OWSO/DO
Table of Contents
1.Introduction
2.Executive Summary
2.1 Achievement of the core outputs of the project/component:
2.2 Partnership development
2.3 Gender
2.4 Learning activities and other cross-project support including (Consolidated Training Plan activities)
2.5 Project staffing
2.6 Safeguards:
2.7 Legal covenants
3.Key Results
4.Case Studies/Lessons Learnt
4.1 Lessons learnt presented in 2011 quarterly reports
4.2 Other lessons learnt
5.Financial and Disbursement Status
6.Procurement Summary (Annual)
7.Communication Results
8.Risk Management Matrix (RMM) update
9.GGF update
10.Complaints Summary
11. Emerging Problems/Constraints and Solutions (including sectoral issues)
12. Status of the Agreed Actions in the Aide-Memoire of the Latest World Bank Mission
13. Conclusions & Recommendation
Conclusions
Recommendations
Annexes
Annex 1: PIP (from AWP) with the Status Updated
Annex 2: Outputs Indicators
Annex 3: Result Framework
Annex 4: Legal Covenants and Compliance
Annex 5: Partnership Reporting
Annex 6: Risk Management Matrix
Annex 7: Good Governance Framework
Annex 8: Demand of services by sector and OWSO
Annex 9: Service Revenues by sector and OWSO, in Riels
Annex 10: Cost recovery, for 2011
Annex 11: Complaints received and resolved by DO
Annex 12 Staff Training and Capacity Development
Annex 13: Number of female staff at sub-national level
1.Introduction
The performance of Component 1C- OWSO/DO was rated as moderately satisfactory (Aide Memoire- AM, paragraph 12) mid 2011, with two major strengths: the number of transactions actions exceeding the targets and the establishment of legal framework for the delegation of service functions. As weaknesses, the AM observed: low cost recovery outside Battambang and Siem Reap Municipalities and low overall disbursement due to a) an overambitious planning, (b) the low DA ceiling which caused cash flow problems through Q1 2011; and (c) knock on effects caused by delays in office construction (AM, paragraph 23). Room for improvement was observed in the field of M&E, enhancing the capacity of NCDDS/DST, and information and awareness building campaigns. In spite of these flaws, the World Bank and the RGC considered the outcomes of this project significantly positive and decided to increase its allocation from US$3.5 million to US$ 6.1 million. At the same time measures were introduced to improve project performance.
This document reports on the progress of DFGG’s Component 1 C -OWSO/DO compared to the revised AWP2011 as approved by the World Bank on 18 October 2011following the approved proposal for increased allocation (that was approved on 3 October 2011). Both documents took into consideration the findings and recommendations of Mid Term Review conducted mid-2011.
2.Executive Summary
NCDDS/DST’s performance during 2011 was moderately satisfactory, yet with significant improvements in Q3 and Q4.
2.1 Achievement of the core outputs of the project/component:
Apart from the OWSOs that have been established, the key outputs produced in 2011 are the proposal for increased allocation and the related revision of AWP 2011 that were both approved at the beginning of Q4. These will have a great bearing on the project’s effectiveness in delivering the intended outcomes. Additionally, NCDDS/DST has made important contributions to the DFGG’s Project Implementation Manual (including additional Guidelines for the use of the Performance Based Equipment Fund). Also throughout the year, the OWSO/DO project became better aligned with the IP3 of the NP-SNDD. Other important achievements are discussed below per Sub-component.
Sub-component 1. Expansion and strengthening of OWSOs
OWSOs and DOs expansion
In addition to the 8 new OWSOs that officially opened in the fourth quarter, the locations of 6 new OWSOs were identified and approved by the DPM.
Legal Framework
Seven Prakas related to the delegation of competencies to 8 new OWSO municipalities were issued. The Sala Khet also delegated the notarization/legalization of documents to the same 8 OWSOs, although the number and type of documents differ by province[1].
The Ministry of Economy and Finance issued Guideline No. 001hvs>hmdated 06 January 2011 on Municipal/District Budget Preparation and Implementation of target OWSO/DO Offices.
Important milestones were reached in 2011 when MAFF in August and MOH in December issued Prakas to deconcentrate functions to the Municipalities/Districts that have an OWSO. MAFF delegated the licenses for transport of animals over the road and opening of shops to sell agricultural inputs. MoH delegated the four functions of approving licenses for different health facilities.
Building and renovation
Construction of 7 WCs for 7 OWSOs in Year 1 (Y1) target areas, 8 new OWSOs and the renovation in SRP were totally completed. The renovation of the office in Battambang was still in progress at the end of the year because it appeared to be more complicated than expected.
Training and Capacity Development
A total of 16 training sessions (incl. study tours and internships) were organized between April and November 2011 for Y1 and Y2 target areas, with a total of 1,257participants (of whom 178 Females, see Annex 12).
Training Manuals
NCDDS/DST distributed 5,900 copies of training manuals to all target Districts/Municipalities and other relevant stakeholders and partners. These manuals are dealing with the following topics:
1)One Window Service Office,
2)District Ombudsman Office,
3)Election guidelines for District Ombudsman,
4)Process and Procedures Organizing Annual Forum, Semi-Annual Forum and Citizen's Hour, and Information Campaign,
5)Good Governance, and
6)Procedures of complaint handling of DO.
Updated OWSO Website
The websites of the OWSO/DO project were updated, which increased theOutreach.
Studies
The study on the potential for OWSOs in Phnom Penh was completed early September after the TAG meeting of 31 August 2011 recommended the adoption of the model with one complete OWSO for each of the Capital’s 9 Khans.
The location of 6 new OWSOs to be opened in 2012 was determined and approved by the DPM in September 2011.
A study on options for OWSOs in a Rural District was completed just before the end of the year. Its findings are expected to be approved in January 2012 together with the location of the rural OWSO.
Functioning offices
Eight new OWSOs started their operations in Q2 in the provincial offices, and after the formal opening in October 2011, they continued work in their own premises.
Sub-component 2. Extending and Strengthening the Capacity of the DO
Training on election procedures was organized in Y3 areas on 21-22 November 2011 in Kampong Cham Municipality with a total of 51 participants (3 females). The DO chiefs in 6 Municipalities were subsequently elected.
Trainings, study tours and internships were organised between April and November 2011, for DOs- Y2 target areas.
The Terms of Reference (ToR) for the Study on the Alignment of the DO and Provincial Accountable Working Groups were prepared, but due to late approval of the Procurement Plan the two positions for short-term consultants could only be advertised mid-December 2011.
Sub-component 3: Implementing New Forms of Citizens Participation and Outreach
Annual Forums
Nine old OWSOs organized Annual Forums, with a total of 6,719 participants (2,307 females). The 8 new OWSOs haven’t been able to organize such events according to the action plan since they were officially opened only in on 24October 2011.
Semi-Annual Forums
A total of 17 Semi- Annual forums with 1,346 participants (487 females) was organized by 9 OWSOs: 8 old and 1 New OWSOs.In Banlong (Ratanakiri) the number of participants amounted to 59 (of whom 15 females). Battambang and 7 new OWSOs have not conducted such a forum.
Monthly Citizen’s Hours
Sixty-one Monthly Citizen’s Hours were organized by 6 Districts/Municipalities with a total of 2,345 participants (672 women). Battambang had most participants (1,403 with 281 women). No Citizen’s Hours were organized in Siem Reap, Stung Sen and Preah Sihanouk for lack of interest from citizens. Among the 8 new OWSOs, only Daun Keo organized these meetings, with a total of 99 participants (43 women). With 36 meetings with the Governor in 12 months, Poi Pet, Battambang, and Kampong Cham performed best as far as the number of Citizen Hours is concerned.
Information campaign
All 17 Districts/Municipalities organized information campaigns, with a total of 6,719 participants (2,307 females).
Talk back programs
NCDDS/DST’s Project Manager participated as a speaker on “Our lives Our Society Program” on the progress and constraints of OWSO/DO project implementation on 19 December 2011, which was organized by RNK. In 8 Municipalities, 61 talk back programs were organized. Poi Pet and Banlong organized 30 and 12 talk back programs respectively.
IEC Materials for Information and Outreach
Leaflets, Stickers, Poster, Cap, video, and an Ayay song were produced for distribution at National and Sub-National level in order to increase the public awareness about the OWSO/DO project and in particular the OWSOs in the Municipalities/Districts.
Sub-component 4: Monitoring & Evaluation (M&E), and Learning
The drawbacks of the M&E system were recognized, among others in the AM of the MTR (paragraph 15). Since then the M&E system was considerably improved through a number of measures, including the following:
The format for reporting about OWSO and DO was revised in Q4/2011 and was used to prepare this Annual Report.
Kamprama Corporation designed new software for cash management using a POS database for the cashiers in the 8 new target areas. This software may also be used to generate transactions and revenue reports and will most likely become part of the new MIS system to be developed next year.
The merged Baseline Study andMid-line survey of OWSO project was completed in Q4/2011 and the result was presented by Green Goal Firm in 14 December 2011 with 37 participants (4 women).
NCDDS/DST participated in a meeting initiated by the TTL in the World Bank office in Phnom Penh aimed at improving the quality of reporting on 29 November 2011.
NCCDS/DST’s M&E unit regularly supported OWSO/DO offices in preparing their progress reports as well as monitored the timeliness and accuracy of the reports submitted, which contributes to capacity development of the OWSO for a future without advisors.
On 27-29 July 2011, NCDDS/DST organized a field visit together with the World Bank to BAT, BMC, and SRP provinces in order to study the revenue and delivery mechanism, the sustainability of OWSO project, and the management of the OWSO.
NCDDS/DST regularly conducted field visits to strengthen, support, and monitor the Districts/Municipalities, especially those facing constraints in project implementation.
Based on interviews with the main stakeholders at 7 old OWSOs, NCDDS/DST formulated lessons learnt in October - November 2011, focusing on (i) service provision, (ii) partnership, (iii) behavior change of OWSO staff, (iv) citizen’s participants, and (v) the staff’s training.
The quarterly progress reports 2011 were prepared for DFGG’s project coordination office and the Bank.
Moreover, preparations for recruitment of an M&E and an IT advisor were made, which will contribute to a further improvement, including the design and piloting of an automated MIS in 2012.
Sub-component 5: Management
Technical Advisory Group (TAG)
The TAG met on 31 August 2011 to review the progress in expanding and strengthening the OWSO and discuss some problems that emerged in OWSO’s service delivery. It also endorsed the findings of the study on Phnom Penh’s options. Following the August meeting, some members also conducted field visits to study the practicalities of the OWSOs.
Eight new OWSOs were officially inaugurated on 24 October 2011 at Khemarak Phumen Municipality, Koh Kong Province. This high-level event received considerable attention in the media and thus made an important contribution to raising the public’s awareness about OWSOs and the DFGG project.
A Planning and Capacity Building, a Procurement, and an International Project Management Advisor were recruited and started work in Q2 and Q3 respectively. The contracts of the two policies advisors, an operation advisor and three contract staffs were extended.
This annual report makes recommendations for 2012, with regard to sustainability, staff’s motivations, citizens’ awareness, reviewing the training program, citizens’ interest in Citizens’ Hours, Citizens’ confidence in the DO, delegation of functions from the Ministry of Industry, Mines and Energy, examining unofficial payments and formulating a policy about this misbehavior, monitoring Provincial departments providing services delegated to OWSOs.
2.2 Partnership development
The partnership reporting was improved with a presentation of relevant details in the Q3 report. Subsequent reports will only describe the changes in partnership and/or the progress of the partners’ activities.
At the end of 2011, NCDDS/DST had formed partnerships with 2 NGOs (DND, and ACF) and 11 State Institutions. There are 8 Ministries who are actively participating and one preparing for participation in the OWSO and the Ministry of Economy and Finance (MEF). Those participating are the Ministry of Tourism, Ministry of Land Management, Urban Planning and Construction, Ministry of Commerce, Ministry of Industry and Mining, Ministry of Culture and Fine Arts, Ministry of Public Works and Transport, Ministry of Agriculture, Fisheries and Forests and, since 29 December 2011 also, the Ministry of Health. The one still preparing for participation is the Ministry of Education, Youth and Sports. Additionally, NCDDS has a partnership with the Council for Administrative Reform (CAR) that is crucial in the approval of new appointees for OWSO and NCDDS/DST positions.
Consultation with these Ministries and the CAR takes place through direct bi-lateral communications as well as through the Technical Advisory Group (TAG) that discusses the progress of deconcentrat-ion, technical constraints, and policy issues. MEF approves work plans, including procurement plans and budgets and constructively participates in the Procurement Review Committees.
Among the NGOs, Democracy resource center for National Development (DND) has piloted a new modality of Outreach Support in Kratie, Peam Ro (Prey Veng) and Suong (Kampong Cham). The positive experience with NGOs was confirmed by many stakeholders (including the administration) during the interviews for the preparation of the lessons learnt in October- November 2011. These Citizen Bodies, groups of concerned citizens, will be also formed by other NGOs in other Municipalities /Districts in 2012.
In Q4/2011, DND organized Annual Citizen Forum in PVG, KRT, and KPC aimed to increase the citizen awareness with a total of 306 participants (97 females).
The Arbitration Council Foundation (ACF), NCDDS/DST’s second NGO partner since an MoU was signed in September assists the OWSO/DO project in dissemination of legal documents related to roles, functions, services and others information about OWSOs through the activities organized by ACF.
2.3 Gender
NCDDS/DST has given considerable attention to Gender in its recruitment of new staff and in encouraging staff to participate in training activities. As appears from the Annex 12, 14 % of the 1,257 trainees were female.
At the end of 2011, at national level there was one female Government official (out of 11) and 2 female contract staff (among a group of 10 contract staff and advisors). At sub-national level 59 out of the 276 or 21 % of the staff was female (for details see Annex 13), with the highest share among Admin & Finance Assistants and Front Office staff. In the OWSO target Municipalities /Districts there are no female governors.
2.4 Learning activities and other cross-project support including (Consolidated Training Plan activities)
In 2011, NCDDS/DST became more active in DFGG’s Learning Activities. It prepared a draft concept note for training in Accountability and Access to Information and committed itself to organizing a second training in Complaints Mechanisms. Both trainings will be conducted in 2012.
2.5 Project staffing
Reporting on project staffing started in the third quarter of 2011. At the end of the year, the OWSO/DO component supported 276 staff at sub-national staff level (in the OWSOs and 276 in the District/Municipal administrations, including the Governors). At national level, there were 11 national officials, 3 contract staff and 6 national and 1 international advisers in DST.
The number of staff increased in 2011 as a result of the opening of OWSOs in 8 new municipalities. New staff received the necessary training, which was considered very useful for their job performance (see also the text box in section 4.2).
Throughout the year, 13 staff at sub-national level resigned, with discontent about travel time and related cost as the single most important reason for requests for transfers back to the original departments. In Kampong Cham, the Chief of OWSO was replaced, after an investigation by NCDDS/DST concluded that he had seriously breached the Code of Conduct. Three staff received an official warning for less serious breaches of this declaration to which all staff had to subscribe.
Over the year, a total amount of US $236,719 was paid for POC, of which US$ 103,053 was paid in Q4/2011 (see Section 5). All staff receiving a POC allowance basically complied with the obligations, sometimes by working overtime.
2.6 Safeguards:
Environmental and Social Safeguards have been included in the analysis of the locations of the OWSOs in the Municipalities and District. In none of the cases has any negative environmental or social impact of the construction activities been identified.
2.7 Legal covenants
The MTR noted NCDDS’ compliance with virtually all covenants (for details see Annex 4). Yet, it expressed some concern about partial compliance with the Project Management Covenants. With the improvement of the M&E system in Q3 and Q4 and the preparation of DFGG’s PIM, NCDDS/DST now complies with all legal covenants.
3.Key Results
This section discusses the key results in the same order as in the results framework (Annex 3).
A. PDO LEVEL INDICATORS
Citizens’ awareness and understanding of services provided by OWSO and DO
In the recent Baseline and Midline survey[2] 17 % and 2 % of a sample of 1,050 citizens were aware and understood the services provided by OWSO and DO respectively. Citizen’s awareness was highest in Battambang and Peam Ro. Most often the citizen understood that the OWSOs are a place issuing motor number plates (64%) and a place where people certify legal documents like certificates, identity cards or patents (41%). The citizens who said they understood the DO, described it as a place receiving complaints and solving problems for people, while 33% mentioned a place reporting people’s complaints (to others).