Building Capacity to Implement the Sierra Leone Poverty Reduction Strategy

BUILDING CAPACITY TO IMPLEMENT THE SIERRA LEONE POVERTY REDUCTION STRATEGY

PROGRAMME FRAMEWORK

INTRODUCTION

1.In 2003, the Government of Sierra Leone with wide stakeholder participation articulated “Vision 2025”, an overall vision of its longer-term development agenda within which the poverty reduction strategy is set. The vision of “United People, Progressive Nation, Attractive Country” is that by 2025, Sierra Leone would have known years of peace, democratic governance, sound economic growth, lower unemployment and poverty, and improved quality of life for all.

2.However, the capacity of Government to implement the Poverty Reduction Strategy and to deliver services is generally weak. 11 years of a brutal civil conflict further diminished this capacity. What is left of the public service is now plagued with very low incentive structure, which has exacerbated the flight of qualified personnel from the service, thus further weakening its capacity to implement government programmes and/or deliver services. The ad hoc introduction of Project Implementation Units (PIUs) has not helped the long-term needs of the service.

In both the short and long run, the vision is to create a leaner, well-motivated and efficient civil service to implement the PRS and maximize efficiency in the public service generally. The path to this requires a multi-pronged and comprehensive short and long-term strategy involving the filling of critical gaps in key MDAs through the immediate implementation of the SES, which is characterized by competitive recruitment, capacity retention and linking rewards to performance. This will also involve creating an environment of attractive remuneration and sustained training to develop the full capacity of the service. Other ingredients include a 90-day review of the architecture of MDAs, the transformation of the Establishment Secretary’s Office (ESO) into a Human Resource Management Office (HRMO), Restructuring of Ministries, Departments and Agencies (MDAs) through the Management and Functional Reviews (MFRs) supported by DFID, the Devolution of functions to elected Local Government structures, developing and implementing a Comprehensive Training Policy, formulation of a Pay and Grading Strategy; records Management, etc. Donor intervention has also been very crucial in the Decentralization process, Public Financial Management, as well as support to MDAs. The 90-day review will recommend where rationalization, amalgamation, transfer of responsibilities or other management models would support a more effective implementation of the PRSP.

3.KEY AREAS OF INTERVENTION

The programme will intervene in three key areas, namely:

Strengthen the national, regional and local institutional framework for coordination, resource mobilization, delivering and monitoring of the PRSP and strategic development of Sierra Leone

Improve the managerial capacity and key competencies of MDAs for policy development, design, implementation and support for service delivery and the decentralization process through the creation of a Senior Executive Service;

Support improvement of the institutional environment through a comprehensive public service reform to ensure capacity retention and sustainability

4.The Main Capacity Gaps

The main capacity gaps the programme is designed to address are grouped under the following clusters:

i)Coordination, Monitoring, Evaluation and Resource Mobilization

Institutional Framework for Coordination and Strategy Development
Institutional resource mobilization and absorptive capacity
Monitoring and Evaluating the PRSP (data and M&E framework)

ii)Policy Development, Strategic Planning, Service Delivery and Support to Decentralization

Staff expertise for service delivery
Staff expertise for policy development, financial management and strategic planning
Staff and expertise for support to decentralization

iii)Institutional Environment to Create, Nurture and Retain Capacities

Need for a clear definition of organizational roles
Organizational policy units
Improved access to ICT and efficient communication channels
Integrating Project Implementation Units into mainstream MDAs

5.MAIN STRATEGIC THRUSTS

Main Thrusts are;

The strategy is hinged upon the following elements;

Enhancing the human resource capacities of MDAs to facilitate speedy implementation of the PRSP
Putting in place a ‘change leadership team’ to drive government polices and programmes through the establishment of a Senior Executive Service (SES)
Competitive recruitment, merit-based progression and reward/incentives based on performance
Other Public Service Reform Initiatives, including Management and Functional Reviews of MDAs, creation of a Human Resource Management Office, a Records Management Improvement Programme
Addressing the proliferation and impact of Programme Implementation Units supported by donors
Improving access to ICT to improve communication in the public service
Providing longer-term training to strengthen the expertise base of MDAs to perform critical functions; resuscitation of the Civil Service Training College, etc.
Increasing devolution of functions from line ministries to local councils, thereby creating a lean civil service at the centre
Creation of special agencies (Executive Agencies) such as the National Revenue Authority, Roads Transport Authority, National Social Security and Insurance Trust, etc.
Improving the institutional environment to maximize the output of the public service

6.PROGRAMME COMPONENTS AND INTENDED OUTPUTS

To address the capacity challenges, the programme will intervene in the following three key areas. Topmost priority is reserved for Component 1, which focuses on Improving Institutional environment, Capacity Retention and Sustainability, with a total one year budget of US$3,560,640.

a)Component 1

No. / Programme Component / Intended Outputs
1 / Improving Institutional environment, Capacity Retention and Sustainability /

Comprehensive public service reform completed under government leadership. SES implementation and PIUs integration into the civil service commenced

Leadership and management capacities developed in the civil service to spearhead institutional transformation

Improve Human Resources Management in the Civil Service

A Government ICT policy developed and improved ICT infrastructure and information technology skills in MDAs.

b)Component 2

No. / Programme Component / Intended Outputs
2 / Strengthening Institutional Framework for coordination, Monitoring and Resource Mobilization /

Effective coordination mechanisms in place at national and district levels

Key lessons on PRSP implementation documented and disseminated

Baseline established and quality poverty monitoring reports produced to ensure timely monitoring and assessment of impact

Improved priority setting, resource mobilization and allocation, including better resource planning and utilization in MDAs

c)Component 3

No. / Programme Component / Intended Outputs
3 / Enhancing Capacities for Policy Development, Support to Service Delivery and Decentralization /

MDAs have adequate and better skilled cadres and their outreach capacities strengthened

Key MDAs have improved ability to support decentralization

Capacities and competencies in policy development, strategic planning and development management in MDAs strengthened, especially for key MDAs

A Government ICT policy developed. Improved ICT infrastructure and information technology skills established in MDAs

7.MANAGEMENT ARRANGEMENTS

The implementation of the programme will involve the following:

i)A Programme Steering Committee, drawn from government and development partners will provide overall leadership, strategic guidance and coordination in the management of the Capacity Building Programme.

ii)A Programme Management Unit will be created in Office of the President. The Ministry of Presidential and Public Affairs in the Office of the President will have overall responsibility for executing the programme, while implementation of the programme will be carried out by various MDAs. The unit will also set up joint financing procedures and agreements, and provide substantive support to management, coordination and oversight of funds.

8.PROPOSED FUNDING ARRANGEMENT

In view of the urgency to address capacity needs for the PRSP, a “Basket” Fund (an additional mechanism to the Trust Fund) would be put in place to facilitate rapid mobilization and utilization of resource in the short-term for the programme.

9.MONITORING, EVALUATING AND REPORTING

The programme will be subject to review every calendar year on request of the government and partners. Towards the end of the programme, a terminal review will be held. The programme may be subject to an in-depth external evaluation to assess its overall performance, the outputs/outcomes produced against its initial targets, the impact it has brought about or would likely bring about, its relevance to the national context and management efficiency. A mid-term evaluation will be undertaken to ensure that such lessons and recommendations are incorporated in the work plans of the programme during the rest of its life. The timing and necessity of this evaluation will be decided, based on mutual agreement between GoSL and partners.

INDICATIVE BUDGET

The estimated cost of the programme is about $11.7m, broken down as shown in the table below, with priority given, in the immediate term, to Programme 1, estimated at US$3.56m.

Programme Components / Budget in US$
(2006-2007)
1. Improving Institutional Environment, Capacity Retention
and Sustainability / 3,560,640
2. Strengthening Institutional Framework for coordination,
Monitoring and Resource Mobilization / 2,051,000
3. Enhancing Capacity for Policy Development, Support to
Service Delivery and Decentralization / 5,200,500
4. Admin Costs (3%) / 324,364
5. Contingencies (5%) / 540,607
TOTAL / 11,677,111
Strengthening civil society and the private sector / 3,684,000
15,361,111