x
MongoliaAustraliaDevelopment Cooperation Program
Australian Scholarships
Program Design Document
21 January 2008
1
Mongolia- Australian Scholarships Program – Design Document
Table of Contents
Map of Mongolia………… …………………….…………………………………………... / vAbbreviations and Acronyms ………………………………………..…..……….……... / vi
Executive Summary………… ……………………………………………………….……. / viii
1 Preparation Steps
1.1 / Background………. ……………………………………..………..…...... ….. / 11.2 / Design team and method ……….…………….……………………...... ….. / 1
2 Analysis
2.1 / Development context…….…………………………….……………….………….…. / 22.1.1 / Country setting………………………………………………..……………………... / 2
2.1.2 / Government of Mongoliahuman resource development priorities………... / 2
2.1.3 / AusAID’s development assistance program……………..…….….……………. / 3
2.1.4 / TheAid Policy Framework…………………………………………………………. / 4
2.1.5 / Key features of Australian Scholarships………………………….……………... / 4
2.1.5.1 / Australian Leadership Awards…………………………………….…….. / 4
2.1.5.2 / Australian Development Scholarships………………………….…….… / 5
2.1.5.3 / Endeavour Awards……………………………………………...……….. / 5
2.1.5.4 / Other Australian Scholarships………………………………….…….…. / 5
2.2 / Problem Analysis…………………………………………..…..…..………………...... / 6
2.2.1 / Building institutional capacity…………………….…………………………….... / 6
2.2.1.1 / Targeting specific public sector institutions……………………….….… / 6
2.2.1.2 / Demand for more technical skills…………………………………..…… / 7
2.2.2 / Extending scholarships beyond the public sector ……………………….…… / 8
2.2.3 / English language ……………………………………………………………….…… / 9
2.2.4 / Harmonisation and alignment………… …………………..……………………… / 10
3 Implementation Strategy Selection and Options considered
3.1 / Targeting strategies …………………………………………………………………… / 113.1.1 / Targeting both institutions and specific fields of study..…………………… / 11
3.1.2 / Selection of target institutions………… …………………..…………………… / 12
3.1.3 / Assistance in HRD and ‘provisional’ targeting………… …………………….… / 14
3.1.4 / Associated agencies………… ……………………..…………………………….… / 14
3.1.5 / Selection of priority fields of study for applicants outside targeted institutions……………………………… ……………………..………… / 14
3.1.6 / Targeting categories of civil servants and other employees……………….… / 15
3.2 / Pre-departure preparation including English language training…………….… / 16
3.3 / Strategic planning………………………………….………..…….…………………... / 16
3.4 / Program transition………………………….…………………………………….….... / 17
3.4.1 / The scholarship cycle………….………………………………………………….… / 17
3.4.2 / Maintaining effective processes and relationships..……………...... … / 17
3.4.3 / Monitoring and evaluation..……………………………………….……………… / 18
3.5 / Program duration and phasing……………………………………….……………... / 18
3.6 / Flexible delivery…………………………….…………………………………………. / 18
3.7 / Contracting strategy…………………………….………………………………….… / 20
3.8 / Australian potential to contribute through scholarships……………………… / 20
3.9 / Lessons learned……………………………………………………………………….. / 21
4 Program Description
4.1 / Program characteristics………………………………………………………….…. / 234.1.1 / Program focus and targeting principles……………………………………….… / 23
4.1.2 / Target agencies.……… ……………………………………………………………... / 24
4.1.3 / Targeted fields of study.……… ……………………………….………………..…. / 24
4.1.4 / Levels of study.……… ……………………………..…………………..……….….. / 25
4.1.5 / Scholarship numbers.……… ………………………..…………………………….. / 25
4.1.5.1 / Number of scholarships available from 2010…………………………… / 25
4.1.5.2 / Number of scholarships in the transition years………………………… / 26
4.1.6 / English Language and academic preparation…….………………………..…... / 27
4.1.7 / Selection process……………………………………………………..……………… / 28
4.1.7.1 / Selection process for ADS Category 1……………………………….… / 29
4.1.7.2 / Selection process for ADS Category 2……………………..………...… / 30
4.1.7.3 / Action planning ……………………………………………….………...… / 32
4.1.8 / Eligibility and selection criteria………………………………….….……………... / 32
4.2 / Purpose and objectives……………………………………………………………...... / 34
4.3 / Component structure and outputs……………………………..…………….……… / 35
4.4 / Resources and costs…………………………………………………..………….…… / 42
4.4.1 / Managing Contractor …..……………………………………………...………….... / 42
4.4.2 / Other scholarship costs and budget management…………….....…………... / 43
4.4.3 / Government of Mongolia……..………………………………………………….…. / 44
5 Monitoring and Management Strategies
5.1 / Governance arrangements…………………………………………………….……… / 455.2 / Management arrangements………….………………………………..…………….… / 47
5.3 / Reporting requirements………………………………………………………….….... / 47
5.4 / Monitoring and evaluation…………………………….……………………………… / 48
5.4.1 / Main features of the MongoliaAustralia Scholarships M & E Framework…. / 48
5.4.2 / M&E Strategy for the overall Australian Scholarships program……….…….. / 50
5.4.3 / Major responsibilities and implications for the Contractor…………….…..…. / 52
5.4.4 / Monitoring contractor performance……..………………………..………………. / 55
5.4.5 / Post award evaluation…….…………………………………………………………. / 55
5.5 / Alumni………….………………………………..……………………………………...… / 59
5.6 / Risks and risk management……………………………………………………….…. / 59
6 Feasibility, Gender Equity and Sustainability
6.1 / Manageability of the program ………………………….……………………….…... / 606.2 / Gender implications…………………… ………………….………..….………..…... / 60
6.3 / Sustainability………………………………………………………………………..…. / 61
Appendices
Appendix 1 / Terms of reference ……………………….……….…….……………….….. / 62Appendix 2 / Design timetable and agencies/persons consulted...... / 72
Appendix 3 / Aide Memoire …………………….………………….…………….…………. / 76
Appendix 4 / Mongolian ADS student statistics …...... … / 81
Appendix 5 / Guidelines for Annual Strategic Review...... / 86
Appendix 6 / Risk Matrix…...... / 88
Appendix 7 / Stakeholder Roles and Responsibilities Matrix...... / 95
Appendix 8 / Templates/documents for the next phase of the scholarships program...... / 101
Appendix 9 / Indicative personnel roles & terms of reference for specialist advisers...... / 102
Appendix 10 / Contractor performance monitoring questionnaire ………..… / 107
Appendix 11
SEPARATE FILE [DIAGRAM] / M&E Framework outline
Appendix 12
SEPARATE FILE [EXCEL] / Implementation schedule
SEPARATE DOCUMENTATION:
EXCEL FILE : WORKSHEETS LINKED BY FORMULAS / Cost Assumptions Schedule.Resources Schedule
Cost Schedule
WORD FILE / Schedule 1: Scope of Services
Schedule 2: Basis of Payment
EXCEL FILE :
WITH FORMULAS / MongoliaADS – Financial Modelling Tool:
Table 1: ADS Scholarships Funded by Intake 2008-2013
Table 2: Financial Year Estimates for ADS 2007/08 – 2012/13
Table 3: impact on Total Mongolian Program 2007/08 – 2012/13
Table 4: Total ADS Costs under Key Options 2007/08 – 2012/13
Table 5: Total Mongolia Costs under Key Options 2007/08 – 2012/13
Map of Mongolia
Abbreviations and acronyms
ACM / Academy of ManagementACOM / Arts Council of Mongolia
AP / Action Plan
APPU / Annual Program Performance Update
ADS / Australian Development Scholarships
ALA / Australian Leadership Awards
ALAS / Australian Leadership Awards Scholarships
ASG / Australian Scholarships Group
AusAID / Australian Agency for International Development
AYAD / Australian Youth Ambassadors for Development
BOM / Bank of Mongolia (Central Bank)
CaBSAF / Targeted CapacityBuilding & Small Activity Facility
CabSec / Cabinet Secretariat of the Prime Minister's Department
CMU / CarnegieMellonUniversity
DAC / Development Assistance Committee (of the OECD)
DE / Distance Education
DEMO / DemocracyEducationCenter
DPM / Deputy Program Manager
DEEWR / Department of Education, Employment and Workplace Relations
DIAC / Department of Immigration and Citizenship
EAP / English for Academic Purposes
ELT / English Language Training
EOI / Expression of Interest
ESPF / English for Special Purposes Foundation
FCC / Facility Coordinating Committee
GOM / Government of Mongolia
GSC / Government Service Council
HRIC / HumanRightsInformationCenter
IAP / Introductory Academic Program
IDC / Interdepartmental Committee
IMF / International Monetary Fund
IELTS / International English Language Test System
MECS / Ministry of Education, Culture and Science
MGAs / Mongolian Government Agencies
MOFA / Ministry of Food and Agriculture
MOFE / Ministry of Fuel and Energy
MOH / Ministry of Health
MOIT / Ministry of Industry and Trade
MOJHA / Ministry of Justice and Home Affairs
MONE / Ministry of Nature and Environment
MOP / Manual of Procedures
MOSWL / Ministry of Social Welfare and Labour
MC / Managing Contractor
M & E / Monitoring & Evaluation
MFA / Ministry of Foreign Affairs
MOF / Ministry of Finance
MOH / Ministry of Health
MWGs / Ministry Working Groups
MWGF / Ministry Working Group Forum
MTR / Mid-Term Review
MWFA / Mongolian Women Farmer’s Association
NCOCI / National Chamber of Commerce and Industry
NGO / Non Government Organisation
ORM / OngghiRiver Movement
PCR / Program Completion Report
PDT / Pre-Departure Training
PSLP / Public Sector Linkages Program
RFT / Request for Tender
SAS / Small Activity Scheme
SDC / Swiss Agency for Development and Cooperation
SIMON / Student Information Management System
TBD / To Be Determined
TOR / Terms of Reference
UH / University of Humanities
UNDP / UN Development Program
UOW/CTCP / University of Wollongong/Centre for Transnational Crime Prevention
Executive summary
Background and development context
CaBSAF has allocated 14 ADS awards annually and has placed 49 ADS scholars in Australian universities since August 2003. 23 graduates have returned to their Ministries and there have been no failures. Two Mongolian candidates obtained ALA scholarships in 2006.
Stakeholders consulted by the design team expressed strong support for the continuation and expansion of the scholarships program. The Australian Government’s Aid Policy Framework emphasises the value of well-targeted scholarships with proper gender balance as a highly effective form of aid that empowers people from developing countries to drive their own national development and reform agendas based on an informed understanding of a developed economy.
The Mongolian Government’s development priorities highlight the need to strengthen the capacity, as well as the accountability, of public service institutions and civil servants. A longer-term National Development Strategy is currently being developed, which will reinforce this priority and emphasise the sustainable development of specific sectors, such as mining and agriculture, and the important role of the private sector.
During his visit the Minister for Foreign Affairs announced that the number of scholarships will double by 2010 and will reflect the increasing emphasis given by the GOM to these sectors. Australia has strong comparative advantages in these fields and an interest in cooperation through the private sector to complement assistance to the public sector.
Scholarship numbers
During the next 5-year phase of the Scholarships program a total of 28 ADS will be awarded annually by 2010. Support will also be provided for Mongolia’s participation in ALA scholarships and fellowships under the Australian Scholarships banner.
Targeting
The expanded ADS component of the new Australian Scholarships program will retain an emphasis on targeting public sector institutions, and extend the range of sectors covered by scholarships in line with the above-mentioned priorities.
Award categories
There will be two categories of ADS scholarships, both of which will be targeted:
Category 1, targeted on priority public sector institutions, with the fields of study identified by Ministry Working Groups based on HRD plans (around two thirds of ADS awards annually);
Category 2, targeted on priority fields of studyand open to eligible employees in government agencies and Mongolian private firms, NGOs and universities (around one third of ADS awards annually).
Sectors
Most of the Mongolian stakeholders consulted by the team highlighted the need to develop expertise in sectors such as mining and agriculture, where the private sector plays a major role, and many identified specific areas where high-level technical expertise is missing particularly in Mongolian firms. The significant expansion in the number of scholarships provides an opportunity to extend eligibility to the private sector and, where relevant to NGOs in specified fields of study.The number going to the public sector will increase.
Universities
The new program will also provide opportunities for teaching staff in public and private universities to compete for scholarships in the specified fields of study. Especially in new fields where many graduates are needed, upgrading or establishing new Mongolian university programs can be a cost effective means of building capacity in the medium term.
New targeted ministries
Under Category 1, scholarships will continue to be available (for the time being) to the existing 8 targeted institutions and associated agencies, subject to annual review. These remain priority areas for the Mongolian Government and these organisations have been successful in selecting and reintegrating graduates. Category 1 will also include four ‘provisional’ members – the Ministry of Food and Agriculture, Ministry of Industry and Trade, Ministry of Fuel and Energy and the Ministry of Health (as well as their associated agencies).
The list of Category 1 institutions will be reviewed annually: (a) to consider whether the ‘provisional’ organisations have developed adequate HRD planning processes (with some assistance); (b) to consider emerging priorities; (c) to review the continuing priority for scholarships for existing targeted ministries (some have already benefited from a significant number of scholarships); and (d) to keep the number in the 10-12 range.
Fields of study
Category 2 scholarships will be restricted to specified fields of study, which will also be reviewed and specified each year as part of a Strategic Review. The specified fields of study will initially include mining engineering, resource economics, environmental studies, renewable energy, coal technology, biotechnology, agricultural economics, infectious plant diseases, actuarial studies, epidemiology and teaching methodologies for English language.
Scholars under Category 2 will be selected by a single panel on a competitive basis across these fields of study, and will be required to enter into agreements to return to their current employment. Employer support will be an essential criterion and employers (including universities and private firms) will be required to sign agreements to re-employ graduates in relevant positions for a minimum of 2 years.
Program characteristics
Levels of study
ADS awards will be for study in Australia at Masters level. Flexible delivery modes such as distance education where offered by Australian tertiary institutions under approved ADS guidelines will be considered. Study at PhD level will be addressed through the ALA program.
English language training
Up to 9 months of in-country English Language Training (ELT) will continue to be provided in Mongolia to those ADS awardees who do not when selected have the required level of English language skills needed to gain direct entry to courses at Australian tertiary institutions. The ELT will be provided by a sub-contractor selected through a competitive tender process.
Transitional arrangements
Transitional budgeting and management arrangements will ensure a smooth transition from CaBSAF to the new program. Overall management of the new program by a MC will be tendered based on this design.
Purpose and objectives
The design brings all the various scholarship schemes under one in-country management framework. The key aims of Australian Scholarships are to strengthen partnerships and links between Australia and other countries in the Asia-Pacific Region and to target leaders – those that can either promote or influence reform.
The strategic vision for the Mongolia Australia Scholarships Programaddresses broader corporate developments in relation to scholarships while at the same time reflecting the Mongolia-specific elements of the ADS program. The purpose and objectives of the new Mongolia Scholarships program are:
Program Purpose:
To contribute to enhanced capacity in priority Mongolian Government Agencies and priority economic sectors through expanded access to higher education and training and relevant professional linkages in Australia.
Program Objective 1:
To help address the human resource needs of targeted Mongolian Government Agencies and priority economic sectors through increasing the number of graduates with high level technical and professional Australian qualifications.
Program Objective 2:
To enhance opportunities for knowledge-sharing and institutional linkages between Australia and Mongolia.
Strategic review
The design provides for an Annual Strategic Review meeting involving AusAID, key GOM counterparts and other Australian agencies to help define and adjust as necessary the strategic directions for the Program including targeting. This will facilitate effective responses to emerging GOM priorities and broader AusAID corporate initiatives.
Selection process
Current joint AusAID/GOM ADS selection processes are effective and transparent, involve strong GOM agency ownership through Ministry Working Groups and will continue to apply in the new program phase. The enhanced ADS targeting approach is designed to maintain this transparency.
Governance arrangements and strategic planning
The new program will have governance and coordination arrangements enabling both governments to deal systematically with broader policy and management issues. A Program Coordination Committee will replace the Facility Coordination Committee but have a similar role and membership. An Annual Strategic Review will be conducted by the designated coordinating authorities. The Ministry Working Group Forum including the head of each Ministry Working Group will continue to play an important role.
Monitoring and evaluation
The Aid Policy Framework gives prominence to the need to strengthen the performance orientation of the Australian aid program. Monitoring and evaluation approaches build on the comprehensive ADS M&E framework and strategies developed by CaBSAF and align with the overarching Australian Scholarships M&E Framework.
Resources
The Contractor managing the new program will provide a notional mix of 3 staff including a part-time international Program Manager and a full time Deputy Program Manager located in a suitably equipped office in Ulaanbaatar to deliver a broad level and range of services to support AusAID with the management in-country of ADS and ALA scholarships and several other Australian scholarship programs. Short term expertise in areas such as M&E and human resource planning for newly targeted agencies may be sub-contracted locally or overseas.
Sustainability
Sustainability will be addressed through good practice selection approaches involving strong GOM ownership. The continuation of the current effective measures involving formal agreements with employers and scholars and the use of action plans will give graduates the opportunity and incentive to apply their knowledge and skills. Targeting of scholarships to key agencies and fields of study will also promote sustainability by ensuring a better ‘fit’ with the comprehensive development agenda of the GOM.
1
Mongolia-Australian Scholarships Program – Design Document
1 Preparation steps
1.1 Background
The Australia’s Aid Policy Framework emphasises the value of well-targeted scholarships with proper gender balance as a highly effective form of aid that empower people from developing countries to drive their own national development and reform agendas based on an informed understanding of a developed economy. A new scholarships program under the Australian Scholarships banner provides for a new category of awards known as Australian Leadership Awards (ALAs) and also incorporates Australian Development Scholarships (ADS) and Endeavour Awards.
In addition to ADS, ALA and Endeavour Awards, Mongolia is eligible to receive awards under other sponsored scholarship arrangements offered by: the Australian Centre for International Agricultural Research (ACIAR); the Centre for Transnational Crime Prevention at the University of Wollongong (UOW/CTCP); Carnegie Mellon University (CMU) in Adelaide; and the Australia-IMF Scholarship Program for Asia. Mongolia is a targeted beneficiary under the latter program. These various arrangements cover whole-of-government interests while providing Mongolia with more choices and greater flexibility in enhancing its human resource capacity.
1.2 Design team and method
A four person design team conducted an 11 day field mission from 19 to 29 June to develop design documentation for the next phase of the Mongolia Australia Scholarships program. Details are in the terms of reference at Appendix 1.
The team met with a range of stakeholders including AusAID staff in Canberra and Beijing; Mongolian government and non-government agencies; other scholarship donors; ADS alumni; and staff of the Mongolia-Australia Targeted Capacity Building & Small Activity Facility (CaBSAF). The team’s work was informed by the directions set in the on Australian aid; announcements by the Australian Minister for Foreign Affairs and Trade during his April 2007 visit to Mongolia; a range of other ADS program studies and designs; AusAID corporate initiatives in relation to the Australian Leadership Awards (ALAs) and the outcomes of a mid-term review of CaBSAF in 2006. The design timetable and the agencies and persons consulted are at Appendix 2.
The design team was asked to describe actions required by CaBSAF in its final year to ensure continuity between the two programs. This is addressed in Section 3.4. Additionally, given that some ADS costs for the first intake under the new Program will be covered under the CaBSAF budget, the team was asked to provide the essential budget calculations as well as projections based on current and anticipated CaBSAF commitments designed to enable an intake of 28 new ADS scholars by 2010. The phasing of future ADS scholarship intake numbers based on these calculations is shown in Section 4.1.5. The underlying cost calculations and projections have been submitted separately to AusAID in the form of a Financial Modelling Tool.