PNPM Rural Implementation Support

Transcription

1 PNPM Rural Implementation Support Quarterly Progress Report: April to June 2015 Summary Information Status Activity Number Task Team Leader(s) Executing Agency(ies) Start date to Closing Date Geographic Coverage Approved Budget Active TF Sonya Woo PSF 14 May 2008 to 31 December 2015 (91 months) National: 5,300 sub-districts, 403 districts, 33 provinces US$7,734,642 Disbursements during the Quarter US$ 224,712 Cumulative Disbursements US$ 6,593,976 Progress Project Overview Since it was first launched, PNPM Rural has undergone a significant expansion, with its coverage increasing from 2,600 sub-districts in 2008 to 5,300 sub-districts in A number of studies and evaluations indicated that this rapid expansion placed substantial strain on the program's management and governance framework. To ensure that PNPM Rural continues to achieve its stated objective, which is for villagers to benefit from improved local governance and socio-economic conditions, additional support from the PNPM Support Facility (PSF) managed by the World Bank was required to provide full supervision coverage and to improve its quality. To facilitate the provision of this support, the PSF Joint Management Committee (JMC) approved the establishment of an implementation support trust fund in May In 2010, two separate projects were designed to work in close cooperation under a single trust fund: (i) Implementation Support and Monitoring of PNPM Rural and the two Papua-based initiatives, PNPM Rural/RESPEK and PNPM Agriculture; and (ii) Field-Based Implementation Support and Governance and Fiduciary Support. The PNPM Rural Implementation Support and Monitoring project aims to provide field-based monitoring and support, governance and fiduciary support, as well as monitoring and evaluation (M&E), to the overall PNPM Rural activities. The Implementation Support team provides nationallevel oversight; conducts thematic reviews; and engages in a higher level policy dialogue with PNPM Rural s implementing agency, the Directorate General of Community and Village Empowerment (PMD) under the Ministry of Home Affairs (MOHA) and with the former PNPM Steering Committee (Pokja Pengendali). The project assists PMD to formulate recommendations, strategies and policies through technical assistance and thematic reviews.

2 Overall progress towards development objective Since January 2015, implementation progress has been slow due to the introduction of the Village Law (VL), which prompted key institutional and sectoral changes which in turn, resulted in delays in the Government s approval of the Project s budget for Furthermore, following the change in government in October 2014, there were institutional changes in the ministry responsible for PNPM and Village Law, including the transfer of PMD to the Ministry of Villages, Disadvantaged Areas and Transmigration (MoVDAT) and replacement of Pokja Pengendali by Tim Percepatan Pengalihan PNPM Mandiri Pedesaan dan Persiapan Pelaksanaan UU No. 6 Tahun 2014 (The Acceleration team for PNPM Rural Transition and Preparation of Village Law implementation ). This quarter, the most significant progress in the field was the work completed to monitor the impacts of PNPM s suspension, by way of a technical mission to six provinces (Maluku, DI Yogyakarta, East Java, West Java, West Sumatera, and West Kalimantan), covering 30 sub-districts. The objective of the mission was to obtain data on a sub-set of PNPM Rural locations, given the disruptions to the program precipitated by the transition of the program under the new Village Law. The mission noted that the overall quality of planning, fiduciary controls, implementation and reporting had deteriorated in the absence of facilitation, field supervision and clear technical support and guidance-- especially with regard to the legal ownership of PNPM assets and management of Revolving Loan Funds (RLFs) funds that were previously administered by the PNPM Sub-District Financial Management Units (UPKs). In addition, trust fund resources were used to support MoVDAT in the transition of the project to comply with the new Village Law; and reappraise the project s resources and needs. The reappraisal resulted in a formal restructuring of the project. Key changes included: (i) (ii) (iii) Changing the implementing agency from the Ministry of Home Affairs (MoHA) to the new MoVDAT; Amending select intermediary results indicators in the results framework (RF); and Extending the loan closing date from December 31, 2015 to December 31, 2016 and updating the implementation schedule accordingly. Intensive support was therefore provided to MoVDAT to effect these changes and immediately reactivate project implementation in the field by changing the Terms of Reference (ToR) and redeploying PNPM Rural facilitators (as stated in the MoVDAT s letter to provincial satkers dated June 19, 2015). Despite the recent weakening of the program s performance in light of the abovementioned conditions, the program development objective (PDO) has remained unchanged. Key developments during the quarter Although the implementing agency of PNPM Rural and the Village Law has transitioned from MoHA to MoVDAT, several key areas of the program were performing relatively well. This is in part thanks to the continued support provided by the Implementation Support team to the new Ministry to ensure the smooth institutional transition and to accelerate the transition of the program from PNPM Rural to the Village Law. During the second quarter of the year, this support included establishment of working groups to provide effective support to MoVDAT in preparing the closing of PNPM and the commencement of the Village Law, drafting several ToRs and guidelines in relation to PNPM closure and the Village Law implementation, as well as intensive workshops and discussions on facilitation and asset management. However, the establishment of the new secretariat in the MoVDAT, including the utilization of the newly-recruited key specialists, is still underway. The following summarizes key activities that the team provided support to in the second quarter:

3 PSF working group on PNPM transition. In order to assist the new MoVDAT in preparing for PNPM Rural closure activities, the implementation support team established a working group to work closely with MoVDAT for the transition period. The working group was tasked with supporting the development of guidelines for the closure of PNPM Rural in the areas of procurement, financial management, facilitation, asset management, and safeguards. For this, workshops were held in Bogor and Jakarta between May and June 2015, and were attended by MoHA, MoVDAT, Bappenas and Kementerian Koordinator Bidang Pembangunan Manusia dan Kebudayaan Indonesia (Kemenko PMK). The Working group s work plan was also jointly agreed with Kemenko PMK and MoVDAT and shared with other government counterparts and the Australian Department of Foreign Affairs and Trade (DFAT) s Managing Contractor, KOMPAK, at the end of April Establishment of a new secretariat. The newly-established secretariat will consist of government officers from MoHA, MoVDAT, key consultants, and supporting staff, who will provide day-to-day support for project implementation. Although the decree (SK) declaring the Central Satker of the PPMD Directorate (Village Community Empowerment and Development) in MoVDAT was issued in April 2015, the SK for the establishment of the secretariat has not been issued by the MoVDAT due to the unavailability of office space and office supplies. Furthermore, five key specialists (in the areas of financial management, Management Information System (MIS), disbursements and budgeting, procurement and project management) were recruited in order to support program implementation. Project handover arrangements from MoHA to MoVDAT. The official project hand-over from MoHA to MoVDAT was completed in mid-april ToR facilitators and consultants. MoVDAT has taken action to rehire ex-facilitators and consultants of PNPM Rural to assist with (i) the closure of PNPM Rural, which will be guided by the Project Operational Manual (PTO) and related Termination Guidelines; and (ii) transition activities and early planning of the Village Law implementation. To ensure that the roles and tasks of facilitators and consultants were clearly defined in carrying out these two duties, the implementation support team reviewed and provided inputs to the ToRs of facilitators and consultants prepared by Government. Guidelines for recruitment of consultants and facilitators for Village Law. The Implementation Support team provided inputs and advice to MoVDAT on developing guidelines for recruiting field facilitators and consultants at sub-district and district levels. The guidelines will be distributed to provincial Satkers who will be responsible for conducting the recruitment process as part of the Village Law implementation. A New Management Information System (MIS) for the Village Law implementation. The implementation support team has been involved in discussions regarding options for systems to be used during the transition period. The newly developed MIS completed in December 2014 under MoHA in partnership with DFAT may have the potential to provide comprehensive, reliable and up-to-date data on project implementation. However, the newly developed system is yet to be utilized. A decision on systems utilization during the transition period will need to be hastened as the previous MIS has not been operational since the cessation of consultant contracts in December 2014 and a functioning MIS is required once facilitators and consultants are mobilized again in the field.

4 Critical challenges Recruitment and mobilization of facilitators. As the PNPM program is re-activated and the the Village Law has nearly commenced, re-hiring and mobilization of ex- PNPM Rural facilitators and consultants are urgently needed. The experience of these facilitators and consultants would enable efficient completion of activities and facilitation of the early planning process of the Village Law implementation. However, it is expected that the number of available ex-facilitators and consultants would have declined, since their contracts expired in December 2014, resulting in several vacancies in some locations. As a result, entirely new facilitators recruited to fill the gaps will have to be given additional training to understand the nature of the program. Establishment of new secretariat. A new concept and ToR for the PNPM Rural and Village Law Secretariat needs to be put in place. Work Plan and Procurement Plan for A work plan and procurement plan needs to be immediately finalized by MoVDAT given its plans to re-procure key contracts. Previous procurements of such firms have been time consuming due to the lengthy preparation, planning and hiring processes involved. Therefore, it is imperative that adequate resources including the recently hired procurement specialist be directed to assist in preparing the procurement plan to ensure the firms and facilitators are mobilized with adequate time to undertake the necessary project closure activities. Activities planned during the next quarter Enhanced implementation support to MoVDAT will be provided by the PSF implementation support team over the coming six months to closely monitor the recommencement of program activities and coordination with the Village Law planning, including: Recruitment and mobilization of ex-pnpm Rural facilitators. The team will support the acceleration of the recruitment and mobilization process for facilitators and consultants. Oversight of the recruitment process, refresher training and mobilization will be conducted in August Establishment of new secretariat with five key consultant positions to support MoVDAT and project implementation in the field, by end of July A technical mission will be carried out in August and September 2015 to review and assess facilitator training, particularly the quality of training materials (such as safeguards policies, financial management, and facilitation techniques training manuals) provided to facilitators. An implementation support mission will also be carried out before the end of October 2015.

5 Key Performance Indicators Indicator Baseline Cumulative Target Cumulative Achievements VAR Target for 2015 Achieved in 2015 VAR Remarks Project Development Objective: To provide technical support, guidance and supervision to the overall PNPM Rural activities through field-based monitoring and support, governance, fiduciary, M&E MoVDAT 1 s capacity to manage the various PNPM operations under its mandate is enhanced Field supervision, system reviews & studies help shape the policy dialogues on PNPM Rural and PNPM Mandiri PNPM operation managed by Directorate of PPMD in MoVDAT A joint secretariat established; MIS and Complaint handling System (CHA) overhauled Field findings translate into strategic reform agenda for PNPM Rural; PSF inputs incorporated into the PNPM Roadmap PNPM Rural operations have been moved from MoHA (PMD) to MoVDAT (PPMD) TOR for Secretariat endorsed but delays in the establishment MIS redesign completed but not yet utilized CHS redesign completed The draft design of the facilitation structure and management, including the number of facilitators needed, estimated budget and training plan has been prepared Delays in establishing a new secretariat Continue Draft TORs for a new secretariat including five key specialists have been endorsed by MoVDAT Procurement Plan 2015 Inputs and advice to MoVDAT on developing guidelines for recruiting field facilitators and consultants at sub-district and district levels have been provided by PSF team. Establishmen t of a new secretariat under MoVDAT is still inn process MIS user training is completed but delays in utilization D Following the Presidential Regulation 12/2015, the MoVDAT is inaugurated to be responsible for the management of PNPM Rural and the the Village Law. The PSF will continue to provide policy and operational advice to PNPM Rural closure and the Village Law implementation. Component 1: Increase risk-based implementation support to the PNPM Rural, to assess the effectiveness of existing management systems and assist the strengthening of these system as needed 1 Following the Presidential Decree no.12/2015, the implementing agency for PNPM has been changed from Ministry of Home Affairs (MoHA) to Ministry of Village, Disadvantage Area and Transmigration (MoVDAT).

6 # of risk based supervision p.a. Follow-up on field findings with PMD # & type of thematic studies & performance conducted i Practical tools developed to improve contract management & oversight Impact of a more comprehensive approach to capacity building and facilitation is demonstrated 4 p.a. 6 p.a p.a. 0-6 Quarterly Quarterly follow-up with PMD Quarterly Quarterly progress implementation report provided by MoHA/MoVDAT has been delayed since January The last quarterly progress report was received in December (as needed) 8 studies completed 0 0 New contract monitoring tools commonly used Capacity building and facilitation acknowledged in the Village Law Tools finalized and shared with PMD Policies and operational advice provided for the Village Law Completed PNPM fully integrated into the Village Law Tools finalized and shared with PMD Socialization of the Village Law in all trainings for facilitators, consultants and PJOK Two government regulations on the the Village Law (PP43/2014) and on the Village Fund (PP60/2014) have been issued Delays Completed The activities in the first half of the year were focused on the national level, i.e. the closure of PNPM Rural and the VL. The next supervision mission will be conducted i. Since the PNPM and the VL have not yet officially commenced, there is heretofore no report submitted by the MoVDAT. There is no study conducted this year due to project transition Enhanced Empowerment Experiment (EEE) implementation was discontinued since the Government announced the Village Law.

7 Component 2: Increased stakeholders involvement in project preparation and implementation support Joint government and donor review missions Intensive dialogue with PMD (MoHA) and other government stakeholders on PNPM Customized approach developed for remote areas (e.g. Eastern Indonesia), starting with Papua 2 missions p.a. 3 missions p.a Customized approach for remote areas, starting with Papua Monthly coordination meetings (+adhoc workshops to discuss specific issues) Intensive dialogues with PMD and government stakeholders by way of providing inputs and recommendations to the government policies to support PNPM/the Village Law have been intensively done Papua Desk at the PMD secretariat established Meetings held quarterly Discussion on the importance of revising PTO for Papua 3 missions p.a. Monthly 0-3 Intensive dialogues and thematic workshops (such as Asset Management, Training Modules for Village Apparatus) have been conducted particularly in relation with the reoperation and completion of PNPM Rural as well as preparation of the Village Law implementation No further discussion on Papua or eastern Indonesia issues. PTO not yet fully revised The government is still focusing on the PNPM Rural completion and commencement of the Village Law Currently, the discussion with the Government is focused on the PNPM Rural completion and the Village Law, including recruitment and mobilization of facilitators. The discussion with the Government is currently limited to the institutional arrangements for PNPM Rural completion and early planning of VL implementation. i Some of these studies are co-financed by other PSF trust funds. The previous indicator on developing strategy for economic inclusion has been deleted since it is no longer relevant to activities under PNPM Rural Implementation Support.