THE WORLD BANK GROUP. Islamic Republic of Pakistan. Punjab Public Management Reform Program. Environmental and Social Systems Assessment

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1 Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized THE WORLD BANK GROUP Islamic Republic of Pakistan Punjab Public Management Reform Program Environmental and Social Systems Assessment PREPARED BY THE WORLD BANK October 1, 2013 E4215 REV 1

2 Contents EXECUTIVE SUMMARY INTRODUCTION AND CONTEXT Background to the Program Institutional and Implementation Arrangements Background to the Environmental and Social Systems Assessment Report Outline ASSESSMENT OF THE PROGRAM ENVIRONMENTAL MANAGEMENT SYSTEM The Environmental Context Potential Environmental Effects of the Program Potential Environmental Benefits Potential Environmental Risks Assessment of Key Environmental Management Capacity and Performance Environmental Management System Capacity and Performance Risk Assessment ASSESSMENT OF THE PROGRAM SOCIAL MANAGEMENT SYSTEM Social Context Service Delivery in Punjab Selected Social Indicators The Poor, Vulnerable, and Excluded Gender Disparities Geographical Disparities Social Dimensions of ICT Potential Social Effects of the Program Theme 1: Equity and Inclusion Theme 2: Information Loops Theme 3: Resistance to Change Assessment of Key Social Management Capacity and Performance Social Management System Capacity and Performance Program Initiatives Addressing Social Risks Risk Assessment RECOMMENDED ACTIONS Recommended Environmental Actions Recommended Social Actions Scope of Social Management Actions Further Mainstream Equity and Inclusion Considerations Information Outreach to Complete the Information Loop Fostering Change Implementation Support Summary of Key Risks and Enhancement Actions Annex 1: Information on the Punjab Governance Reform Roadmap

3 Annex 2: Preliminary Risk Screening and Assessment Worksheet Annex 3: Citizen Feedback Model Annex 4: Brief Description of Aawaz and the SubNational Governance Program Aawaz SNG Annex 5: Environmental Recommendations Beyond the Remit of the Program Annex 6: Targeted Services for PPMRP Information interventions References Endnotes

4 List of Tables and Figures Table 1. An Overview of PPMRP Table 2. Key Policies, Legislation, Regulations, and Guidelines for Environmental Protection. 16 Table 3. Key Social Indicators in Pakistan and its Provinces Table 4. Gender and Political Disparity in Punjab (percent) Table 5. Regional Income and Expenditure per Capita Table 6. School Enrollment in Punjab by Region Table 7. Summary of Main Activities and Associated Social Risks Table 8. Key Social Management Policies, Acts, and Guidelines in Pakistan and Punjab Table 9. Key Punjab Departments Dealing with Identified Social Issues Table 10. Summary of Main Program Risks and Recommended ESSA Actions Figure 1. District Map of Punjab Figure 2. District-Wise Literacy Map Figure 3. The Information Loop

5 Acronyms and Abbreviations DFID UK Department for International Development E&TD Excise and Taxation Department ESSA Environmental and Social System Assessment EIA Environmental Impact Assessment FOI Freedom of Information HDI Human Development Index ICT Information and Communication Technology IEE Initial Environmental Examination IMF International Monetary Fund MICS Multiple Indicator Cluster Survey NADRA National Database and Registration Authority NEQS National Environment Quality Standards NGO Nongovernment Organization ODI Overseas Development Institute OECD Organization for Economic Co-operation and Development OP Operational Policy P-EPA Punjab Environmental Protection Agency P&DD Planning and Development Department Pak-EPA Pakistan Environmental Protection Agency PforR Program for Results PPMRP Punjab Public Management Reform Program PITB Punjab Information Technology Board PPRA Punjab Procurement Regulatory Authority PRMP Punjab Resource Management Program PSLMS Punjab Social and Living Standards Measurement Survey SDPI Sustainable Development Policy Institute (Pakistan) SNG Subnational Governance (Program) UNESCO United Nations Educational, Scientific, and Cultural Organization UNICEF United Nations Children s Fund 5

6 EXECUTIVE SUMMARY Background 1. The Government of the Punjab has developed a five-year Governance Reform Roadmap to improve service delivery and citizens satisfaction with public services, for which it has approached the World Bank to provide financial assistance for implementation. The Banksupported Punjab Public Management Reform Program (PPMRP or the Program ) focuses on promoting improvements in three results areas: (a) transparency and access to services, (b) smart monitoring and access to services, and (c) resource mobilization and value for money. The entities that will implement the Program (in targeted departments) are: (a) the Punjab Information Technology Board, (b) the Punjab Resource Management Program, 1 (c) the Punjab Procurement Regulatory Authority, and, (d) the Excise and Taxation Department. Environmental and Social Systems Assessment 2. The scope of this document is to outline the main findings of an environmental and social systems assessment (ESSA) to ensure that the social and environmental impacts and risks associated with the proposed operation are identified, the risks mitigated, and the positive impacts maximized. The information necessary to conduct the ESSA was gathered through (a) consultations with the borrower agencies and relevant stakeholders, (b) a review of relevant assessments and literature, (c) discussions with task team leaders of various Bank-funded projects, and (d) field visits to certain districts. 3. Two points should be highlighted at the outset. First, there are challenges associated with gathering strong, up-to-date, Punjab-specific social data, although a number of sources are available and have been drawn on. Second, this document is not intended to be an exhaustive list of potential risks and benefits that may emerge in the course of the Program, nor is it intended to outline all the social and environmental dynamics in Punjab as has been done elsewhere. Rather, its objective is to outline some of the critical risks that are most relevant to the specific Program objectives and activities. Brief Summary of Main Findings This section outlines the Program s environmental and social aspects. Environmental Aspects Environmental Benefits and Risks 4. In terms of environmental risks, the activities planned under the proposed Program do not include any physical interventions such as construction, rehabilitation, or renovation works. Hence, these activities are environmentally benign and will not have any negative environmental effects, cause any loss or conversion of natural habitats or change land or resource use, or lead to any environmental pollution. However, the ESSA process has revealed areas where the Program could potentially bring about positive, indirect benefits through improved governance. Overall improvements in governance namely through greater transparency, accountability, and results- 6

7 based management may contribute to improved environmental governance and the implementation of environmental regulations. Environmental Management System 5. Several points emerge in relation to the environmental management system. There is a range of policies, legislation, and guidelines for environmental protection in Pakistan and in Punjab. The province is assumed to have a largely adequate regulatory regime and institutional framework available for environmental management and conservation. However, although the regulatory regime is strong, the capacity and incentives to implement these regulations are mixed. The provincial departments that will participate in PPMRP have varying degrees of environmental management capacity. Moreover, the limited capacity of the regulatory agencies and district governments concerned may pose barriers to improved environmental governance. Risk Rating 6. In light of this overall assessment, the planned Program activities pose no direct environmental risk. The proposed activities do not include any physical interventions such as construction, rehabilitation, or renovation works, and will not have any negative environmental impact, cause any loss or conversion of natural habitats or changes in land or resource use, or lead to any environmental pollution. The Program does, however, provide opportunities to improve environmental governance as an indirect benefit and outcome of the various Program results. Social Aspects Social Effects and Risks 7. Given that a number of PPMRP s activities focus on citizen involvement, the potential social effects, benefits, and risks are wider than those related to the environment. The main social effects of the Program can be separated into three overlapping areas: (a) equity and inclusion (the extent to which Program benefits are likely to be shared equitably), (b) information loops (the extent to which Program information is disseminated effectively and in a culturally appropriate manner), and (c) social resistance (the extent to which the proposed changes are likely to be resisted and implemented). 8. The main potentially positive social effects include the following. First, in terms of equitable access to Program benefits, the proposed activities aim to improve the quality and coverage of services, which includes a number of services on which low-income and more marginal groups depend. Moreover, the activities should make it easier, less time-consuming, and less costly for citizens to gain accurate information about their entitlements, which, in turn, may help them to better access services. Second, in relation to information flows from the government to citizens and vice versa, the main benefits include (a) increased citizen awareness of services that, in turn, enhances people s ability to access such services; (b) improved government accountability and responsiveness; and (c) improved citizen-state dialogue and trust. Third, where social resistance is concerned, PPMRP could contribute to an effective change process because it builds on existing initiatives and momentum and has undertaken extensive dialogue with the departments involved to ensure their buy-in to certain Program activities. 7

8 9. There are, however, some social risks in the three thematic areas. First, in the context of a digital divide, some groups such as women, rural groups, or the extremely poor may not have access to or be able to use information and communication technologies (ICTs) that would allow them to benefit from ICT-based interventions. Second, the poor and illiterate, and groups in remote rural areas, face challenges in accessing government information whether because they live far from information sources, lack the skills and education to understand and act on such information, or lack access to certain ICTs. Third, the ESSA identifies potential risks such as resistance to transparency measures that could undermine Program change processes. Social Management System 10. The ESSA assesses the Program institutions social management system and its capacity and performance in addressing the social issues that might emerge. At the federal and provincial level, there are policies, initiatives, and guidelines to deal with social issues, such as those related to women, low-income groups, and other vulnerable groups. There are also departments that are mandated to deal with the types of social issues that might arise. The Program operates within a policy and institutional framework that is largely conducive to addressing the social issues likely to emerge from Program activities. Indeed, this framework could always be improved and strengthened, but that is beyond the scope of this Program. 11. As far as the institutional capacity and performance in implementing policies and guidelines is concerned, reaching any general conclusions is difficult, given that numerous and diverse departments will participate in the Program and that the social issues cut across sectoral mandates. There are, however, signs of good capacity and performance in certain areas, although the capacity and incentives for implementation is, arguably, mixed. Some areas where knowledge and capacity could be strengthened include (a) coordination across participating Program departments in dealing with social inclusion issues, (b) knowledge of and capacity to undertake social assessments and tailor interventions to marginal groups, (c) monitoring capacity for social inclusion issues, and (d) measures for information dissemination and outreach. 12. PPMRP has already built in a number of activities to mitigate some of the social challenges that might emerge. First, in relation to equitable access, the Program has chosen to focus on some of the services that are critical to various low-income groups, such as maternal health, livestock, and agricultural extension. Second, in promoting information outreach, the information will be transmitted through multiple channels to reach more groups, such as phone contact centers, physical facilitation centers, and SMS- and interactive voice-based systems in local dialects. Gender issues, for example, will be approached through the use of female agents or voice messages recorded in female voices. Third, PPMRP aims to promote change management through continuous dialogue and consultation with the participating departments as well as through pilots in certain services in the first year to demonstrate benefits and identify reform champions. Risk Rating 13. The main social risk is that Program activities might reinforce inequalities in access to services and information through its focus on modern ICT-based interventions. Based on the Program s focus and design given Punjab s social context and existing capacity and 8

9 performance the risk rating in relation to the social issues outlined above is judged to be substantial. This rating is based on the following: (a) certain groups simply do not have good access to certain ICTs and so Program benefits may not reach them, (b) some of the social dynamics outlined are deeply engrained and unlikely to change in the course of a five-year program, and (c) the knowledge and capacity of Program institutions in addressing the outlined social issues may be limited in certain instances. The Program already has in place a number of measures to mitigate these risks; some selected extra actions are proposed below. Recommended Supplemental Actions Environmental Actions 14. Given that the Program activities are environmentally benign, the proposed actions are minimal. One recommended action would be to appoint an environmental focal point within the Punjab Resource Management Program who would be responsible for raising any environmental issues at the steering committee level, should they arise. Other recommendations have also emerged that offer opportunities for environmental enhancement. These are, however, beyond the scope of the Program and are listed in the annexes. Social Actions 15. The ESSA suggests that further attention could be given to ensuring equitable access to Program benefits, based on the unique needs of identified vulnerable groups. Some critical actions identified include the following: (a) Further mainstreaming equity and inclusion issues into the program. Specific actions include: (i) Promoting Program knowledge-sharing for capacity building on selected inclusion issues through a series of workshops and social inclusion how-to notes (ii) Monitoring social inclusion issues and producing a report to be incorporated into the Program s midterm review discussions (iii) Piloting face-to-face interactive citizen feedback models in two to three selected services, following a broad community scorecard model. This will enable the Program to collect strong feedback from the poorest groups who are not connected to ICTs, are illiterate, or receive limited or sporadic services, and will provide more detailed feedback on service delivery issues beyond the information collected by SMS. (b) Promoting information dissemination and outreach to marginal groups. Specific actions include: (i) Regular public communication on Program activities (such as through a biannual newsletter and workshop) and outreach to civil society and media organizations (ii) The production of one or two user-friendly information products, such as a printed pamphlet titled the Citizen s Guide to Development in Punjab, which will draw on information generated by the geo-mapping-for-development exercises 9

10 (iii) Proactive information dissemination through low-cost grassroots advertising beyond just ICT (such as through the use of cloth banners, chalk graffiti, local village and government gatherings, notice-boards, and radio) (c) Fostering change. Specific actions include: (i) (ii) legislation. Report Outline Designing a stakeholder management plan An ongoing dialogue with the Government on freedom of information 16. This report is separated into four sections and a series of annexes. Section 1 provides a brief background to PPMRP and the ESSA. Section 2 identifies the Program s main environmental benefits and potential risks, and assesses the borrower institutions capacity to manage the environmental issues identified. Section 3 examines the main social benefits and potential risks, and assesses the borrower institutions capacity to manage the social issues identified; it also outlines those Program activities designed to mitigate any potential social risks. Section 4 proposes some selected actions to ensure that the Program s positive social and environmental effects are maximized and that its risks are managed more effectively. The annexes provide supplementary information on specific issues and relevant initiatives. Prior to finalizing this document, the ESSA will be shared publicly for feedback and consultation. The feedback will then be incorporated and the document finalized. Annual consultations will also take place with multiple stakeholders to monitor the ESSA s progress and implementation, where relevant. 10

11 1. INTRODUCTION AND CONTEXT 1. This section provides a brief contextual background to the Punjab Public Management Reform Program (PPMRP) Background to the Program 2. The Government of the Punjab has developed a five-year Governance Reform Roadmap to improve service delivery and citizens satisfaction with public services. The roadmap includes a program of activities and expenditures to deliver results on nine themes that cover a wide range of crosscutting governance issues, ranging from results-based management, meritocracy, and leadership to innovation and decentralization (see annex 1 for brief details). 3. In this context, the World Bank has been approached to provide financial assistance to implement these activities. The Bank-supported PPMRP ( the Program ) will cover selected components of the Governance Reform Roadmap and will be implemented through the Bank s Program for Results (PforR) lending instrument (see table 1). 4. The Program Development Objective is to improve the transparency and resource management of targeted departments under the Punjab Government. 5. The key outcomes to be achieved are the following: Improved citizens access to information about key services Improved management of key services Improved urban property tax collection Institutional and Implementation Arrangements 6. The entities that will implement the Program are: (a) the Punjab Information Technology Board (PITB), which is attached to the Planning and Development Department (P&DD); (b) the Punjab Resource Management Program (PRMP); (c) the Punjab Procurement Regulatory Authority (PPRA), which is an autonomous body responsible for regulations and procedures for public procurements by provincial government-owned public sector organizations; and (d) the Excise and Taxation Department (E&TD), which administers the urban immoveable property tax, motor vehicle taxes, professional tax, and a number of other taxes and duties. 7. PRMP, the executing agency, will support the day-to-day implementation of Program activities, facilitate coordination across different government departments, monitor results, and generate performance and financial reports on Program implementation. It will serve as a secretariat to PPMRP s steering committee, help detect potential problems, and propose corrective actions. For the first and second indicators under Result Area 1, PRMP will, where necessary, seek assistance from the Office of the Secretary Implementation and Coordination and from the Services and General Administration Department in coordinating with the government entities targeted for these two indicators 11

12 Table 1. An Overview of PPMRP Result area Expected results Activities to be supported Improved citizen access to information about key services Published information on the targeted organizations and implementing agencies Result Area 1: transparency and access to services Objective: to improve citizens access to information provided by the targeted departments and facilitate access to key services. Result Area 2: smart monitoring and feedback loops Objective: to support smart monitoring and make performance information available for decision-making Result Area 3: resource management Objective: to improve Punjab s capacity for resource mobilization and better expenditure management Reliable service delivery information available to citizens and decisionmakers Performance monitoring systems implemented and used by line departments to monitor personnel delivering field services Increase in tax revenues Increase in properties registered Property registries functional at the district level Procurement MIS system implemented and used by cost centers for targeted contracts Proactively disclosing official information, establishing automated records management systems within key departments, and geomapping and publishing online development projects Offering information services to citizens on key public services by using ICT interfaces (the Web, helplines, SMS) Using ICT to automate service delivery (electronic payments, online application, and back-end automation) in key services Implementing a data collection system based on smartphones in key services provided by fieldworkers Producing performance reports for decisionmaking, gathering administrative and citizens feedback, and ensuring the public disclosure of performance reports Developing a digital database of property records and implementing revised ICT-based business processes to improve tax collection Developing and implementing a procurement performance management system, disclosing key procurement documents, and implementing e- procurement Implementing agency PRMP PITB PITB E&TD PPRA Targeted users Implementing agencies and targeted departments as per table 10.2 in annex 10 of PAD Key services as per table 10.3 in annex 10 Key services as per table 10.4 in annex 10 All districts in the province Selected organizations as per table 10.5 in annex 10 12

13 1.2. Background to the Environmental and Social Systems Assessment 8. As stipulated in the Bank s Operational Policy (OP) 9.00, all PforR financing operations are required to undertake an environmental and social systems assessment (ESSA). The purpose of the ESSA is to ensure that the social and environmental impacts and risks associated with a PforR operations are identified, the risks mitigated, and the positive effects maximized. More specifically, the ESSA involves three main steps: (a) Assessing the environmental and social systems. The Bank and borrower identify and consider the potential range of environmental and social effects that may be relevant to the Program. The Bank then assesses the borrower s capacity for effective environmental and social management. (b) Identifying measures to enhance environmental and social management capacity and performance. Based on the assessment s findings, the Bank and borrower agree on measures to strengthen institutional capacity and generate the desired environmental and social effects where necessary. (c) Monitoring and implementation support. The borrower and the Bank collaborate in monitoring Program performance, especially with regard to any specific organizational improvements or mitigation or enhancement measures agreed. 9. To conduct the ESSA, the Bank s team has drawn on existing knowledge from the Bank itself, its development partners, and the borrower, as well as on analyses carried out during the preparation of the PforR operation. The information necessary to conduct the ESSA was gathered through: (a) Consultations with the borrower agencies and relevant stakeholders, for instance, the Punjab Environmental Protection Agency (P-EPA), the Environment Protection Department, the Urban Unit, PRMP, the Finance Department, E&TD, PITB, the Livestock and Dairy Development Department, and the Health Department s Reforms Unit. In February 2013, another round of meetings was held with P-EPA officials, including their director general. (b) A review of assessments and literature relating to other Bank activities (for example, investment lending projects and country studies) (c) A review of assessments undertaken by other development agencies and other relevant national, regional, or sectoral analyses (d) Discussions with task team leaders of various Bank-funded projects (e) Field visits to the districts of Sahiwal, Pakpattan, Okara, Gujranwala, Sheikhupura, and Rawalpindi to meet field-level government officials and beneficiaries, and to assess citizens information needs (f) A review of the relevant literature and datasets, including the Multiple Indicator Cluster Survey (MICS), Pakistan Social and Living Standards Measurement Survey (PSLMS), Punjab Development Statistics, and the Human Rights Commission of Pakistan s 2012 report (g) A review of the feedback gathered from the citizen feedback model, where some 0.2 million citizens have commented on the quality of various services received 13

14 10. Prior to finalizing this document, the ESSA will be shared publicly for feedback and consultation. It will be disclosed through the Bank s country office Website and Public Information Center in Islamabad, Pakistan; in agreement with PRMP, it will also be uploaded on the latter s Website. A public workshop will also be held to discuss this draft. The feedback will then be incorporated and the document finalized. Annual consultations will take place with multiple stakeholders to monitor the ESSA s progress and implementation where relevant Report Outline 11. This document outlines the main findings of the ESSA that was undertaken as part of the preparation of PPMRP. The remainder of this report comprises three sections and a series of annexes. Section 2 identifies some main environmental benefits and potential risks, and assesses the borrower institutions capacity to manage the environmental issues identified. Section 3 similarly identifies the main social benefits and potential risks, and assesses the borrower institutions capacity to manage the social issues identified; it also outlines Program activities designed to mitigate any potential social risks. Section 4 proposes some selected actions to ensure that the Program s positive social and environmental effects are maximized and the risks managed more effectively. The annexes provide supplementary information on specific issues and initiatives relevant to PPMRP and the ESSA. 12. It should be noted at the outset that there are challenges associated with gathering strong, up-to-date, Punjab-specific social data, although a number of sources are available and have been drawn on. This document is not intended to be a comprehensive or exhaustive list of the potential risks and benefits that might emerge in the course of the Program, nor is it intended to outline all the social and environmental dynamics in Punjab as has been done elsewhere. Its objective, rather, is to outline some of the critical risks that are most relevant to the specific Program objectives and activities. 14

15 2. ASSESSMENT OF THE PROGRAM ENVIRONMENTAL MANAGEMENT SYSTEM 13. This section summarizes the assessment of the Program s environmental management system undertaken for the ESSA. It briefly introduces the Program s environmental context, outlines its potential environmental impact, and assesses the environmental management system s capacity and performance to manage environmental issues. The section concludes with a summary of the risk rating applied to the Program s environmental aspects The Environmental Context 14. While Punjab has made some progress in protecting and conserving its environment, the province is also characterized by deteriorating environmental conditions. Environmental degradation has had adverse public health impacts and contributed to resource depletion, resulting in an additional burden on the economy Potential Environmental Effects of the Program Potential Environmental Benefits 15. Although environmental issues are not within the scope of the Program, the ESSA process did reveal areas in which the Program could potentially bring about positive, indirect environmental benefits through improved governance. In effect, overall improvements in governance namely through greater transparency, accountability, and results-based management could help improve environmental governance and the implementation of environmental regulations. 2 The character of Punjab s environmental governance and capacities are briefly outlined in section 2.3. An improved environment and better environmental governance are, however, beyond the scope of this particular Program (as noted in section 4) Potential Environmental Risks 16. In terms of environmental risks, the activities planned under the Program do not include any physical interventions such as construction, rehabilitation, or renovation works. Hence, the proposed activities are environmentally benign and will not have any negative environmental effects, cause any loss or conversion of natural habitats or any changes in land or resource use, or lead to any environmental pollution Assessment of Key Environmental Management Capacity and Performance Environmental Management System 17. There is a range of policies, legislation, and guidelines for environmental protection in Pakistan and in Punjab. The key policies and legislation are summarized in table 2. Notable among these is the Pakistan Environmental Protection Act 1997 (amended as the Punjab Environmental Protection Act in 2012). 3 Supporting regulations and standards include the Pakistan Environmental Protection Agency Review of Initial Environmental Examination (IEE) and Environmental Impact Assessment (EIA) Regulations and the National Environmental 15

16 Quality Standards (NEQS), which define the maximum permissible limits for emissions, effluents, vehicle exhaust fumes, ambient air quality, noise, and drinking water. 5 Table 2. Key Policies, Legislation, Regulations, and Guidelines for Environmental Protection Key environmental policies, regulations, and guidelines Pakistan Environmental Protection Act 1997 (amended as the Punjab Environmental Protection Act 2012) Pakistan Environmental Protection Agency Review of IEE and EIA Regulations 2000 NEQS 1997 Environmental and Social Guidelines Wildlife (Protection, Reservation, Conservation, and Management) Act, Ordinances, and Rules Antiquities Act 1975 Brief description Applies to a range of issues and extends to socioeconomic aspects; land acquisition; air, water, soil, marine, and noise pollution; and handling of hazardous waste. Developed by the Pak-EPA under the powers conferred on it by the act; provides the necessary details on the preparation, submission, and review of IEEs and EIAs. Define the maximum permissible limits for emissions, effluents, vehicle exhaust fumes, ambient air quality, noise, and drinking water. Includes (a) Guidelines for the Preparation and Review of Environmental Reports, (b) Guidelines for Public Consultation, and (c) Guidelines for Sensitive and Critical Areas. Enacted to protect the province s wildlife resources directly and other natural resources indirectly. Ensures the protection of cultural resources in Pakistan. This act is designed to protect antiquities from destruction, theft, negligence, unlawful excavation, trade, and export. 18. Institutional arrangements are also in place at the federal and provincial level. The Pakistan Environment Protection Council is the apex body at the federal level, headed by the Prime Minister, and provides oversight for environmental management and conservation in the country. The Pakistan Environmental Protection Agency (Pak-EPA) ensures that national, interprovincial, and sensitive projects comply with environmental regulatory clearances. It has also prepared a set of environmental and social guidelines based on international best practices, which specify guidelines for the preparation of environmental reports, among other areas. 19. At the provincial level, following the 18th Amendment to the Constitution (2010) environmental management has been devolved to the provinces, which can now promulgate laws and adopt environmental conservation measures of their choice. P-EPA 6 is supported by a district officer (environment) in each of the 36 districts in the province. 7 P&DD s Environment Section assesses the adequacy of environmental management aspects of government development programs. Some government departments, generally for infrastructure development, also have dedicated environmental sections. 20. Punjab has a largely adequate regulatory regime and institutional framework for environmental management and conservation. 8 From 2005 to 2012, P-EPA approved 365 EIAs, 1,843 IEEs, and 6,020 smaller projects that did not require an EIA or IEE; it also issued over 5,000 environmental protection orders. During the same period, the Punjab Environmental Tribunal reviewed 2,333 cases, of which 455 cases were disposed of. 16

17 Capacity and Performance 21. While the province s regulatory regime is strong, its capacity and incentives to implement regulations are mixed. The provincial departments that will participate in PPMRP have varying degrees of environmental management capacity. For example, only the Irrigation Department has fulltime and dedicated environmental management personnel staffing its Project Management Organization. The Agriculture, Health, and Education Departments have projectspecific environmental management personnel, but the remaining departments particularly the Livestock and Dairy Development Department do not have such arrangements. The limited capacity of regulatory agencies and district governments as well as the slow judicial process for handling environment-related cases by environmental tribunals pose barriers to achieving improved environmental governance in the province. Ensuring the right level and quality of implementation of environmental laws remains, therefore, an ongoing challenge. 22. Areas of weak environmental governance in the province include the implementation of environmental laws, monitoring, environmental data collection and analysis, and reporting and information dissemination. While laws and institutions do exist, their aims have not been fully achieved, with environmental pollution and degradation continuing in Punjab overall Risk Assessment 23. In light of this overall assessment, the planned Program activities pose no direct risk to the environment and there are no direct environmental risks associated with the Program. The proposed activities do not include any physical interventions such as construction, rehabilitation, or renovation works, and will not have any negative environmental effects, cause any loss or conversion of natural habitats and any changes in land or resource use, or lead to any environmental pollution. PPMRP does not, therefore, require a separate environmental assessment both from the point of view of Punjab s regulatory requirements and the Bank s OP 9.0. The Program does, however, provide opportunities to improve environmental governance as an indirect benefit and outcome of various Program results. Recommendations for action are outlined in section 4 and in the annexes. 17

18 3. ASSESSMENT OF THE PROGRAM SOCIAL MANAGEMENT SYSTEM 24. This section summarizes the assessment of the Program s social management system. It briefly introduces the Program s social context and outlines its potential social effects. It then assesses the social management system s capacity and planned Program activities to manage relevant social issues. The section concludes with a summary of the Program s social risk rating. 25. In relation to the Bank s OP principles, and as already noted, the Program does not entail any land acquisition or loss of access to natural resources as a result of Program activities. Moreover, Punjab is not considered a fragile or conflict setting, so issues of social conflict and territorial disputes are unlikely to emerge. However, in line with OP 9.0, the most relevant principle relates to the importance of giving due consideration to the cultural appropriateness of, and equitable access to, Program benefits giving special attention to the needs or concerns of vulnerable groups. 9 The social assessment has revealed a number of social effects, challenges, and risks that can be separated into three overlapping themes: (a) equitably) Equity and inclusion (the extent to which Program benefits are likely to be shared (b) Information loops (the extent to which Program information is disseminated effectively and in a culturally appropriate manner) (c) Social resistance (the extent to which the proposed changes are likely to be implemented) Social Context 26. PPMRP aims to leverage social shifts an increasingly competitive democracy, the high penetration of information and communication technologies (ICTs), the youth bulge, and enhanced provincial autonomy to improve the performance and transparency of government departments that provide key services to citizens, and to enhance service delivery so that citizens see a visible difference that boosts their trust in the state. The Program will be implemented in a broader social context with a number of complex, fluid, and interrelated dynamics that are outlined below. Despite being the country s wealthiest and largest province, Punjab faces various social development challenges. While some of the statistics are disputed and not up-to-date, a number of them are worth highlighting Service Delivery in Punjab 27. The province s relative prosperity has not yet translated into commensurate improvements in public service delivery. The share of social programs in Punjab s overall development expenditure has increased 10 but the quality of public services is variable. Data on health services indicate the relatively low use of government facilities versus private dispensaries or hospitals 11 and the situation is similar for other public services. According to PSLMS data for 2011/12, household satisfaction with public services is lower than the national average: family planning (10 percent), basic health units (29 percent), veterinary services (17 percent), agriculture extension (15 percent), and policing (9 percent) (Pakistan Bureau of Statistics 2011, table 5.3). The private sector has stepped in to deliver a wide range of education, health, and 18

19 agriculture services, but these are largely unregulated and uncoordinated. Moreover, this has exacerbated social inequalities, with middle- and upper-class households using better-quality private providers and the poor resorting to lower-quality public providers Selected Social Indicators At a country level, Pakistan has some of the lowest social indicators in South Asia: 17 percent of the population in 2008 was surviving on less than US$1 a day, 60 percent of women were estimated to be illiterate (relative to 49 percent in India and 22 percent in Bangladesh) in 2008, and infant mortality in 2009 was 71 per 1,000 births (compared to 50 in India and 41 in Bangladesh) In Punjab, there is some debate about which poverty statistics are the most accurate, although available estimates suggest the following trends. 14 According to a survey by the Sustainable Development Policy Institute (SDPI) (2012), around 19 percent of Punjab s population lives below the poverty line, which, in 2012, represented an estimated 17 million people of a potential population of more than 90 million. 15 Another estimate finds that one third of all households (33 percent) in Punjab fall below the poverty line (Naveed and Islam 2011). In 2011, the literacy level was recorded at 60 percent, leaving 40 percent of the population registered as illiterate, while only 29 percent of Punjab s population had access to drinkable tap water (PSLMS 2011). Table 3 gives some other social indicators. Table 3. Key Social Indicators in Pakistan and its Provinces (percent) Area Literacy Gross enrolment Infant mortality Child mortality Tap water Pakistan Punjab Sindh Khyber Pakhtunkhwa Balochistan Sources: Pakistan Social and Living Standards Measurement Survey 2011 (literacy, enrolment, and tap drinking water); Pakistan Demographic and Health Survey 2008 (mortality rates) The Poor, Vulnerable, and Excluded 30. A number of different groups are considered to be below the poverty line and vulnerable in Punjab, and this varies across time and location. Lower-income groups tend to include women, the landless, small-scale farmers, and urban slum dwellers; among these groups, the particularly vulnerable and underprivileged include the disabled, widows, orphans, and the sick. Some of the drivers of poverty and social exclusion include (a) landlessness and the landholding system (which, in some areas of Punjab, is linked to feudal social and political structures); (b) unemployment; (c) income poverty and low asset ownership; (d) violence and crime; (e) political disempowerment; (f) poor and segregated housing; (g) lack of healthcare; (h) lack of education and educational facilities; and (i) lack of other services, such as electricity, gas, sanitation, water, and roads (Punjab, Bureau of Statistics 2008). 19

20 Gender Disparities 31. It is also worth noting that there are clear gender disparities in Punjab. Patriarchy, the dominant social system, has a gendered division of labor and restricts women s freedom of movement. There is greater disparity between women and men in education, employment, political participation, decision-making, resource control, access to health facilities, and job opportunities. Table 4 outlines some of these dynamics. Table 4. Gender and Political Disparity in Punjab (percent) Indicator Male Female Gap World rank Literacy rate 122 out of 134 countries on the Pakistan global gender gap index Punjab Population that has ever attended school Pakistan Punjab Labor force participation Pakistan out of 128 countries on the Punjab gender competitiveness index Political participation National Assembly out of 134 countries on the Senate global gender gap index Punjab Assembly Local governments Sources: Pakistan, Finance Division 2008; Pakistan Bureau of Statistics 2007a, 2007b; Pakistan, Ministry of Women Development 2006; Hausmann, Tyson, and Zahidi 2008; World Economic Forum Geographical Disparities 32. There are also socioeconomic disparities between regions and districts in Punjab. While there is, of course, variation within regions and districts, inter-district and inter-region comparisons are nonetheless useful. Punjab is divided into northern, central, southern, and western regions (see figure 1) based on geographical boundaries; official districts; division borders; regional economic differences; and distinct historical, cultural, and linguistic influences (Wilder 1999). 20

21 Figure 1. District Map of Punjab 33. MICS data for 2007/08 provides a snapshot of regional disparities (the latest data for 2012/13 is not yet publicly available). Table 5 gives disparities in per capita income and expenditure across the four regions: income and expenditure per capita in the northern and central regions are higher than the Punjab mean, in contrast to those of the other regions, which lie below the provincial mean. Table 6 shows notable disparities in education: in southern Punjab, almost 30 percent of boys and 43 percent of girls aged have never enrolled in school, compared to 6 percent of boys and 16 percent of girls in northern Punjab. Northern and central Punjab are also more urbanized, with the former being the most urbanized. Southern Punjab has larger landholdings, relies more heavily on agriculture and agro-industry, and has a proportionately much larger rural population (gleaned from district-level economy figures). The three poorest districts in Punjab are located in the south. There are also rural-urban disparities with higher levels of poverty concentrated in rural areas even if there is poverty in the urban areas. Table 5. Regional Income and Expenditure per Capita Indicator Northern Central Southern Western Punjab Mean household per capita 1,264 1, ,036 expenditure (8.355)* (14.15)* (12.279)* (12.348) Mean household per capita 1,080 1, expenditure (rural) (7.584)* (11.38)* (11.183)* (8.090)* Mean household per capita income 1,551 (1.518) 1,580 (6.338)* 1274 (3.692)* 1,090 (6.104)* 1,445 21

22 Mean household per capita income (rural) 1,204 (0.108) Source: Punjab, Bureau of Statistics ,329 (3.732)* 1,121 (1.652) 1,003 (2.050)* Note: Absolute value of t-statistics in parentheses (* indicates significance at 1 percent level). 1,215 Table 6. School Enrollment in Punjab by Region Indicator Northern Central Southern Western Percentage of year-old boys Never enrolled in school Completed primary Completed secondary Completed matriculation Percentage of year-old girls Never enrolled in school Completed primary Completed secondary Completed matriculation Source: Punjab, Bureau of Statistics To further illustrate the geographical disparities, the average human development index (HDI) score for southern Punjab s districts is 0.632, in which 8 out of 11 districts fall below the provincial average of Northern Punjab has an HDI score of with less variance in the districts relative to the provincial mean. Figure 3 illustrates regional disparities well in the form of a literacy map. Poverty in southern Punjab is associated with low social and economic development, feudal agriculture, drought, and water shortages. Wide rural-urban discrepancies also exist in the provision and quality of basic public services. While the private sector has stepped in to deliver a wide range of education, health, and agriculture services, its efforts have mainly been concentrated in the urban areas, with limited involvement in remote rural areas. Figure 2. District-Wise Literacy Map Source: 22

23 Social Dimensions of ICT 35. Since the Program interventions rely on ICT interventions, the socioeconomic aspects of ICT use in Pakistan are also relevant. ICT use in Pakistan has increased, although there is evidence of a digital divide that is influenced by geographic location, socioeconomic status, and social position In Pakistan, mobile phone penetration has increased at a rapid pace: half or more of all Pakistanis now have access to a mobile phone. There are, however, disparities in access, including (a) a rural-urban divide, where two-thirds of the people who have access live in urban areas; (b) an income divide, where access to and the use of mobile phones has been found to increase with income levels; and (c) a gender divide, where more than 86 percent of men have their own mobile phone relative to 40 percent of women. SDPI s study on Pakistan s gender digital divide concludes that, despite an increase in national mobile phone penetration, women s use of mobile phones remains limited due to sociocultural barriers. 37. The figures for access to mobile phones (available in the household or within the extended family) are found to be higher than those for mobile phone use. As per World Bank s report, mobile phone use is 35.4 percent in Sindh, about 44 percent in Khyber Pakhtunkhwa and Azad Jammu and Kashmir, and the highest in Punjab at 51.5 percent. This suggests that 48.5 percent of people in Punjab use a mobile phone. The report also suggests that face-to-face interaction is highly valued and equally so by men and women (76 percent).(world Bank 2009, 48) 38. The use of mobile phones is still confined mainly to voice services (for 78.5 percent of users). Basic data services such as SMS are used by 40.2 percent, with greater use in urban areas (45 percent) than in rural areas (36.7 percent). SMS is also used more frequently by men and in Azad Jammu and Kashmir, and increases with income. Internet use remains low and is concentrated in urban areas and among men. Internet and are used more at home. Close to two-thirds of Pakistanis (60.8 percent) have their own prepaid mobile phones. There is also a large gender divide in mobile phone payments: most men pay for themselves, but the majority (84.5 percent) of women s mobile phone expenses are paid by their spouse or family (World Bank 2009, 48) Potential Social Effects of the Program 39. The social systems assessment reveals that Program activities could have a number of potential social effects, benefits, and risks. As noted in the introduction to section 3, these effects can be separated into three overlapping themes: (a) equity and inclusion (the extent to which Program benefits are likely to be shared equitably); (b) information loops (the extent to which Program information is disseminated effectively and in a culturally appropriate manner); and (c) social resistance (the extent to which the proposed changes are likely to be implemented). These themes cut across the Program, but merit some separate discussion. The main activities and associated social risks are summarized in table 7 at the end of section

24 Theme 1: Equity and Inclusion 40. A key theme that emerges from the ESSA relates to the equitable access to and sharing of Program activities and benefits. PPMRP aims primarily to increase access to and improve the quality of services through Results Area 1 (transparency and access to services) and Results Area 2 (smart monitoring and feedback loops). A major challenge in many countries is ensuring that quality services are delivered to the poorer and more vulnerable groups in society. A number of potential benefits and risks are associated with the Program. Potential Social Benefits 41. In terms of promoting more equitable access to services in Punjab, the Program s activities aim to achieve the following social benefits. First, they aim to increase and improve service provision, namely under Results Area 2, by improving the monitoring and performance of field service providers. This will also include increasing the provision of services to poorer groups: a number of services targeted under Results Area 2 include those services and extension work on which lower-income or vulnerable groups depend, such as maternal and child health supervision by women health supervisors, vaccination services, and agricultural extension by field assistants. More broadly, an improved evidence-based management system is expected to make public servants and service providers more responsive to citizens needs if management decisions are made based on data and citizens feedback and if this data and feedback is reliable. 42. Second, the activities should make it easier, less time-consuming, and less costly for citizens to obtain accurate information about their entitlements, which, in turn may help them to better access services. Information will be provided through a range of activities (Results Area 1), including proactive online disclosure and services delivered via the Web, a contact center helpline, SMS, and onsite physical facilitation centers. 43. Third, the transparency and automation activities planned across all Results Areas are also likely to reduce opportunities for manipulation, leakage, and systemic corruption; this, in turn, may improve people s access to, and quality of, the services provided. Potential Social Risks 44. While there are potential benefits, the ESSA also identifies some critical risks. First, the smart monitoring component envisages that citizen feedback samples will be collected by SMS or telephone (with agents contacting people who have received a particular service). There are two aspects of risk here: (a) if a person does not receive a service, then his or her feedback will not be solicited and integrated into the management system; and (b) the use of SMS relies on access to a phone and SMS literacy, which is not as prevalent among lower-income groups. SMS feedback is much cheaper than agent calls but the risk, in short, is that relying on SMS data alone could lead to certain groups feedback being excluded or not clearly represented in the data used to make management decisions. For example, the citizen feedback model shows that SMS feedback from clients of rural health centers is around 10 percent, whereas the response rate for services such as obtaining a character certificate aimed at groups in a higher socioeconomic bracket have a response rate of around 25 percent

25 45. Second, some groups may not have access to, or frequently use, ICTs (namely the Internet and mobile phones) that would allow them to benefit from the ICT-based interventions under the Program. This is especially true for poorer segments of the population, such as rural or elderly residents in southern and western Punjab where ICT penetration is not as high or women. For example, the automation of services, such as online applications, may benefit only literate groups that have access to the Internet. Women may also be less likely to benefit from Program activities, given the gender digital divide in Pakistan. There is, therefore, a risk of reinforcing inequalities in access to services in the context of the digital divide in Punjab. More broadly, we know from international experience that ICT interventions introduced in the context of a digital divide can leave certain groups behind and reinforce existing inequalities in access to both information and services (see, for instance, OECD 2001; Heeks and Kenny 2002; ODI 2008; Bist 2007). 46. Third, for a range of reasons outlined in the following section, access to service information is unlikely to be equitably distributed thus meaning that certain groups may benefit disproportionately Theme 2: Information Loops 47. The provision of accurate and relevant service delivery information is thought to improve people s ability to claim and access services, and can help them hold their government accountable for the delivery of certain public goods (McGee and Gaventa 2010). A lack of accurate information about various public services can limit people s ability to access these services as well as limiting effective management decisions. Poor or incomplete information can also facilitate manipulation and corruption in the system. 48. Another theme that emerges in the course of the ESSA relates to the information loop. The notion of an information loop refers to the main steps through which information can have a desired effect, that is, the steps through which information is produced, accessed, simplified, disseminated, discussed, and acted on to change behaviors and improve outcomes (see figure 3 in section 4 for a summary). Potential Social Benefits 49. The Program s activities could have a number of positive social effects. First, information provision activities (Results Area 1) may raise citizens awareness of the services available and how to access them. This includes the proactive disclosure of information and provision of information online, through helplines, SMS, and facilitation centers. Providing information may help citizens claim their entitlements both at a lower cost and more conveniently than a corruption- or favor-based system. 50. Second, transparency-related activities may heighten government accountability and responsiveness by opening it up to increased public scrutiny and internal scrutiny (Results Areas 1 and 2). For example, geo-mapping development programs may increase accountability for development results. 51. Third, improving state-citizen interfaces and dialogue through transparency and feedback provision may enhance public trust and lead to the formation of a nascent social contract around 25

26 the role of the state in service provision. For instance, findings from the citizen feedback model in Punjab suggest that the Government s efforts to solicit feedback increase citizens trust and satisfaction. Potential Social Risks 52. A number of social risks are also evident in relation to the information provision dimensions of the Program. First, there is a risk that poor and marginalized groups may not be able to access information for various reasons. This could be the case if they live far from information sources; lack the skills, knowledge, and literacy to proactively seek information; or do not have access to the ICT channels through which the information is transmitted. For example, the online disclosure of activities under Results Area 1 (on proactive disclosure and geo-mapping) might exclude those people who cannot access the Internet. The cost of accessing information services may also be prohibitive for the poorest groups. 53. Second, the information provision activities will only be effective and used by people if both the public and political and administrative officials are made aware through proactive dissemination that such services exist. Moreover, a common means of acquiring information is through informal personal connections, so there is a risk that some people may not choose to work within the proposed formal system. For instance, although the Freedom of Information (FOI) Act exists at the federal government level, lack of awareness about the act has meant that very few requests have been filed. 54. A third risk is that, even if certain people do access the information provided, it is not packaged in such a way to make it relevant, understandable, and user-friendly. This may be a particular challenge for groups with lower levels of literacy and education. For instance, online geo-mapping, without some significant thought to its presentation, may not be decipherable by even well-educated citizens. More broadly, even if they do have the information, certain vulnerable groups may not have the skills, resources, or social connections to act effectively on it and improve their situation. 55. Finally, there is the risk that, even if citizens are provided with the information and feedback received, services may not improve. This could occur if patronage-based service delivery continues, if feedback is not integrated into management decision-making, or if the lack of capacity at the level of the frontline service providers is not addressed. This may dash raised expectations and disillusion certain groups. The challenge in Punjab and internationally is ensuring that the poorer and more marginalized groups are able to access, understand, and act on service delivery information, and that service delivery improvements keep pace with information provision (O Meally 2013) Theme 3: Resistance to Change 56. The final theme relates to the uptake of and resistance to the change processes proposed under the Program. A key issue relates to the extent to which reforms are supported by the relevant actors and change agents at the level of the participating departments. 26

27 Potential Social Benefits 57. One potential benefit is that the Program would support change processes that would, eventually, have positive effects on the service end-users. As outlined below, the Program may contribute to these change processes because it builds on existing initiatives and momentum and has undertaken extensive dialogue with the departments involved to ensure their buy-in to certain Program activities. Moreover, it will undertake free, prior, and informed consultations throughout the Program implementation. Potential Social Risks 58. The Program also carries some associated risks. First, there may be some opposition to the transparency and proactive disclosure measures if some departments are reluctant to disclose information in the absence of a Punjab FOI act. 59. Second, shifts to more effective monitoring may be resisted. For instance, middle managers might not willingly adopt the new system or certain service providers, who will be subjected to more rigorous monitoring, may oppose its effective implementation. 60. More broadly, there is a risk that stakeholders beyond the Government will not support the proposed reform processes if not properly involved throughout. This includes citizens, civil society actors, and private sector actors whose participation in and support for the planned Program activities is important. Table 7. Summary of Main Activities and Associated Social Risks Program Result Area Key activities Potential social benefits Potential social risks Result Area 1: transparency and access to services Objective: to improve citizens access to information provided by targeted departments and to Proactive disclosure of information on services online Awareness raised and services accessed more easily Groups with no or limited Internet access risk being excluded Information may not be understandable or user-friendly for certain groups facilitate access to key People may be unaware services of the Program s information services on offer Departmental unwillingness to implement proactive Geo-mapping; provincial, district, and tehsil development projects to be published online Awareness raised Accountability and responsiveness increased disclosure Groups with no or limited Internet access risk being excluded Information may not be understandable or user-friendly for certain groups People may be unaware of the information 27

28 Result Area 2: smart monitoring and feedback loops Objective: to support data collection and smart monitoring in key departments, and promote the use of performance information for decisionmaking in key departments Information on key public services to be made available online Information on key public services to be made available (phone helplines) Information on key public services (SMS) to be made available Information on key public services to be made available (facilitation centers) Service delivery to be automated: online applications and processing Awareness raised and services accessed more easily Awareness raised and services accessed more easily Awareness raised and services accessed more easily Services accessed more easily People without ICT access or those needing face-to-face support are served Improved services through efficiency gains and reduced opportunities for systemic manipulation Improved quality and coverage of services, including to poorer groups services on offer Groups with no or limited Internet access risk being excluded Information may not be understandable or user-friendly for certain groups People may be unaware of the information services on offer Groups with limited phone access risk being excluded People may be unaware of the information services on offer People may prefer informal networks for accessing information Groups with limited phone access or low literacy risk being excluded People may be unaware of the information services on offer Certain poorer or remote geographical areas may not have a facilitation center People may be unaware that the facilitation centers exist People may prefer informal networks for accessing information Groups with no or limited Internet access risk being excluded Data collection system to be implemented based on smartphones in key service delivery departments Data not collected in un-served areas; some citizens feedback may not be included Some groups may not have good access to phones/sms Some groups may not be able to articulate feedback well due to literacy or educational constraints Performance reports to Increased and improved Actions not taken based 28

29 Result area 3. Resource Mobilization and Value for Money Objective: improve capacity for resource mobilization and better expenditure management be produced for decision making Citizens feedback to be gathered proactively via SMS Public disclosure of performance reports to be published online Digital database to be developed of property records and ICT-based business processes Procurement performance management to be implemented service provision, including to poorer groups State-citizen dialogue and trust is built More responsive management decisions are made Awareness raised and government accountability and responsiveness improved Tax collection improved and citizens satisfied Procurement improved; public perceptions of corruption improved on feedback to improve services for a variety of reasons (for example, continued patronage, weak frontline capacity) Middle managers and service providers may not adopt system Data not collected in un-served areas; some citizens feedback may not be included Some groups may not have good access to phones/sms Some groups may not be able to articulate feedback well due to literacy or educational constraints Groups with no or limited ICT access may not be able to access these Information may not be understandable or user-friendly for certain groups Risk of ongoing inefficiencies and/or corruption. Risk of ongoing inefficiencies and/or corruption 3.3. Assessment of Key Social Management Capacity and Performance 61. The purpose of this section is to briefly assess the Program institutions social management system and their capacity and performance in addressing the social issues discussed in the preceding section. The social management assessment suggests that the Program operates within a policy and institutional framework that is broadly conducive to addressing the types of social issues likely to emerge from the Program s activities. However, various capacity and knowledge constraints could hinder the effectiveness of this management during implementation Social Management System 62. At the federal level, a range of policies and guidelines exist to address the types of social issues discussed above. These include the National Policy for Development Empowerment of Women 2002 and the National Education Policy 2009, which focuses on, among other things, rapidly decreasing illiteracy levels (see Pakistan, Ministry of Education 2009). More recently, in 29

30 a landmark development in 2010, Article 19 under the 18th Constitutional Amendment now grants all citizens the fundamental right to access information on all matters of public importance. Finally, Pakistan s national Poverty Reduction Strategy Paper also outlines socioeconomic policies and interventions to assist the poor (see IMF 2010). 63. Government policies, initiatives, and guidelines at the provincial level also deal with social issues related to women, low-income groups, and other vulnerable groups. The participating departments also have their own social and environmental assessment guidelines (such as the Irrigation and Power Department) 18 and, additionally, are required to follow the guidelines provided by donor agencies. Table 8 summarizes some of these policies and initiatives. Table 8. Key Social Management Policies, Acts, and Guidelines in Pakistan and Punjab Relevant social policies, initiatives, or guidelines National Policy for Development and Empowerment of Women (March 2002) National Education Policy (2009) National Poverty Reduction Strategy Paper (multiple years) Punjab Bait-ul-Maal Act (1991) Punjab Women Empowerment Package Ordinance (2012) Punjab Environmental Protection Act (1997) (amended 2012) Disabled Persons (Employment and Rehabilitation) (Amendment) Act (2012) Protection Against Harassment of Women at the Workplace Act (2010) Federal Youth Policy (2009) Punjab Youth Policy (2013) Brief description Deals with women s empowerment across various sectors (education, health, law and access to justice, violence against women) through poverty alleviation measures, access to credit, remunerated work, and so on Aims to improve the quantity and quality of education services in various areas, including basic education, literacy, and nonformal education A comprehensive document aimed at identifying poverty dynamics and providing a range of policy and budgetary prescriptions Establishes a charitable fund to help the underprivileged and people in need Outlines an agenda for women s empowerment in Punjab Provides guidelines for environment and social assessment Outlines a policy and support for disabled persons Outlines protection and recourse in terms of the harassment of women at the workplace Focus on youth support and development, including a number of initiatives such as the National Youth Internship Program Note: Information sources on Punjab legislation can be found at and A number of departments are mandated to deal with the types of social issues that might arise (see Table 9 for a summary). Of note, the Department of Social Welfare and Bait-ul-Maal 19 deals with many of the social issues raised in the section above. Briefly: (a) the Social Welfare section aims to motivate and mobilize people and communities for social awareness of their rights and obligations toward a progressive Islamic society and social equity, and (b) the Bait-ul- Maal section focuses on increasing and expanding social assistance programs with social safety nets for the under privileged such as the disabled, widows, orphans, the indigent, the destitute, 30

31 and the sick. 20 The relatively new Women Development Department deals with the social and economic improvement of women s conditions. Table 9. Key Punjab Departments Dealing with Identified Social Issues Department Department of Social Welfare, Women Development, and Bait-ul- Maal, Punjab Women Development Department Literacy and Nonformal Basic Education Human Rights and Minorities Affairs Local Government and Community Development Brief description Carries out its functions in two subsectors: social welfare and the Bait-ul-Maal Responsible for legislation, policy formulation, and sectoral planning for women s development; the implementation of administrative and institutional reforms; and departmental restructuring to promote gender equality Addresses the problem of dropouts at the primary level and meets the emerging demand for nonformal basic education with functional literacy and livelihood skills Responsible for monitoring human rights and rights abuses and ensuring protection for minorities rights Responsible for devolution and community development planning and implementation Note: Almost all departments (Education and Health, for example) deal with social inclusion issues. The mandate of these five departments is, however, directly related to the subject. 65. In sum, the Program operates within a policy and institutional framework that is largely conducive to addressing the types of social issues likely to emerge from the Program s activities. Indeed, such a framework could always be strengthened and improved, but such measures would be beyond the scope of the PPMRP Capacity and Performance 66. While the broad framework may be in place, there are still gaps, potential challenges, and capacity constraints that could hinder the implementation of the policies. Reaching blanket conclusions on capacity and performance is not, however, straightforward for three main reasons: (a) the numerous participating departments have varying experiences and capacities at different levels of government, (b) the social issues identified here cut across sectors and issueareas so they cannot be limited to an understanding of just one department or implementation area, and (c) there is a limited body of literature on this subject. Nonetheless, the existing literature and consultations held for the ESSA suggest a number of issues. 67. There are a number of signs of good potential performance. PRMP has experience of working on social issues with Government and development partners, for example, on the UK Department for International Development s (DFID) Aawaz and Subnational Governance (SNG) programs. PRMP staff members also have educational backgrounds that cover social policy and development issues. PITB has proven its strong experience in effectively setting up and managing citizen feedback systems (such as the citizen feedback model) that are sensitive to certain social and cultural issues, for instance, with their use of female agents to solicit feedback from women. Various departments have also undertaken a range of social assessments as a basis 31

32 for investments (such as in irrigation or education), indicating that they are familiar with the principles and application of social management. 68. However, the capacity and incentives to implement these aspects is mixed and varies across the departments that will be involved in carrying out Program activities. In summary, critical areas where knowledge and capacity could be strengthened include the following: (a) Coordination across Program institutions in dealing with social inclusion issues could be enhanced. For instance, coordinating gender or youth initiatives across departments remains a challenge. 21 Moreover, the Department of Women Development is relatively new, so it will take some time before one can judge its performance and impact across departments and implementation. (b) The overall knowledge and capacity related to undertaking social assessments and tailoring interventions to marginalized groups such as through gender sensitivity or facilitating the participation of illiterate groups varies across departments and levels of government. (c) Monitoring capacity on social inclusion issues could be improved. The current monitoring of inclusion issues in service delivery is patchy and limited. (d) Information dissemination and outreach could be strengthened. The FOI Act has yet to be adopted, information disclosure is patchily implemented across departments, and the information is not always good-quality or up-to-date. 22 Improvements could be made by adopting a Punjab FOI Act and/or by taking more proactive disclosure measures. This strengthening measure would also need to ensure information outreach so that there is relatively equitable and user-friendly access to Program information through a range of channels. (e) There is potential for institutional inertia or resistance to change in certain departments (as outlined in section 3.2 above) Program Initiatives Addressing Social Risks 69. In addition to the social management system already in place, the Program incorporates certain measures to mitigate the social risks identified in section 3. The Program has already thought through and built in a number of measures to address some of the social risks outlined above. These can be summed up as follows: More equitable and inclusive service delivery. The smart monitoring initiative (Results Area 2) already focuses on some of the services that are often critical to marginalized and low-income groups, such as maternal health and agricultural extension. Promoting more inclusive and effective information loops. Service delivery information will be transmitted through multiple channels in addition to the Web portal (Results Area 1). These will include (a) a phone contact center that provides service information to people without access to the Internet (such as groups in more remote rural areas); (b) facilitation centers that help people face-to-face in accessing service information and completing application forms (such as illiterate groups or people who prefer face-to-face interaction); (c) SMS-based information; and (d) interactive voicebased systems delivered via helplines in local dialects to overcome language and literacy barriers. Gender barriers will be addressed to some degree through the use of female 32

33 agents, female-recorded voices, and attention to cultural sensitivities (for instance, some women may not be comfortable being photographed during smartphone monitoring). Institutional inertia and resistance to change. The Program aims to promote an effective change process through previous and ongoing dialogue and collaboration with the departments concerned to ensure buy-in. For instance, the e-services subprogram has been developed in close collaboration with PITB and intends to build on and scale up its existing e-government initiatives. Similarly, the smartphone interventions were developed based on the needs of the participating departments; this involved a consultative process where each selected department specified the subdepartments and services that needed to be covered by the smart performance management system. The Agriculture Department, for example, has specified the need to track the movement of agriculture extension assistants in order to identify underserved areas. Furthermore, pilots in certain services in selected districts will be used in the first year of the Program to help demonstrate benefits, identify champions, and improve quality before going to scale Risk Assessment 70. In sum, the Program s main social risk is that its activities may reinforce inequalities in access to services and information as a result of its focus on modern ICT-based interventions. Given the Program s focus and design, Punjab s social context, and existing capacity and performance, the risk rating in relation to the social issues outlined above is judged to be substantial. 71. This rating is based on the following facts. First, certain groups simply do not have good access to certain ICTs, and so Program benefits might not reach them. Second, some of the social dynamics outlined above are deeply ingrained and unlikely to change in the course of a five-year Program. For instance, some women in rural areas are generally restricted to their homes and seldom access services so that, in spite of mitigation measures, women are expected to access the services less. Third, the knowledge and capacity of the Program s institutions in addressing the outlined social issues is somewhat limited. The Program already has in place a number of measures to mitigate these risks and some selected extra actions are proposed in section 4. 33

34 4. RECOMMENDED ACTIONS 72. Based on the above findings, this section outlines recommended actions to improve the social and environmental management systems where appropriate. In comparing OP 9.0 and the Program s existing social management measures, we recommend that some supplemental actions be adopted to ensure more equitable access to Program benefits and greater attention to the needs and interests of poorer and more vulnerable groups. 73. These options for the improvement of the environmental and social management system have been discussed with the implementing agencies. Given the capacity of the executing and implementing agencies, and the already-ambitious remit of the Program, the following areas were selected as critical and feasible for implementation under PPMRP Recommended Environmental Actions 74. Given that the Program s activities are environmentally benign, the recommended actions to be undertaken in this Program are minimal. The one recommended action is as follows: Appoint an environmental focal point within PRMP who will be responsible for raising any relevant environmental issues at the steering committee level, should they arise. 75. However, in the course of the ESSA, a number of other environmental recommendations have emerged. These are beyond the scope of the Program but they do pinpoint some potential actions that would strengthen environmental governance and benefits in Punjab. These could be taken up for implementation under other initiatives and are summarized in annex Recommended Social Actions 76. In addition to the Program s social management activities described above, the following actions are proposed to strengthen the social management system Scope of Social Management Actions 77. This Program focuses on reforming public management, and recognizes from the outset that a number of broader, historical social issues are beyond its remit. It is equally clear that the Program will be unable, over five years, to significantly influence some of the social trends outlined above. However, a number of measures can be taken to begin mitigating some of the potential risks. Given that the Program will focus on a wide range of departments and services, these supplemental actions focus on two areas: (a) Information sharing and capacity building is intended to be Program-wide. (b) The recommended actions will be mainstreamed into two or three services that focus largely on lower-income and marginalized groups. These services will be selected in consultation with the steering committee and departments in the first year of Program implementation. 34

35 Further Mainstream Equity and Inclusion Considerations 78. As described above, there is a risk that the ICT-based interventions might not reach those groups that have limited access to such tools and/or are not able to use such tools effectively, given their limited skills, resources, education, or literacy. In this regard, we recommend that the Program take certain extra targeted actions to further mainstream equity and social inclusion issues into the operations. The overall objectives of these actions will be to: (a) strengthen Program implementers overall knowledge and capacity in facilitating the effective involvement of poorer and marginalized groups in the activities proposed, and (b) support small-scale pilot actions in two to three selected services in order to reach out to such groups. 79. The key interrelated actions are as follows: (a) Develop a brief Program strategy for mainstreaming inclusion issues. A short strategy will be drafted and shared with the steering committee for agreement in the first year. This will detail the knowledge-sharing and partnership-building strategy, and outline the main tools that departments can use to ensure due concern for sharing benefits equitably during Program implementation. (b) Share knowledge to build capacity among the departments involved. This will involve: (i) a yearly interdepartmental workshop that combines training and information-sharing; (ii) sharing knowledge on national and international best practices in targeted areas through the production and dissemination of an annual how-to note on a selected social inclusion issue; and (iii) building partnerships with relevant stakeholders working on these issues. PRMP, for example, will be the focal point coordinating between three programs SNG, Aawaz, and PPMRP and will also reach out to key departments (such as the Department of Social Welfare and Bait-ul-Maal and the Women Development Department) to identify areas for collaboration and information-sharing. (c) Pilot face-to-face, interactive citizen feedback and outreach in selected areas. The aim of this action will be to annually pilot grassroots, face-to-face citizen feedback mechanisms broadly based on the community scorecard model in selected antipoverty services in hard-to-reach areas. The main reason for this activity is to: (i) reach and obtain feedback from the poorest groups that are not connected to ICTs, are illiterate, and receive limited or sporadic services; and (ii) seek more detailed, qualitative feedback on service delivery issues beyond the brief information collected via SMS. These could become smart scorecards, where community animators compile the information on paper and subsequently enter it in smartphone format to be eventually integrated into the Program s smart management logic. Useful lessons might emerge from the pilots and steps should be taken to make them as costeffective as possible. Further consideration should also be given to ensuring that the Program interventions also target Punjab s poorer regions and districts, namely in the south. (d) Monitor key inclusion issues for the midterm review. The purpose of this action is to monitor some of the key inclusion issues during Program implementation with a view to discussing them and adjusting implementation at the midterm review. A midterm report will be presented to the Program steering committee on these issues. This monitoring will have two main functions: (i) to report any key social inclusion issues, progress, and challenges that have emerged during implementation, gathered through consultations with the implementing departments; and (ii) to present the results of monitoring certain key inclusion trends (such as the 35

36 number of people calling from the three poorest districts in Punjab or the number of women callers, alongside relative qualitative information gathered from various sources). The precise indicators to be monitored will be decided in the first year of Program implementation Information Outreach to Complete the Information Loop 80. There is also a risk that certain groups will not be able to access, understand, and/or effectively use the information provided through the Program activities. There are two related aspects of this risk: (a) the risk that poorer and less educated groups without access to the Internet and/or phones might find it difficult to access Program information on services and development projects; and (b) the risk that, even if they do access this information, it is not packaged in a way that is understandable (or user-friendly ) and that such groups do not have the skills, resources, literacy, or social connections to use the information to improve their situation. There is also the broader risk that the Program information will not reach the wider public, elected officials, and bureaucrats without more proactive dissemination. 81. In addition to current Program measures, some extra steps are recommended in the area of information outreach. Steps could be taken in order to: (a) make the relevant information userfriendly for poorer, less educated groups (that is, by communicating it in a language and form that they will find comprehensible and useful); and (b) make the information available through selected channels (other than just information and phone) to reach a broader base of the population and penetrate different forums. Selected interventions could be implemented in two to three services where there is willingness and a focus on serving groups in the lowest income quintile. This would enable the Program to complete some of the information loops. The basic principles of this are summed up in figure 3 below. 82. Specifically, the following measures are recommended: (a) Develop a communications and information outreach strategy. This should outline a strategy to ensure information-sharing and outreach, including mapping stakeholders in Punjab and their information uses and preferences. This strategy should be updated annually and funds allocated for the implementation of selected activities every year. (b) Broad information dissemination and outreach. This could include the following areas: (i) regularly sharing information with the public on Program activities (such as through a biannual newsletter and by proactively sharing Program reports with partners, the Government, and civil society); (ii) outreach to and partnerships with civil society and the media to disseminate Program activities and service information with selected willing departments; (iii) producing one user-friendly information product every year, for example, a pamphlet titled the Citizen s Guide to Development in Punjab that draws on the geo-mapping under Results Area 1; and (iv) holding an annual multi-stakeholder workshop to share information. (c) Information dissemination that caters to the unique informational needs of poorer and/or more remote groups. This could focus on two to three services or areas of activity and would involve the following: (i) Proactive communication on the existence of facilitation centers and contact centers through low-cost grassroots advertising (such as the use of cloth banners, chalk graffiti, painted milestones, and local village and government gatherings). The 36

37 Program recognizes that the contact centers will only be effective if people are aware of them. (ii) Proactive communication on service delivery information in a userfriendly format through one or two grassroots channels other than the Internet or mobile phones that will reach lower income quintiles and/or women (such as by publishing information on notice boards, broadcasting it on radio, or producing printed materials). These activities may be most appropriate in the poorer southern districts of Punjab and could draw on partnerships with existing grassroots civil society outreach initiatives such as the DFID-funded Aawaz program. (iii) The Program could also explore the idea of piloting facilitation centers in more remote areas in Year 3 of Program implementation to test workable models and their feasibility. This will depend on the available resources. Figure 3. The Information Loop Fostering Change 83. As outlined above, a third area of risk relates to resistance to the proposed changes. The Program already proposes a number of measures to mitigate this risk, but two supplemental aspects are relevant: (a) Implementing a stakeholder change management plan. This plan will be elaborated in the first month of the Program. Due to the multiple stakeholders involved in achieving a single result, it is important to keep everyone involved regularly throughout the life of the Program to ensure their support. 37