year 1)
4.2.New Finance and budget system
piloted in one locality and assessed
for effectiveness at end of year 2.
4.3. Sustainable Management
information system operational at
end of year 3.
4.4. Sustainable MIS and Finance
and budgeting system fully
operational at end of year 4.
4.5. Review reports prepared (years
in the decision making process.
3.1.7. Conduct a series of workshops/training activities at the
selected localities to equip the target communities and
council members with knowledge and information on their
expected roles.
3.1.8 Training localities administrators of the selected eight
localities in participatory local governance.
3.1.9. Design of an integrated, participatory plan of action
for development planning at the locality level.
3.1.10.Propose mechanisms, resources and source of funds
to implement the plan of action.
3.1.11 Develop a coordination mechanism for service
provision.
3.1.12.Establishment of community oversight mechanisms at
the seven target localities.
3.1.13. Develop a follow-up and reporting module for the
implementation of the plan of action.
3.1.14. Dissemination of the successful experiences.
4.1.1 Inventory of the existing staff at the target localities
aggregated by gender, skills and education.
4.1.2. Recruitment of an international expert on local
governance finance and management.
4.1.3. Conducting training needs assessment.
4.1.4. Design of a training plan.
4.1.5 Selection of appropriate institutions/national experts to
conduct the training programme.
4.1.6 Study tour to a neighboring country to review
management systems.
4.1.7. Recruitment of an international and national experts
on Administration and Finance.
International expert:
$40,000
National consultants
for review and
assessment: $8,000.
Training and capacity
building: $30,000.
Study tour: $18,000
Sub-contracs:$30,000
Awareness raising and
dissemination of
information: $ 8,500.
14
3 &4)
4.1.8. Design of an appropriate system for finance and
budgeting.
4.1.9. Procurement of the necessary software and hardware
for finance and budgeting.
4.1.10 Design of an information and management system.
4.1.11. Procurement of the necessary equipment.
4.1.12. Establishing a sustainable and updated information
system in the target localities.
4.1.13. Design and implementation of training programme
on Finance and Management.
4.1.14 Establishing a review and follow-up mechanism.
4.1.15. Dissemination of information/experiences and best
practices through the media, the Khartoum State Ministry of
Finance and Economic Development and the Internet.
Equipment: $51,500.
Staff: $68,075.
Terminal Evaluation:
$30,000
Missions: $4,500
Total inputs for
outputs 4.1 & 4.2:
$288,575.
15
Part III. Management Arrangements:
The recent problems associated with national execution in Sudan have presented
themselves as challenges hindering the adoption of that modality on a comprehensive
scale. As outlined in the 1999, 2000 and 2001 Audit Reports, the 2002 Evaluation of the
ADS/ARS Programme as well as the 2002 CCF Review Report, the experience of national
execution has been associated with many deficiencies that have reflected negatively on the
performance of the UNDP Programme in Sudan. As noted in the 2001 Audit Report: “the
overall NEX model adopted by the Office was not successful and needed to be fully
reassessed and reviewed”
Moreover, presently there is no agreed NEX manual outlining transparent criteria for
implementation of nationally executed projects. In the absence of such systems and
common understanding of the nature and scope of NEX, the direct execution modality
becomes a more viable alternative.
In the case of this project using DEX would ensure accountability in the management of
the project and its resources as well capturing the lessons learnt from the project. It would
also ensure that the country office would be able attain results and disseminate them
rapidly, given the fact that this is the first project of its kind funded by UNDP.
The Khartoum State Government will provide the Government Project Co-ordinator, who
will act as the focal point of the government in the project. The State Government will
also avail to the project the services of the Head of the Training Department of the
Khartoum State Ministry of Finance, Economy and Manpower. The Director of the
Khartoum State Information Centre will also liase closely with the project especially in the
area of building the localities capacities in information management.
The State Government will avail the offices, furniture and will cover the costs of utilities.
Moreover, the State Government will provide a cost-sharing component of US Dollars
150,000.
UNDP will provide goods and services in full consultation with the government, including
short-term consultants and procurement of equipment. UNDP will assist with technical
and substantive expertise for procurement of these goods and provision of the services.
The project will be managed by a National Manager, who shall hold a UNDP contract and
will be accountable to UNDP. Linkages with other ministries, research and training
institutions and technical personnel will be developed by the project through surveys,
consultancies and backstopping. Relevant staff (including a counterpart to the NPM) will
be seconded from the State Ministry of Finance to support the project. The project,
however, will not be responsible for payment of any part of the remuneration of the
counterpart staff.
The project will have an advisory committee for co-ordinating the project's activities and
providing guidance. The advisory committee will be composed of the government
agencies involved in the project, UNDP, a representative of each locality and a
representative of the Khartoum State Legislature.
16
The advisory committee should meet twice a year to review the project's progress. The
advisory committee will be chaired by the Khartoum State Minister of Finance and
Economic Development or the Head of the counterpart State Ministry should the
responsibility of local governance be assigned to another ministry in the future.
The Advisory Committee would:
 Provide advice to the project.
 Review the progress on policy formulation.
 Review the project's progress and work plan.
The NPM & counterpart will be responsible for preparing a six months work plan, which
will be presented, to UNDP, GOS and the advisory committee for approval.
The project will be subject to a review by representatives of the government and UNDP at
least once a year. The National Project Manager shall prepare the Annual Project Report
(APR) for circulation prior to the annual review meeting.
The project will recruit a Monitoring and Evaluation Specialist who will be working with
the project on a full-time basis.
In addition, the NPM shall prepare a progress report before each advisory committee
meeting. The NPM shall also prepare the six months work plan for review at the advisory
meeting and the Annual Review Meeting.
The project will also employ an international UNV with experience in community
empowerment in local governance. The UNV will help in training community groups in
participatory local governance and transparency. He/She will also provide support to the
efforts of establishing policies for community empowerment.
A project terminal report will be presented at the project's terminal review meeting. It
shall be prepared in draft and sufficiently in advance to allow for review and clearance.
The project shall be subject to a terminal evaluation (given its unique nature and pilot
basis). The evaluation shall be conducted toward the end of the project. The organization,
terms of reference and exact timing will be decided after consultation between all
concerned parties.
Part IV. Legal context:
This project document shall be the instrument referred to as such in Article 1 of the SBAA
between the Government of Sudan and UNDP, signed by the parties on 24 October 1978
and ratified by the Government of Sudan on 2 January 1980.
17
PROJECT RESULTS AND RESOURCES FRAMEWORK - ANNUAL INPUT-OUTPUT BUDGET
WORKPLAN FOR YEAR 1
ACTIVITY
DESCRIPTION
1.1.1 Recruitment of two national experts to design
questionnaires and carry out tasks that will lead to
policy recommendations.
1.1.2 Start participatory assessment of existing laws
and policies.
1.1.3 Participatory assessment of sources/flows of
revenue from the central to the state, the state to the
locality within the locality and from the localities to
others
1.1.4 Review of the percentage contributions (inflow)
and expenditures by sector/theme (outflow) within
the target localities
1.1.5 Recruitment of an international expert on local
revenue generation and financial planning to provide
policy advise prior to policy formulation
Administrative support for output 1
NPPPs for output 1
Local procurement for output 1
INPUTS
DESCRIPTION
National consultants
BUDGET LINE
BUDGET
17.51
04,000
Surveys/Studies
33.01
01,500
Surveys/Studies
33.01
02,000
Surveys/Studies
33.01
03,500
International experts
11.51
10,000
13.01 – 13.05
17.01 – 17.02
45.01
05,750
02,025
01,250
Admin. Support
Technical support
Operations & Supply
18
International procurement for output 1
Reporting for output 1
Sundries for output 1
Total for output 1
Equipment
Documents/Reports
Faxes/phones
45.02
52.01
53.01
125
25,000
875
55,525
2.1.1 Recruitment of a national legal expert
National Consultant
17.51
02,000
2.1.2 Review of the existing legislature related to the
mandate of localities and their inter-relationships
with other state and federal organs
2.1.3 Recruitment of an international consultant on
organizational structures/policies and systems of local
governance
Administrative support for output 2
NPPPs for output 2
Local procurement for output 2
International procurement for output 2
Reporting for output 2
Sundries for output 2
Studies/surveys
33.01
02,000
International
Consultant
11.51
16,500
Admin. Support
Technical support
Operations & Supply
Equipment
Documents/Reports
Faxes/phones
13.01 – 13.05
17.01 – 17.02
45.01
45.02
52.01
53.01
05,750
02,025
01,250
25,000
125
875
62,225
National Consultant
17.51
02,000
UNV
14.01
13,200
Total for output 2
3.1.1 Recruitment of a national community
development/mobilization expert
3.1.2 Recruitment of an international UNV on
community empowerment in local governance for
19
two years
3.1.3 Inventory taking and review of the role, interrelationships, strengths, mandate and composition by
gender of the existing grass-root organizations/NGOs
and the newly proposed “Administrative committees”
active at all levels within the target localities.
3.1.4 Study of the extent and reasons for the existing
gaps, in popular participation, of the NGOs and other
active grass-root organizations at the target localities.
3.1.6 Initiate community oversight mechanisms at the
target localities
3.1.7 Initiate a follow-up and reporting module for
the implementation of the plan of action
Administrative support for output 3
NPPPs for output 3
Local Procurement for output 3
International procurement for output 3
Reporting for output 3
Sundries for output 3
Total input for output 3
4.1.1 Inventory of existing staff at the target localities
aggregated by gender, skills and education
4.1.2 Start a training needs assessment
4.1.4 Designing of a training plan
4.1.5 Selection of appropriate institutions/national
Surveys/workshops/
awareness raising
33.01
33.02
02,000
04,000
Surveys/studies
33.01
02,000
National consultants
17.51
02,000
Workshops
33.01
02,000
13.01 – 13.05
17.01 – 17.02
45.01
45.02
52.01
53.01
05,750
02,025
01,250
25,000
125
875
33.01
01,000
17.51
17.51
17.01 – 17.02
01,000
01,000
500
Admin. Support
Technical support
Operations & Supply
Equipment
Documents/Reports
Faxes/phones
Study
Study
Internal formulation
Review/discussion
20
experts to conduct the training programme
Administrative support for output 4
NPPPs for output 4
Local procurement for output 4
International procurement for output 4
Reporting for output 4
Sundries for output 4
Total input for output 4
Total input for outputs 1 - 4
Admin. Support
Technical support
Operations & Supply
Equipment
Documents/Reports
Faxes/phones
13.01 – 13.05
17.01 – 17.02
45.01
45.02
52.01
53.01
05,750
01,525
01,250
20,000
125
875
33,025
206,800
21
Budget: See attached FIM Budget.
22
Annex II
Summary of the Weaknesses of the Recent Practice of
Khartoum State Localities
The study which has been undertaken in April 2001 for three localities to represent the
different patterns of local governments in Khartoum state and the dialogue held afterwards
in June 2001 to check the findings of that study have reached an assessment of common
weaknesses in local governance performance that require a positive change and
reformative measures. The main weaknesses may be summarised in the following brief
points:

The majority of KRT State localities are supported by constant grants from the state’s
Ministry of Finance due to the scarcity of local revenues and the inability to initiate an
adequate and dependable revenue base. The main task of the localities is to fulfil
Chapter ‘1’ (Salaries expenditure) requirements. As a result many necessary items
drop due to the failure to finance. Localities are bound to restrictive budgeting
procedures that impede their ability to project and achieve clear and defined
programmes.

The present organisational structures of localities are defective. Many key posts that
require qualified staff are vacant especially at poor localities. The majority of
employees have not undergone training courses in their relevant jobs. Local services
provision decline of resultant to the poor calibre and the failure to set forth-sound
policies whether in legislation or practice the LDF and LGL as vital units to promote
local governance are practising marginal roles compared to their ultimate goals.

Civil society organisations (NGOs) and private sector as stakeholders in community
advancement are not attaining fair participation in local affairs and there are no
obvious intentions to incorporate them in public affairs. Sustainable human
development as a major objective in good governance is not well addressed in its
different aspects, in poverty combating, gender and environmental conservation and
regeneration.

Decision-making process is not based on accurate information. The meagre data is not
updated. Some localities have introduced computer systems, but for the best they are
utilised in primary clerical jobs.
23
Annex III (Job Descriptions/TORs)
Terms of Reference (TOR)
UNV Community Empowerment Specialist
Under the direct supervision of the National Project Manager (NPM), the
international UNV Community Empowerment Specialist is responsible for the
implementation of the activities related to the community empowerment. More
specifically, he/she will have the following duties and responsibilities:

















Lead the process of inventory taking and review of the role, inter-relationships,
strengths, mandate and composition by gender of the existing grass-root
organizations/NGOs at the target localities.
Examine and review the role of the proposed Administrative Committees at the
localities.
Study and document the existing gaps in popular participation at the locality level.
Support the process of developing a transparent structure that allows increased
community participation at the different levels of the decision making process at the
target localities.
Conduct a series of consultation sessions with all stakeholders prior to finalizing the
transparent structure.
Formulate tailor-made training activities that would sensitize the communities, NGOs,
CBOs and locality administrators.
Establish partnerships with the civil society and other active partners to enhance the
working relationships at the locality level.
Formulate tailor-made training activities intended to build the capacities of locality
administrators in participatory local governance.
Lead and support the process of design of an integrated participatory plan of action for
local level planning at the locality level
Support the process of establishing a coordination mechanism at the eight target
localities.
Lead the process of designing a community oversight mechanism at the eight target
localities.
Develop in collaboration with the M&E Officer a follow-up and reporting module for
the implementation of the action plan.
Develop and establish in collaboration with the M&E officer and the State Ministry of
Finance, Manpower and Economic Development a system for dissemination of the
experiences to other localities.
Formulate training programmes in participatory local governance, administrative and
financial management and community empowerment;
Supervise and provide guidance to the M&E Officer in documenting best practices,
lessons learned and dissemination of both to other stakeholders;
Provide capacity building and technical support to counterparts at the state and locality
level;
Supervise and follow-up on the process of replicating the project activities from the
target localities to others;
24




Explore the potential for use of National UNVs within the Project.
Raise awareness among the communities about the importance of volunteerism for
mobilising target groups, community empowerment and good governance.
Work collaboratively with the UNVPO in the promotion of Volunteerism in Sudan
according to the Resolution A/RES/56/38.
Undertake any other relevant activities as required by the Project.
Qualifications:
 University degree in public management or public administration and related areas;
 At least five years of experience in local governance at the field level;
 Extensive knowledge of participatory community development and community
empowerment;
 Proven practical experience in design and implementation of grassroot training
activities;
 Experience and ability to establish networking and partnerships between organisations
at various levels;
 Excellent reporting and communications skills;
 Excellent written and spoken English, knowledge of Arabic is an asset;
 Good command of basic computer skills.
Duty Station: Khartoum.
Term: One year, renewable based on performance
25
Terms of Reference (TOR)
International Expert on Local Revenue Generation
and Local Governance Taxation
Under the supervision of the UNDP Programme Manager and in close consultation
with the Khartoum State Government, the International Expert will undertake the
following tasks:










Review the current systems and practices on local revenue generation and taxation
systems;
Study the frequency and appropriateness of the current levels of resources in relation
to the needs and demands of the localities;
Provide analytical assessment of the options and opportunities relating to local revenue
generation and local governance taxation systems;
Review the existing local government tax systems, strategies and tools, operational at
the locality level;
Examine with local practitioners the problems associated with local revenue
generation and taxing with the view of establishing enhanced systems;
Provide inputs to the public debate workshops and capturing outcomes for use in
policy recommendations;
Draft policy recommendations with viable options for review and analysis;
Conduct briefing sessions with all concerned stakeholders to discuss policy
recommendations;
Submit final policy recommendations draft;
Prepare and submit mission report.
Duty Station: Khartoum State
Duration: One month
Qualifications:
-
-
Advance University Degree in Finance or Public Administration and Taxation;
At least ten years of experience in local governance finance and revenue
generation and taxes;
Extensive field experience in developing countries in the formulation,
development and implementation of local governance financial structures and
policies;
Excellent drafting and reporting skills;
Fluency in written and spoken English;
Knowledge of Arabic is an advantage;
Excellent computer skills.
26
Terms of Reference (TOR)
International Expert on Organizational Structures/Policies and Systems
Of Local Governance
Under the supervision of the UNDP Programme Manager and in close consultation
with the Khartoum State Government, the International Expert will undertake the
following tasks:









Review the existing local governance systems, set-ups and functions;
Examine the functions, mandates and practices of localities;
Review of the current policies and legislations relating to the functions of localities in
the State;
Conduct sessions with all stakeholders with the view of discussing practices, problems
and designing proposals;
Participate in State workshops to discuss and review findings, provide inputs and
extract outputs for policy recommendations;
Formulate draft policy recommendations;
Discuss draft policy recommendations with the relevant stakeholders;
Finalize and submit policy recommendations to concerned parties;
Prepare and submit mission report.
Duty Station: Khartoum State
Duration: One month
Qualifications:
-
Advance University Degree in Public Management, Public Administration or a
relevant field;
Extensive experience in organizational structures at the local government level;
Extensive knowledge of systems and approaches related to enhancing local
governance structures;
Excellent drafting and reporting skills;
Fluency in written and spoken English;
Knowledge of Arabic is an advantage;
Excellent computer skills.
27
Terms of Reference (TOR)
International Expert on Finance and Management
Under the supervision of the UNDP Programme Manager and in close consultation
with the Khartoum State Government, the International Expert will undertake the
following tasks:









Review the existing Finance and Budgeting system;
Discuss with all stakeholders the potential types of systems required to address the
needs;
Develop a needs-oriented performance-based budget system;
Institute mechanism to pilot the new system in three localities;
Develop indicators to measure the progress of the proposed mechanism;
Assist in design of a training plan for use in the target localities;
Design tools and measures to support the establishment of a sustainable information
management system;
Pilot a training workshop on Finance and Budget and MIS in at least one locality;
Prepare and submit the mission report as well as the relevant plans and formats related
to finance, budgeting and management.
Duty Station: Khartoum State
Duration: One month
Qualifications:
-
Advance University Degree in Public Management or Public Administration;
Extensive experience in local governance budgets, finance and management;
Extensive knowledge of design and experience of training plans and innovative
systems;
Excellent drafting, communications and reporting skills;
Fluency in written and spoken English;
Knowledge of Arabic is an advantage;
Excellent computer skills.
28
Job Description
National Project Manager (NPM)
Under the direction of the UNDP Programme Analyst, the NPM is responsible for
the implementation of all technical, financial and administrative aspects of the
project. He/she will ensure that project’s outputs are achieved within the approved
time frame and budget. Specifically, he/she will have the following duties and
responsibilities:















Develop and execute the overall project work plan and its implementation strategy;
Review and update on a bi-annual basis the rolling project cycle in accordance with
the project implementation strategy;
Prepare and provide progress and other relevant reports to concerned parties;
Develop the terms of references for the sub-contracts and national consultants;
Organize, supervise and implement project inputs and activities in a timely fashion;
Participate in the recruitment and supervise all the project staff;
Responsible for conducting capacity needs assessment of the target beneficiaries at the
State and locality level;
Provide support and guidance to the process of policy formulation and approval,
ensuring that adequate levels of consultation with all stakeholders have been done;
Develop and implement in collaboration with relevant national/international experts,
the training programmes in participatory local governance, administrative and
financial management and community empowerment;
Supervise and provide guidance to the M&E Officer in documenting best practices,
lessons learned and dissemination of both to other stakeholders;
Responsible for commissioning research work, surveys and studies related to the
project activities;
Provide assistance and guidance to project related missions;
Provide capacity building and technical support to counterparts at the state and locality
level;
Supervise and follow-up on the process of replicating the project activities from the
target localities to others;
Undertake any other relevant activities as required by the Project.
Qualifications:
advanced university degree in public management or public administration;
at least ten years experience in local governance at the field level in the Sudan;
extensive knowledge of the local governance systems and practices in Sudan;
at least three years of practical experience in development programme
management;
experience and ability to establish networking between organisations at various
levels;
excellent reporting and communications skills;
excellent written and spoken English and Arabic;
good command of basic computer skills.
Duty Station:
Term:
Khartoum.
One year, renewable based on performance
29
30
Job Description
Monitoring & Evaluation (M&E) Officer
Under the direct supervision of the National Project Manager, the Monitoring and
Evaluation Officer will undertake the following duties and responsibilities:












Identify and develop the various indicators required to monitor the progress in
achieving the project outputs and activities within the yearly identified targets;
Monitor and report on the project’s progress towards realizing the overall outcome;
Support the target localities in developing a results-oriented monitoring plan and help
in identifying indicators to measure progress towards realizing the outputs of the plan.
Lead the process of documenting results-based best practices for all the project outputs
and disseminating the experiences to other localities;
Provide support to the UNV Community Empowerment Officer to develop a followup and reporting module for the implementation of the Community Empowerment
action plan;
Provide inputs to the technical progress reports;
Provide inputs to the Project’s Annual Progress Report;
Develop a data base consisting of development related interventions and capacity
building activities in the eight target localities;
Assist the localities in establishing information systems with relevant development
indicators;
Train the locality staff in management monitoring component of the information
systems;
Prepare trainers guides on M&E techniques and approaches for use at the target
localities;
Undertake any other relevant activities as required by the Project.
Qualifications:
Advanced university degree in Economics, Statistics or a relevant field;
At least ten years of solid experience in monitoring and evaluation of development
related projects and programmes;
Good knowledge of Results-based Management techniques;
Strong survey and sampling experience;
Ability to establish networking between organisations at various levels;
Excellent reporting and communications skills;
Excellent written and spoken English and Arabic;
High computer literacy with experience in using a variety of qualitative and
quantitative software.
Duty Station: Khartoum.
Term: One year, renewable based on performance
31
Job Description
Project Assistant
Under the overall supervision of the NPM, the Project Assistant will undertake the
following duties:












Advises project staff on UNDP clearance procedures on finance, procurement,
recruitment, travel, etc;
Collects, maintains and updates data relevant to the project area;
Maintains expenditure ledgers and updated approval levels by source of funds;
Monitors payment requests, obtains necessary clearances and ensures payments are
effected promptly. Extracts, transfers data, producing various reports. Reviews,
reconciles financial reports;
Compiles background material, working papers and statistical data for briefing
sessions;
Maintains consultancy data-base for specialized programme area;
Drafts routine correspondence; follows up, responds to queries on project matters;
Processes and follows up on actions related training activities, logistical arrangements
and other public relations initiatives;
Maintains project inventory records;
Arranges periodic project meetings with project personnel, Government officials;
ensures documentation is complete and distributed, takes notes/minutes at meetings as
needed;
Maintains a follow-up system to ensure that project workplans are adhered to; inform
supervisor of slippages;
Performs other relevant duties as required.
Qualifications:






University degree in economics, Development, Business Administration or
relevant field.
Five years of experience in project implementation and monitoring including
knowledge of logistical arrangements.
Proven computer skills in word processing and spreadsheet applications.
Proven skills in research and report writing.
Proven communication skills.
Excellent spoken and written English and Arabic.
32
Job Description
Secretary
Under the overall supervision of the NPM, the Secretary will undertake the following
duties:











Types documents/reports ensuring that spelling, punctuation and format are correct;
prepares correspondence for supervisor’s signature, checking enclosures and
addresses;
Proof-reads for correctness;
Arranges appointments for supervisor, receives visitors, responds to routine requests
for information and assist in making travel arrangements for supervisor;
Drafts correspondence on routine matters;
Receives and screen correspondence and attaches necessary background information;
Maintains office records and reference files on various subjects;
Takes notes at meetings as required;
Answers incoming phone calls and takes messages when so appropriate;
Maintains a complete directory of names, addresses and phone numbers of all relevant
clients/partners.
Acts as a liaison between the Project, Government and UNDP on routine matters such
as payments, delivery of reports, mail, etc.
Performs other relevant duties as required;
Qualifications:
Education: First University Degree in Secretarial or Business Administration or relevant
field.
Experience:
-
Three years secretarial experience, preferably at the UN.
Proven computer skills in word processing both English and Arabic and
spreadsheet applications.
Proven communication skills.
Excellent spoken and written English and Arabic.
33
Job Description
Driver
Under the overall supervision of the NPM, the Driver will undertake the following
duties:






Drivers office vehicles for the transport of authorized personnel and delivery and
collection of mail, documents and other items;
Meets official personnel at the airport and facilitates immigration and customs
formalities as required;
Responsible for the day-to-day maintenance of the assigned vehicles, checks oil,
water, battery, brakes, tires.. etc, performs minor repairs and arranges for other repairs
and ensures that the vehicles is kept clean;
Logs official trips, daily mileage, gas consumption, oil changes, greasing … etc.;
Ensures that the steps required by rules and regulations are taken in case of
involvement in accident;
Perform other duties as required.
Qualifications:




Primary education, driver’s license, and knowledge of driving rules and regulations
and skills in minor vehicle repair.
Two years’ work experience as a driver preferably in the UN system or a UN funded
project;
Safe driving record.
Fluency in written and spoken Arabic. Knowledge of English is an advantage.
34
Typical Khartoum State Locality Organizational Setting
Chairperson (elected)
Local Council
Specialized committees headed
by elected councillors to raise
policy recommendations
Agriculture
Vet. Dept.
Social
Welfare
Education
Dept.
Executive Manager/chairperson
Executive Apparatus
Consists of the heads of departments
Finance
Dept.
Deputy Exec.
Manager
Revenue
collection Dept.
Emergency
Dept.
Public Health
Dep.
Popular Administrations at the neighbourhood and village levels
35