Building Ownership
Engaging government and civil
society in diagnostic work
Francesca Recanatini, WBI
December 3, 2003
www.worldbank.org/wbi/governance
Outline
Governance and Anti-Corruption
Diagnostic Surveys Implementation
Sierra Leone
Mozambique
Key components and challenges
Diagnostic Surveys
Action plan/strategy
Political economy issues
Local capacity
Process – An illustration
WBI Technical Assistance
Stages for Development of the National
Anti-Corruption Strategy
7. Monitoring and Evaluation of
NAS
6. Implementation by
Government
Country
Implemented
5. Revision of the NAS
4. Public dissemination +
discussion
3. Draft of the NAS
2. Diagnostic surveys + analysis
1. Establishment of Steering
Committee
Key Partnership: Government + Civil Society
Governance and
Anticorruption (GAC)
Diagnostic Project:
The Case of Sierra Leone
Sierra Leone – the process
Formal request for assistance in February
2002 from President of SL to the World
Bank to develop a governance strategy
Creation of a Steering Committee under
the Governance Reform Secretariat
ACC and GRS
Media
National Statistical Agency
NGOs
Donors
Challenges
Post-conflict country
Weak institutions
Weak local capacity
To implement diagnostic
To analyze the results
To design policy
Sustainability
Objectives of the Diagnostic Study
Evaluate the performance of key public
institutions and their effectiveness in service
delivery
Determine the quality of public services
Determine the extent and impact of
corruption
Analyse the management of resources and
decision making in the public sector
Determine implications for good
governance/public sector performance
The Process - steps taken by SC
Competitive selection of survey firm
(July 2002)
Finalization of survey instruments
(September 2002)
Definition of survey sample (September
2002; input from Statistical Agency)
Pilot test of surveys (October 2002)
Field work (October- January 2003)
Sample Allocation
A total of
3000 respondents originally targeted
2990 actually interviewed
Planned
Households =
Businesses =
Public Officials =
Actual
1800
600
600
1800
600
590
3000
2990
The process, cont.
First draft Report in April 2003
Final draft Report completed in
September 2003
Report publicly launched by the VicePresident on October 28, 2003 at a
National Workshop to draft a National
Governance and Anti-Corruption strategy
Draft action plans designed during the
National Workshop
Corruption in Sierra Leone
(2002-2003)
percentage of users that were asked to pay a
bribe while trying to obtain a public service
% of managers that were asked to pay a
bribe for requesting for licenses and permits
percentage of cases in which bribes were
necessary to obtain public contracts (as
reported by public officials)
public funds misappropriation (% of public
officials reporting it is very frequent)
purchasing of positions (% of public
officials reporting it is a very frequent
practice)
0%
20%
40%
60%
80%
% of respondents who reported that type of corruption
Public funds are mismanaged (Sierra Leone)
Min. of Health
Min. of Agriculture
S.L Police
Min. of Justice
Min. of Education
Min. of Social Welfare
Min. of Local Govt.
Min. of Finance
Para-statals
Others
Nat. Commissions
Min. of Information
Min. of Development
Min. of Defence
0
10
20
30
40
50
60
70
80
% of Public Officials that said public fund irregularities are frequent
90
High amounts are spent on bribes
Amount Spent on Bribes to Obtain
Services by Size of Firm
Amount Spent on Bribes to Obtain
Services by Household Income
(as reported by managers)
(as reported by households)
Surveys &
Lands
Surveys &
Lands
District &
Municipal
Councils
District &
Municipal
Councils
Income Tax
Department
Income Tax
Department
Registrar
General’s
Department
Registrar
General’s
Department
0
small scale
10000
20000
medium scale
30000
large scale
0
low income
10000 20000 30000
middle income
high income
The development of a
participatory governance
strategy
A few images from the National
Workshop on Governance and Anticorruption, Freetown, October 28-29,
2003.
Sierra Leone, cont.
Key areas identified during the Workshop
for reform:
inadequate structural environment, unclear
institutions and laws
ineffective law enforcement
weak monitoring mechanisms
inadequate role of the civil society and the
media
non-transparent management of public
resources
need for capacity building
A coordinate effort in an
ongoing process
Use of PETS and other diagnostic works
to assess the quality of governance and
institutions
GAC results as an input for the
Institutional Reform and Capacity
Building Project (Nov. 2003: preappraisal; May 2004: at the board)
Sierra Leone – next steps
To compile a draft of the National
Governance Strategy
To disseminate and review the report and
the draft strategy at 4 regional Workshops
by February 2004
To finalize National Governance Strategy by
April 2004
To implement the National Governance
Strategy
Challenges ahead
Delay in the implementation process
and loss of momentum and political will
Upcoming local elections (May 2004)
Regional instability
Manipulation of the results and the
process
Governance and
Anticorruption (GAC)
Diagnostic Project:
The Case of Mozambique
2002 Mozambique Governance Indicators Compared to Regional Averages
Voice and Accountability
Political Stability
Government Effectiveness
Regulatory Quality
Rule of Law
Control of Corruption
0
10
20
30
40
50
Country's Percentile Rank (0-100)
Regional Average
Mozambique
Source: D. Kaufmann, A. Kraay, and M. Mastruzzi 2003: Governance Matters III: Governance Indicators
for 1996-2002.
60
70
Mozambique: GAC Diagnostic
In 2001, the Government of Mozambique (GoM)
approved a Global Strategy for Public Sector
Reform, 2001-2011 as the groundwork for its
Action Plan for the Reduction of Absolute Poverty
2001-2005
To oversee the implementation of the reform, the
GoM established:
CIRESP = Inter-Ministerial Committee for
Public Sector Reform
UTRESP = Technical Unit for Public Sector
Reform
UTRESP: ESTRUTURA E ORGANIZAÇÃO
CIRESP
Secretários
Permanentes e
Províncias
DIRECTOR
UTRESP
Assessoria
Técnica e
Apolo
Financeiro
Secretariado
Assesor
Finanças
Procurement
Governação
Gestão
Mundança
Monitoria/
Avaliação
Salários &
Financas
Quick Wins
Mozambique: GAC Diagnostic
The Public Sector Reform Strategy
comprises six major components:
Strengthening service delivery through
decentralization and institutional
restructuring
Policy formulation and monitoring
Public Sector professionalism
Financial management and accountability
Good governance and combating corruption
Management of the reform process itself
Mozambique, cont.
UTRESP prepared a Governance and
Anticorruption Strategy in October 2001 with the
implementation of a GAC Diagnostic being the
core component
UTRESP is responsible for the GAC diagnostic
surveys, preparing an analytical report, and
disseminating the results
A Technical Committee - composed of: GPR,
GPM, INE, MPF, MJ, MAE, PGR, TA, TS, UEM, a
public company, CTA, AR, a civil society
organisation, a journalist, and a representative of
the International Community – oversees the
surveys
Mozambique, cont.
The Director of UTRESP chairs the Technical
Committee
The Technical Committee should:
Evaluate proposals and select the survey firm;
Approve the survey questionnaires;
Monitor the progress of the survey and approve the
final report;
Approve the approach to inform, educate and
communicate the results of the survey to the
public;
Propose policies or measures to improve
governance and reduce corruption
Mozambique: GAC Diagnostic
The results of the GAC diagnostics will help
identify priority areas for reform and be used
to revise and finalize the A-C strategy of the
GoM
The GAC comprises 3 surveys of Households,
Enterprises and Public Officials to evaluate
the extent, mechanisms and costs of
corruption
The Technical Committee will manage the
implementation of the diagnostic surveys
which were launched on Nov. 27, 2003
SURVEY OBJECTIVES
To learn about citizen’s concerns with
respect to governance and corruption
issues as well as the quality of services
delivered by the public sector in
Mozambique
To identify measures to help strengthen
the public sector reform process
METHODOLOGY
The GAC diagnostic will be representative – 1000
Public Officials, 500 Companies, and 2500
Families; it will have the following phases:
Preparation of questionnaires based upon a model
supplied by UTRESP;
Pre-survey pilot testing of the questionnaires
Data collection and analysis
Preliminary report
Discussion of the survey results in several workshops
across the country
Final report
Recommendations of the Technical Committee
INTENDED RESULTS
Empirical information to help the Government
formulate policies and programmes designed to
improve the delivery of government services
and to reduce corruption
Creation of a national database
Baseline performance indicators that will
provide for the periodic monitoring of change
(progress, no change, or regress).
The survey will be repeated biannually
DONOR SUPPORT
DFID of the United Kingdom has made a
firm commitment to fund the survey
Other Donors have promised additional
financial support for the dissemination of
the report
The WBI has committed to proide technical
assistance for the data collection and
analysis
Government has undertaken to provide
counterpart support in the FY 2003 Budget