Document of
The World Bank
Report No:ICR00003930
IMPLEMENTATION COMPLETION AND RESULTSREPORT(IBRD-74810IBRD-77980)ON A
LOAN AND ADDITIONAL FINANCING
IN THE AMOUNT OF US$29.40 MILLION
TO THE
DOMINICAN REPUBLIC
FOR A
SOCIAL PROTECTION INVESTMENT PROJECT
October 4, 2016
Social Protection Global Practice
Latin American and the Caribbean
CURRENCY EQUIVALENTS
(Exchange Rate Effective -January 26, 2015)
Currency Unit=DR Peso
US$ 1.00 = DR Peso 45.33
FISCAL YEAR - January 1-December 31
ABBREVIATIONS AND ACRONYMS
ADESSAdministrator of Social Subsidies(Administradora de SegurosSociales)
AFAdditional Financing
APLAdaptable Programmatic Loan
CASCountry Assistance Strategy
CCCS Consultative Council of the Civil Society
CCTConditional Cash Transfers
CDDDocumentationUnit (Centro de Dotación de Documentos)
CECCentral Electoral Council (Junta Central Electoral)
CPSCountry Program Strategy
DAFDirectorate of Administration and Financial Management
DPLDevelopment Policy Loan
DRDominican Republic
FMFinancial Management
IABDInter-American Development Bank
ICVQuality of Life Index (ÍndiceCalidad de Vida)
IEImpact Evaluation
IDIdentification Document
IRRInternal Rate of Return
GPSGlobal Practice Social Protection
MEPYDMinistry of Economy, Planning and Development
MOEMinistry of Education
MOHMinistry of Health
M&EMonitoring and Evaluation
NDSNational Development Strategy
NGONon-Governmental Organizations
NPVNet Present Value
OBDOutput-Based Disbursement
OMOperations Manual
PADProject Appraisal Document
PASSProgrammatic Performance and Accountability of Social Sectors Program
PIUProject Implementation Unit
PROSOLIProgressing with Solidarity –DR CCT Program (Progresando con Solidaridad)
QERQualityEnhancedReview
SCSocial Cabinet(Gabinete de Protección Social)
SENASANationalHealthInsurance (Seguro Nacional de Salud)
SIUBENUnifiedBeneficiaryIdentificationSystem (Sistema Único de Identificación de Beneficiarios)
UNAPPrimary health care units ((Unidades de AtenciónPrimaria)
Vice President: / Jorge FamiliarCountry Director: / Sophie Sirtaine
Sector Manager: / Margaret Grosh
Project Team Leader: / Miriam Montenegro
ICR Team Leader: / Miriam Montenegro (coTTL)
Karla Mcevoy (CoTTL)
THE DOMINICAN REPUBLIC
SOCIAL PROTECTION INVESTMENT PROJECT (P090010)
Contents
List of Figures
List of Tables
Data Sheet
A. Basic Information
B. Key Dates
C. Ratings Summary
D. Sector and Theme Codes
E. Bank Staff
F. Results Framework Analysis
G. Ratings of Project Performance in ISRs
H. Restructuring (if any)
I. Disbursement Profile
1. Project Context, Development Objectives and Design
1.1 Context at Appraisal
1.2 Original Project Development Objectives (PDO) and Key Indicators
1.3 Revised PDO and Key Indicators, and reasons/justification
1.4 Main Beneficiaries
1.5 Original Components
1.6 Revised Components
1.7 Other significant changes
2. Key Factors Affecting Implementation and Outcomes
2.1 Project Preparation, Design and Quality at Entry
2.2 Implementation
2.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization
2.4 Safeguard and Fiduciary Compliance
2.5 Post-completion Operation/Next Phase
3. Assessment of Outcomes
3.1 Relevance of Objectives, Design and Implementation
3.2 Achievement of Project Development Objectives
3.3 Efficiency
3.4 Justification of Overall Outcome Rating
3.5 Overarching Themes, Other Outcomes and Impacts
3.6 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops
4. Assessment of Risk to Development Outcome
5. Assessment of Bank and Borrower Performance
5.1 Bank Performance
5.2 Borrower Performance
6. Lessons Learned
7. Comments on Issues Raised by Grantee/Implementing Agencies/Donors
Annex 1. Project Costs and Financing
Annex 2. Outputs by Component
Annex 3. Economic and Financial Analysis
Annex 4. Grant Preparation and Implementation Support/Supervision Processes
Annex 5. Beneficiary Survey Results
Annex 6. Stakeholder Workshop Report and Results
Annex 7. Summary of Borrower’s Contribution to the ICR
Annex 8. Comments of Co-financiers and Other Partners/Stakeholders
N/A
Annex 9. List of Supporting Documents
MAP
List of Figures
Figure 1 Inclusion errors
Figure 2 Exclusion errors
Figure 3 Percentage of head of household and children without documents
List of Tables
Table 1 Net Present Value and Internal Rate of Return
Table 2 Beneficiary Population
Table 3 VPN and IRR for different scenarios of secondary education competition
Table 4 Return of education
Table 5 Estimated annual nominal disbursements (US$ Million)
Table 6 Present Value of the cost in real terms base 2008 (US$ Million)
Data Sheet
A. Basic Information
Country: / Dominican Republic / Project Name: / DO Social Protection Investment ProjectProject ID: / P090010 / L/C/TF Number(s): / IBRD-74810,IBRD-77980
ICR Date: / 08/02/2016 / ICR Type: / Core ICR
Lending Instrument: / SIL / Borrower: / DOMINICAN REPUBLIC
Original Total Commitment: / USD 19.40M / Disbursed Amount: / USD 29.40M
Revised Amount: / USD 29.40M
Environmental Category: C
Implementing Agencies: Social Cabinet
Co-financiers and Other External Partners:
B. Key Dates
Process / Date / Process / Original Date / Revised / Actual Date(s)Concept Review: / 06/20/2005 / Effectiveness: / 12/19/2008 / 12/19/2008
Appraisal: / 03/13/2006 / Restructuring(s): / 09/17/2009
07/17/2012
11/06/2013
12/19/2014
04/08/2015
06/29/2015
08/27/2015
Approval: / 08/02/2007 / Mid-term Review: / 02/10/2014 / 02/03/2014
Closing: / 06/30/2012 / 04/30/2016
C. Ratings Summary
C.1 Performance Rating by ICROutcomes: / Satisfactory
Risk to Development Outcome: / Moderate
Bank Performance: / Moderately Satisfactory
Borrower Performance: / Moderately Satisfactory
C.2 Detailed Ratings of Bank and Borrower Performance (by ICR)
Bank / Ratings / Borrower / Ratings
Quality at Entry: / Moderately Satisfactory / Government: / Satisfactory
Quality of Supervision: / Moderately Satisfactory / Implementing Agency/Agencies: / Moderately Satisfactory
Overall Bank Performance: / Moderately Satisfactory / Overall Borrower Performance: / Moderately Satisfactory
C.3 Quality at Entry and Implementation Performance Indicators
Implementation Performance / Indicators / QAG Assessments (if any) / Rating
Potential Problem Project at any time (Yes/No): / Yes / Quality at Entry (QEA): / None
Problem Project at any time (Yes/No): / Yes / Quality of Supervision (QSA): / None
DO rating before Closing/Inactive status: / Satisfactory
D. Sector and Theme Codes
Original / ActualSector Code (as % of total Bank financing)
Central Government (Central Agencies) / 55 / 55
Other social services / 45 / 45
Theme Code (as % of total Bank financing)
Child health / 25 / 25
Education for all / 25 / 25
Income Support for Old Age, Disability & Survivorship / 25 / 25
Social Safety Nets/Social Assistance & Social Care Services / 25 / 25
E. Bank Staff
Positions / At ICR / At ApprovalVice President: / Jorge Familiar / Pamela Cox
Country Director: / Sophie Sirtaine / Caroline D. Anstey
Practice Manager/Manager: / Margaret Ellen Grosh / Helena G. Ribe
Project Team Leader: / Miriam Matilde Montenegro Lazo / Samuel C. Carlson
ICR Team Leader: / Miriam Matilde Montenegro Lazo
Karla Mcevoy
ICR Primary Author: / Maria R. Puech Fernandez
F. Results Framework Analysis
Project Development Objectives (from Project Appraisal Document)Improve coverage, targeting and effectiveness of the Borrower's social protection programs, through the provision of legal identitydocuments to poor Dominicans, Institutional Strengthening of targeting mechanisms, and increased monitoring and evaluation ofsocial programs.
Revised Project Development Objectives (as approved by original approving authority)N.A.
(a) PDO Indicator(s)Indicator / Baseline Value / Original Target Values (from approval documents) / Formally Revised Target Values / Actual Value Achieved at Completion or Target Years
Indicator 1: / Coverage: Percentage of households which have at least one member targeted by the Documentation Component who have been integrated into the PROSOLI Program
Value
quantitative or
Qualitative) / 0 % / 75 % / N/A / 97.90 %
Date achieved / 12/31/2005 / 06/30/2012 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (131 percent level of achievement): Name and the date of the end target were adjusted in the fifth restructuring, Original targets remained the same. End target was achieved by June, 2015. PROSOLI continues supporting documentation after closing
Indicator 2: / Coverage: The percentage of extremely poor heads of household (classified as P1 and P2 by SIUBEN) who lack identity documents. (Percentage, Custom)
Value
quantitative or
Qualitative) / 28% / 10% / N/A / 7.10%
Date achieved / 12/31/2005 / 06/30/2012 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (116 percent level of achievement). The name, baseline, and date of the end target were reset based on SIUBEN 2011 study in the fifth restructuring. End target was achieved by June, 2015. PROSOLI continues supporting documentation after closing
Indicator 3: / Targeting: Implementation of the 2009 national SIUBEN survey, including 1.8 million households located in poor areas. (Number, Custom)
Value
quantitative or
Qualitative) / 0 / 1,500,000 / 1,800,000 / 2,161,587
Date achieved / 12/31/2005 / 06/30/2012 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (120 percent level of achievement): The name, end target, and date of the end target were revised in the fifth restructuring. End target was achieved by Dec. 2011. Project continued supporting SIUBEN. New study will be carried out in 2017.
Indicator 4: / (Additional Financing Outcome Indicator) Targeting: SIUBEN updates the poverty status of 100 percent of registered households with poverty status (Poor I and II). (Percentage, Custom)
Value
quantitative or
Qualitative) / 0 % / 100% / N/A / 100%
Date achieved / 12/31/2005 / 06/30/2016 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (100 percent level of achievement). The name and date of end target were revised in the fifth restructuring. End target remained the same and was achieved by Dec. 2011. Project continued supporting SIUBEN. New study will be carried out in 2017.
Indicator 5: / (Additional Financing Outcome Indicator) Targeting: 85 percent of surveyed households certified by end of 2011. (Percentage, Custom)
Value
quantitative or
Qualitative) / 0% / 85% / N/A / 100%
Date achieved / 12/19/2008 / 12/31/2013 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (100 percent level of achievement). Included for the first time in the fifth Restructuring. End target achieved in June, 2015, when it was launched as a national process. PROSOLI continued supporting RC as social audit mechanisms after closing.
Indicator 6: / (Additional Financing Outcome Indicator) Establishment of a social audit mechanism of monitoring and participation of social protection program with the participation of the community (Text, Custom)
Value
quantitative or
Qualitative) / No mechanisms in place / - / Social audit mechanism piloted, and expanded to national level / Pilot designed in 2010, evaluated in 2012, and expanded at national level in 2013. A second round at national level was conducted in 2014. PROSOLI continued carrying out national rounds in 2015.
Date achieved / 12/19/2008 / 12/31/2013 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (100 percent level of achievement). Included for the first time in the fifth Restructuring. End target achieved in June, 2015, when it was launched as a national process. PROSOLI continued supporting RC as social audit mechanisms after closing.
(b) Intermediate Outcome Indicator(s)
Indicator / Baseline Value / Original Target Values (from approval documents) / Formally Revised Target Values / Actual Value Achieved at Completion or Target Years
Indicator 1: / Coverage: The percentage of extremely poor households (classified as P1 and P2 by SIUBEN) covered by PROSOLI(Percentage, Custom)
Value
(quantitative
or Qualitative) / 68.40% / 85% / N/A / 86.10%
Date achieved / 12/31/2005 / 06/30/2012 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (101 percent level of achievement). Name, original baseline value, and date of the end target were modified in the fifth Restructuring. End target did not change and was achieved by Jun.2015. PROSOLI continues documenting the poor after closing
Indicator 2: / Targeting and Coverage: The percentage of poor households enrolled in SIUBEN database and subsequently validated for participation in PROSOLI (Percentage, Custom)
Value
(quantitative
or Qualitative) / 68.9% / 50.0% / 80.0% / 94.9%
Date achieved / 12/31/2005 / 06/30/2012 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (119 percent level of achievement). Name, original baseline value, end target, and date of end target were adjusted in the fifth restructuring to use SIUBEN 2011. End target achieved by Jun.2015. PROSOLI continues with documentation after closing
Indicator 3: / Percentage of individuals provided with identity documents directly processed by the Documentation unit(Percentage, Custom)
Value
(quantitative
or Qualitative) / 0% / 25% / N/A / 31.39%
Date achieved / 03/25/2015 / 04/30/2016 / N/A / 04/05/2016
Comments
(incl. %
achievement) / Achieved (126 percent level of achievement). This indicator was added in the fifth Restructuring to capture the efficiency of the Project field staff. The end target was achieved by Jun.2015. PROSOLI continues documenting poor after closing.
Indicator 4: / Targeting: Recertification of Solidaridad CCT program beneficiaries and updating of national database of poor Dominicans using proxy-means methodologies (% of the 1.8 million households surveyed) (Percentage, Custom)
Value
(quantitative
or Qualitative) / 70% / 95% / N/A / 100%
Date achieved / 12/31/2005 / 06/30/2012 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (105 percent level of achievement). Only the date of the end target of this indicator was adjusted in the fifth restructuring. The end target was achieved in Dec.2011. Project continued supporting SIUBEN. New study will be carried out in 2017.
Indicator 5: / Targeting: Expenditures of targeted social protection programs which use SIUBEN as a percentage of social assistance expenditures (Text, Custom)
Value
(quantitative
or Qualitative) / 20% / RD$800M / 60% / 64.4%
Date achieved / 12/31/2005 / 04/30/2015 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (107 percent level of achievement). Name, baseline, end target value, and the date of the end target were modified in the fifth Restructuring. Indicator calculated by SC with information from MoF. The end target was met by Dec.2014. Est. 2015:75%
Indicator 6: / Effectiveness: Relative to a baseline survey, conduct quasi-experimental social and economic impact assessment of provision of legal identity documents (Text, Custom)
Value
(quantitative
or Qualitative) / N/A / Impact Evaluation Study / Quasi-experimental social and economic impact assessment / Baseline data collected in 2011. Assessment data and impact evaluation report completed and disseminated by December 2014
Date achieved / 12/31/2005 / 06/30/2012 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (100 percent level of achievement). The name was modified in the fifth Restructuring. End target achieved by Dec. 2014. The Project also financed other assessments for the Community Report Cards, the training, and documentation components.
Indicator 7: / (AF Additional Intermediate Indicator) Staff Capacity: By the end of the second year, at least 90 percent of the staff of the redesigned CCT Program is trained on the new operational rules of the CCT (Percentage, Custom)
Value
(quantitative
or Qualitative) / 0% / 90% / N/A / 98%
Date achieved / 12/19/2008 / 12/31/2013 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (108 percent level of achievement). Only the date of the end target was updated in the fifth restructuring. End target achieved by Dec. 2012. Project supported the strengthening of the staff at operational and administrative levels until closing.
Indicator 8: / (AF Additional Intermediate Indicator) Comprehensive Monitoring and Evaluation System of CCT Solidaridad designed and implemented by second year of implementation. (Text, Custom)
Value
(quantitative
or Qualitative) / N/A / Monitoring and Evaluation System designed and implemented / N/A / Conceptual design of the System completed. Conceptual design of the Monitoring Module developed piloted and implemented
Date achieved / 12/19/2008 / 12/31/2013 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (100 percent level of achievement). Name and date of end target were modified in the fifth Restructuring. The end target was achieved by Dec.2015. The new project financed by the Bank aims to continue supporting the development of the System.
Indicator 9: / (AF Additional Intermediate Indicator) Community Participation: 100 percent of beneficiary committees have been setup and trained in rights and obligations by the end of the third year. (Percentage, Custom)
Value
(quantitative
or Qualitative) / 0% / 100% / N/A / 100%
Date achieved / 12/19/2008 / 12/31/2013 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (100 percent level of achievement). Only the date of the end target was adjusted in the fifth restructuring. End target achieved by Jun.2014. After closing, PROSOLI continues implementing this financed with national resources and the Bank.
Indicator 10: / (AF Additional Intermediate Indicator) Social Oversight: Number of distributed community scorecards vs. Number of community scorecards that have been filled in. (Percentage, Custom)
Value
(quantitative
or Qualitative) / 0% / N/A / 85% / 100%
Date achieved / 12/19/2008 / 12/31/2013 / 04/30/2016 / 04/05/2016
Comments
(incl. %
achievement) / Achieved (118 percent level of achievement). The end target was established and its end date was modified in the fifth Restructuring. It was achieved by Jun.2014. PROSOLI continues implementing this after closing.
G. Ratings of Project Performance in ISRs
No. / Date ISRArchived / DO / IP / Actual Disbursements
(USD millions)
1 / 12/11/2007 / Moderately Satisfactory / Moderately Unsatisfactory / 0.00
2 / 06/07/2008 / Satisfactory / Moderately Satisfactory / 0.00
3 / 06/24/2008 / Moderately Satisfactory / Moderately Unsatisfactory / 0.00
4 / 12/01/2008 / Moderately Satisfactory / Moderately Unsatisfactory / 0.00
5 / 05/01/2009 / Satisfactory / Moderately Unsatisfactory / 0.50
6 / 06/09/2009 / Satisfactory / Moderately Satisfactory / 0.50
7 / 11/21/2009 / Satisfactory / Moderately Satisfactory / 1.21
8 / 06/16/2010 / Satisfactory / Moderately Satisfactory / 2.87
9 / 02/06/2011 / Moderately Satisfactory / Moderately Unsatisfactory / 4.96
10 / 08/10/2011 / Moderately Satisfactory / Moderately Satisfactory / 7.52
11 / 03/13/2012 / Satisfactory / Satisfactory / 14.41
12 / 10/15/2012 / Satisfactory / Satisfactory / 17.93
13 / 05/16/2013 / Satisfactory / Moderately Satisfactory / 20.38
14 / 01/04/2014 / Moderately Satisfactory / Moderately Satisfactory / 21.48
15 / 07/23/2014 / Moderately Satisfactory / Moderately Satisfactory / 24.48
16 / 01/30/2015 / Moderately Satisfactory / Moderately Satisfactory / 25.88
17 / 07/26/2015 / Moderately Satisfactory / Moderately Unsatisfactory / 28.93
18 / 01/22/2016 / Satisfactory / Moderately Satisfactory / 29.38
19 / 04/28/2016 / Satisfactory / Moderately Satisfactory / 29.38
H. Restructuring (if any)
Restructuring Date(s) / Board Approved PDO Change / ISR Ratings at Restructuring / Amount Disbursed at Restructuring in USD millions / Reason for Restructuring & Key Changes MadeDO / IP
09/17/2009 / S / MS / 0.51 / The restructuring accompanied the approval of the Additional Financing (AF) in September 2009. The AFaimed to strengthen Solidaridad and scale up efforts in targeting and documentation of poor households. Besides these changes, it extended the closing date of the original Loan to December 31, 2013.
07/17/2012 / S / S / 17.93 / A Level 2 restructuring was approved to reallocate loan proceeds from loans 7481-DO and 7798-DO. Under the AF loan, approximatelyUS$348,394 was reallocated from category 3 to category 2. Under the original loan, US$48,365 from category 1 and US$600,000 from category 2 was reallocated to categories 3 and 4, respectively. The reasons for these reallocations were: (i) the higher than expected cost of the Social Economic Study (census) carried out by SIUBEN, due to including over 2 million households (versus an initial estimate of 1.8 million) in the poorest areas of the country; (ii) to finance the organizational structure and functioning of the implementing unit, which was not originally included.
11/06/2013 / S / MS / 20.83 / A Level 2 restructuring was approved to reallocate loan proceeds between disbursement categories for both loans and to extend the closing dates of the original project and the AF from December 31, 2013 to December31, 2014.The extension of the closing date would allow for the completion of the following project activities: (i) provision of documentation to an additional 60,000 individuals; (ii) the completion of the construction of four civil registry offices and the compliance with safeguards (environmental and resettlement); and (iii) the development of a proposal for the use of the SIUBEN’s studyand the expansion of the community report cards.
12/19/2014 / MS / MS / 25.88 / A Level 2restructuring was approved to extend the closing date of both loans to June 30, 2015 in order to carry out the institutionalization of the documentation component; and continue supporting critical activities for the strengthening of the Social Cabinet. The restructuring allowed the reallocation of resources across disbursement categories as the Project continued supporting: (i) documentation activities; (ii) improving the operational capacity of PROSOLI; (iii) strengthening SIUBEN in preparation of the new socioeconomic study; and (iv) strengthening the SC’s M&E capacity. This extension also allowed the Borrower to revise the end target of documented individuals to 239, 012 and to solve safeguards compliance issues that were overdue regarding the construction of the CEC offices (land regularization process of the four properties where the buildings were built). The Borrower also was pursuing a revision of the results framework but given the approval timing at Congress, this could not be processed under this restructuring. It was agreed that a new restructuring was going to be processed before the new closing date.
04/08/2015 / MS / MS / 26.75 / A Level 2 restructuring was approved which revised the Project’s indicators: to update the definition of some of the indicators, to better reflect the changes in the social protection context in the DR; and to drop some indicators which had become irrelevant. The revision of the indicators started in the second half of 2013 and could be processed until this restructuring as the approval process in Congress of the proposed changes took longer than estimated. The Borrower was still experiencing delays in complying with all the safeguards issues regarding the four CEC buildings and also wanted to include the corresponding amendment to the legal agreement but this was not possible due to the approval timing in Congress.
06/29/2015 / MS / MS / 28.20 / The Bank unilaterally requested the extension of the closing date until April 30 2016 to allow the Borrower time to request an amendment of the Loan Agreement to revise the Project description to include new constructions instead of rehabilitation and conclude the land regularization process of the four properties.This restructuring allowed time for the Borrower to obtain the Congress’ approval of these changes and request the restructuring to the Bank. All other activities under the Project were completed by June 30, 2015.
08/27/2015 / MS / MU / 29.23 / A Level 2 restructuring was approved to amend the Loan Agreements for the original Project and its Additional Financing, to make formal provision in the Project for construction activities which were not part of the original design, but carried out under Component 1 of the Project. The Borrower completed the land regularization process for the four properties where the CEC offices were built, in an acceptable way to the Bank before the Project closed in June 30, 2016.
I. Disbursement Profile