GSP/TAQADUM) Final Report

GOVERNANCE STRENGTHENING PROJECT (GSP/TAQADUM) Final Report

DECEMBER, 2017 This publication was produced for review by the United States Agency for International Development. It was prepared by Chemonics International Inc.

GOVERNANCE STRENGTHENING PROJECT (GSP/TAQADUM) Final Report

USAID Contract No. AID-267-C-11-00006

The author’s views expressed in this publication do not necessarily reflect the views of the United States Agency for International Development or the United States Government. ii Contents CONTENTS

CONTENTS...... III

FOREWARD...... 1

INTRODUCTION...... 5

GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES ...... 17

TOOLS AND FRAMEWORKS ...... 29

LESSONS LEARNED...... 63

LEGACY...... 73

CONCLUSION...... 93

LEFT: Yet another direct result of GSP/Taqadum’s Service Delivery Improvement Plan (SDIP) work in the provinces, workers complete repairs to school desks. © CHEMONICS

INSIDE FRONT COVER: Yet another direct result of GSP/Taqadum’s Service Delivery Improvement Plan (SDIP)support work in the provinces, workers complete renovations at a school. © CHEMONICS Contents iii GSP/TAQADUM GSP/TAQADUM

Chief of Party Cameron Berkuti USAID/Iraq, Governance Strengthening Project GSP/Taqadum (“moving forward” in Arabic) New Year’s Eve Message to Staff, 2016-2017.

iv FOREWARD FOREWARD

After six years of implemen- efforts have and will continue tation, the USAID/Iraq GSP/ to make government entities Taqadum project leaves a respect the people’s wishes and legacy for the Iraqi people for desires for services and at the generations to come of bring- same time continue to pave the ing the government closer to way to ensuring transparent and the people. By continu¬ing to accountable governance. create hope for many desper- ate young people in this country As we are seeing, who do not see a viable future, decentraliza¬tion is happening the project built people’s trust in Iraq and, against all the odds, in their democrat¬ic system and is beginning to remedy the elected officials. The decentral- ills of corrup¬tion, economic ization system we are working instability, and inadequate, on with our Iraqi partners and hard-to-access, and in some local and federal governments cases, absolute, lack of much- is built on a sound and practical needed, life-stabilizing services. foundation, despite the enor- The GSP/Taqadum project staff mous political, secu¬rity, and can take pride in being respon- economic challenges. This de- sible for contributing to build- centralization project may end, ing a foun¬dation and moving but the legacy of empowering forward a paradigm shift that is people to make decisions, build opening a previously closed and their communi¬ties, and im- seemingly impenetrable system. prove services will have an un- Provinces are beginning to com- ending and sustain¬able effect. pete with each other to provide The project team’s dedicated, better services, as they sharpen loyal, committed, and tireless their focus on economic and

FOREWARD 1 In cooperation with GSP/Taqadum, members of Ninawa’s Field Technical Team (FTT) develop an after-liberation checklist, and identify needs and immediate response actions.

2 FOREWARD private sector development and and management between the create new jobs. More impor- provincial Financial and Admin- tantly, the provinces and of- istrative Affairs Directorates ficials within them are beginning (AFADs) and the Ministry of to commu¬nicate with each Finance; opening operational other; sharing and comparing and investment accounts in the ideas, tools, and solutions; and Financial and Administrative Af- discussing what works and what fairs Directorates; and trans- doesn’t. Their goal is to move ferring ministerial directorates the country for¬ward in the budgets to provincial budgets. best way possible. AFADs will now receive and redistribute grants, allocated by The biggest achievements this the Ministry of Finance and ap- year have been the break- proved by concerned ministries, through workshop on Octo- to self-financed departments. ber 28-29 with the Ministry of For GSP/Taqadum, this was a Finance, which included several monumental final step in the provincial governments and project’s efforts to make decen- high-level officials including tralization sustainable. the deputy minister of finance, Council of Representatives I also know in my heart of Financial Committee members, hearts that through the team’s the prime minister’s economic efforts — working 24/7, day advisor, and the chair for the and night with the “So What” High Commission for Coordina- motto in mind and heart — the tion among Provinces Secre- legacy of GSP/Taqadum is guar- tariat. Participants agreed on anteed to be unforgettable. the organizational structure

FOREWARD 3 GSP/TAQADUM

Baghdad Provincial Council Chairman Riyadh al-Adhadh

4 INTRODUCTION CHAPTER ONE INTRODUCTION

In September 2011, the United rebuild their homeland. Togeth- States Agency for Interna- er, these elements laid a solid tional Development (USAID) foundation for administrative launched Governance Strength- decentralization, which by the “The transfer of ening Project GSP/Taqadum. end of the project, was wel- authorities depends Designed to strengthen the comed and accepted by most capacity of local governments federal and local government on two principles: to respond to citizen service entities, including Prime Minister one is democracy, needs by bolstering relationships Haider Al-Abadi and other high- and accountability between level notables. the fact that the local provincial councils (PCs) and council is elected. The their constituents, GSP/Taqadum Originally slated as a 33-month had a remarkable six-year run. project (September 2011 – June second is transparency, Unusual for USAID-funded proj- 2014), GSP/Taqadum worked which is represented ects, this longevity is attributed with the 16 provinces of Anbar, to the project’s high level of and Babil, Baghdad, Basrah, Dhi Qar, by smoothing the numerous successes, as well as Diwaniyah, Diyala, Erbil, Karbala, procedures to deliver the commitment, dedication, Kirkuk, Maysan, Muthanna, and stamina of its staff — 99 Najaf, Ninawa, Salah ad Din, and the best services to percent of who were Iraqi and Wasit, and three of the seven citizens.” lived in all of Iraq’s provinces. citizen-centered service minis- An Iraqi-born Chief of Party tries slated for decentralization: BAGHDAD PROVINCIAL and Deputy Chief of Party were Education, Health, and Munici- COUNCIL CHAIRMAN RIYADH AL-ADHADH among the project’s five expatri- palities and Public Works (which ates. Both had immigrated to was later merged with the the United States and Canada, Ministry of Construction and respectively, in their youth, only Housing to become the Minis- to return in 2003 to repair and try of Construction, Housing,

INTRODUCTION 5 GSP/TAQADUM

and Public Municipalities). Early The first extension (May 2014 successes and the Iraqi govern- - April 2015) saw GSP/Taqa- ment’s decentralization mandate dum shift its objective — to for a devolution of authorities the point of becoming a new from the country’s central minis- project — to focus on admin- tries to provincial governments istrative decentralization of the by August 2015 set in motion same three of the seven minis- the first of the project’s three tries (mentioned above) slated extensions, as well as a com- for decentralization: the minis- plete shift in focus. tries of Education, Health, and Municipalities and Public Works, [Note: This report represents the but only five (initially) tar- period from July 2014 through geted provinces: Babil, Baghdad, the project’s September 2017 Diwaniyah, Najaf, and Wasit. end date. The original 33-month This work involved identifying, period (September 2011 – June analyzing, and finally transferring 2014) and its final achievements these three ministries relevant can be found in a separate final authorities to these five provinc- report dated July 2014, Deliver- es, while adhering to the proj- able No. XX.] ect’s ultimate goal of providing better services to Iraq’s citizens.

6 INTRODUCTION MAP 1. GSP/TAQADUM’S INTERVENTION

INTRODUCTION 7 With this new mandate to sup- Ministry of Planning, the Prime port Iraq’s scheduled August Minister’s Office, High Commis- 2015 devolution of powers from sion for Coordination between federal ministries to provincial Provinces (HCCP), Council of governments, provinces were Representatives (COR), and primed to accept the authority related entities. and embrace the responsibility of improving public services for Although the Ministry of Finance citizens. GSP/Taqadum man- (MOF) was among the eight agement and leading technical ministries designated in Law 21 team members moved early on to be decentralized, considered to prepare themselves for the a hard nut to crack it was not task ahead and identified staff included at first in the project’s resources and adjusted their Year 6 extension. However, departmental plans as needed. due to Iraq’s financial challenges In late October 2014, two ad- and based on a request by the ditional provinces — Diyala and Iraqi government, GSP/Taqa- Kirkuk were added to GSP/Taqa- dum eventually worked with dum’s work plan, bringing the the MOF developing financial number of targeted provinces systems and processes at the to seven. provincial level that would sustain the decentralized system of In May 2015, a second extension governance. saw the remaining eight provinces of Anbar, Dhi Qar, Diyala, GSP/Taqadum’s addition of the Karbala, Maysan, Muthanna, MOF to its work plan proved Ninawa, and Salah ad Din added to be crucial to ensuring ac- to the project’s work plan, ceptance of the project-de- bringing the number of provinc- veloped fiscal decentralization es targeted to 15. In July 2016, implementation processes and the project received a third ex- roadmap — the crux of all de- tension representing an unprec- centralization efforts and their edented sixth year of funding. sustainability — and opened The associated revised work floodgates that set in motion plan added another four service related strides of historical pro- delivery ministries targeted by portions. Iraq’s decentralization mandate — Agriculture, Construction Throughout these extensions and Housing, Labor and Social and expansions, GSP/Taqadum Affairs, and Youth and Sport maintained two components: — and included partnering activities with local authorities Component I: Institutional in the 15 targeted provinces and Strengthening — Institutionalize central-level counterparts at core authorities and respon- the above-mentioned targeted sibilities of provincial and local ministries (thus working with a government total of seven ministries), as well as with the Ministry of Finance, Component II: Executive and, to a lesser degree, the Oversight — Provincial and lo-

8 INTRODUCTION cal elected officials hold execu- Governor’s Office (GO) capac- tive ministries accountable for ity and oversight mechanisms. improved services GSP/Taqadum activities were Iraqi-led and supported govern- Under each component, the ment and civil society efforts to project promoted provincial and strengthen the responsiveness local government institutional of provincial and local govern- development to build construc- ments to meet community tive Provincial Council (PC) and needs.

EXIBIT 1. GSP/TAQADUM PROJECT PHASE TIMELINE

Phase I Phase II Phase III Phase IV

Provinces Provinces Provinces Provinces • Anbar • Kirkuk • Anbar • Anbar • Kirkuk • Anbar • Kirkuk • Babil • Maysan • Babil • Babil • Maysan • Babil • Maysan • Baghdad • Muthanna • Baghdad • Baghdad • Muthanna • Baghdad • Muthanna • Basrah • Najaf • Basrah • Basrah • Najaf • Basrah • Najaf • Diwaniyah • Ninawa • Diwaniyah • Diwaniyah • Ninawa • Diwaniyah • Ninawa • Diyala • Salahaddin • Diyala • Diyala • Salahaddin • Diyala • Salahaddin • Erbil • Wasit • Erbil • Erbil • Wasit • Erbil • Wasit • Karbala • Karbala • Karbala

October 2011 - April 2014 May 2014 - April 2015 May 2015 – June 201? July 2016 – September 2017 Ministries Ministries Ministries Ministries MOH MOH MOH MOA MOE MOE MOE MOYS MMPW MMPW MMPW MOLSA MOCH MOF MOE MOH MMPW

INTRODUCTION 9 BACKGROUND

Beginning with its launch in 2011, In doing this, GSP/Taqadum was USAID/Iraq’s GSP/Taqadum guided by the following six main project engaged with provincial steps: leaders to increase accountability and transparency in local gov- 1. Forming and training provin- ernance and improve provincial- cial task forces and sectoral level service delivery. The key committees element throughout the project has been building the capacity of 2. Identifying and diagnosing the local government to better “as is” situations related to provide services to its citizens. functions, roles, relationships, GSP/Taqadum made advances in structures, laws, regulations, building the capacity of provin- and instructions within local cial governments to plan and directorates and their rela- deliver services with the par- tionships with the targeted ticipation of their constituents. ministries, GOs, and prov- Designed to transfer knowledge inces and strategies through innovative standardized systems and 3. Defining, analyzing, categoriz- effective methodologies, the ing, and assigning ministerial project worked side-by-side functions to the appropriate with provincial leaders and their level of government based on staff to develop a unique and comprehensive criteria and wide-ranging set of tools. The elements based on a project- transfer of these tools, process- developed process, called es, and methodologies to local Decentralization and Map- governments ensures replication ping and Analysis Planning and will sustain Iraq’s provin- (DMAP). cial government organizational structure far into the future 4. Developing financial, adminis- — thus benefitting citizens for trative, and legal frameworks generations to come. for the transfer of functions

Leveraging technical expertise, 5. Discussing and agreeing on decades of shared experience, the functions mapped and and a deep commitment to those to be transferred be- supporting Iraq’s decentraliza- tween central and provincial tion process in ways best for governments the country and its citizens, the project’s goal was to prepare 6. Building the capacity of pro- plans whereby Article 45 of Law vincial directorates and GOs 21, as amended, (also known as to receive and perform the the Provincial Powers Act 2008 functions transferred effi- or Transfer of Functions Law), ciently and effectively would be implemented. Law 21 of 2008 was amended a second time in August 2013

10 INTRODUCTION to include the Provincial Pow- understanding of service-related ers Act, which articulates a legal issues and are able to deliver framework for administrative higher-quality services in more decentralization. A seminal superior and transparent ways. event that greatly influenced This transfer also makes these GSP/Taqadum’s direction to entities accountable to their the point of becoming a new constituents. project, passage of this second amendment mandated that The passage of the Provin- governance be decentralized by cial Powers Act amendment delineating certain powers to presented a unique window of the provincial levels of govern- opportunity for the U.S. government. This mandate enabled ment to sustain and deepen its the provinces to enact pro- investment in local governance vincial legislation, regulations, and provincial service delivery. and procedures; and transfer At the same time, it repre- suitable technical, legal, and sented an urgent challenge for administrative powers or min- USAID to maximize provincial isterial “functions” of the eight capacity building in an admit- targeted ministries to provincial tedly short time frame and governments in all provinces not where corruption and gaps in incorporated into a region. capacity still pervade provincial- level legal, financial, and human Where Iraq’s citizens were resource systems. receiving essential services from directorates within central GSP/Taqadum developed a Law government ministries, under 21 Road Map in 2014 that was decentralization citizens re- adopted at all provincial levels of ceive these services from these government. This unprecedent- ministerial directorates once ed consensus anchored project they were transferred from activities, which were backed by the ministries to the provinces. a May 2014 modification to GSP/ Essentially, this transfer put Taqadum’s contract that made delivery of services in the hands its new mandate official: to help of provincial government enti- set the stage for administrative ties, which due to their proxim- decentralization in Iraq. ity to citizens, have a greater

GOALS AND OBJECTIVES MAJOR ELEMENTS GSP/Taqadum worked with 15 for decentralization: Education, targeted provinces: Anbar, Babil, Health, and Municipalities and Baghdad, Basrah, Dhi Qar, Di- Public Works at first, then later waniyah, Diyala, Karbala, Kirkuk, adding Agriculture, Construc- Maysan, Muthanna, Najaf, Nina- tion and Housing, Labor and wa, Salah ad Din, and Wasit); Social Affairs, and Youth and and the eight ministries targeted Sports, and finally the Minis-

INTRODUCTION 11 GSP/TAQADUM

try of Finance to develop and cooperation with the various implement plans for administra- levels of government to apply tive decentralization, based on these plans and frameworks, Law 21, as amended. This work as well as to build their capac- consisted of two major compo- ity and systems to successfully nents: and sustainably complete the transfer process. • Transfer of Functions — develop/implement an Inter- • Delivery of Citizen-centered governmental Coordination Community Services — de- Implementation Plan (ICIP) velop/implement Service by way of consensus, which Delivery Improvement Plans identifies tasks, services, and (SDIPs) with the goal of im- competencies to be gradually proving the lives of the Iraqi transferred from the federal people. GSP/Taqadum worked to provincial level of govern- in cooperation with local gov- ment, based on Article 45 of ernment entities to complete Law 21, as amended, and sup- and apply plans that ensure ported by legal, administra- delivery of citizen-cantered tive, and financial frameworks. services (Municipality, Sewer, GSP/Taqadum worked in Water, Primary Education,

12 INTRODUCTION Primary Health Care, Voca- identified and drafted amend- tional Training, Orphanage, ments to Iraqi laws and regula- and Youth services) in provin- tions in conflict with and block- cial communities. ing full enactment of Law 21, as amended. This involved: 1) These two components com- Identifying and writing amend- bined — the transfer of func- ments for the three originally tions and the delivery of citizen- targeted ministries; and 2) rep- centered community services licating that work for the four — are agents of stability and added ministries. This led to: 1) security that GSP/Taqadum laid instituted legal mechanisms that the foundation of and will foster facilitated implementation of the the sustainable, and peaceful transferred functions; 2) deter- coexistence of all Iraqis. This in- mination of a horizontal and cluded partnering activities with vertical accountability frame- local authorities in 15 provinces, work; and 3) helped establish and central-level counterparts at Administrative and Financial Af- the eight targeted ministries, as fairs Directorates (AFADs) and well as the Ministry of Planning; Local Revenue-generation Units Prime Minister’s Office; HCCP; (LRUs) in each targeted prov- Supreme Audit Board; COR, ince. In addition, GSP/Taqadum, and related government entities. in cooperation with the provinces, facilitated implementa- GSP/Taqadum followed a tion of the short-term solutions roadmap mechanism that was listed in the project-developed directed by the following tools Service Delivery Improvement and frameworks: Plans (SDIPs), which improved service delivery and were based • Decentralization Mapping and on the provinces’ adoption of Analysis Planning (DMAP) a project-developed Service Delivery Improvement Stan- • Legal dard Performance Management System. • Financial GSP/Taqadum’s impact is evident • Organizational Development not only in the ministries and offices of their provincial Director- • Service Delivery Improve- ates, GOs, and PCs, but even ment Planning more so on the ground and in the day-to-day lives of Iraq’s These roadmap elements facili- citizens. Positioned directly at tated the transfer of functions this intersection, GSP/Taqadum to the provinces and developed provided wide-ranging and ef- an organizational structure that fective assistance, while working is now used in each of the 15 with Iraqi government entities targeted provinces, along with to ensure the sustainability and roles and responsibilities for legacy of this highly complex their GOs, PCs, and provincial and comprehensive project. directorates. GSP/Taqadum also

INTRODUCTION 13 GSP/TAQADUM

The Neel sub-district Youth Action Committee recruited youth of all ages to participate in its volunteer cleanup campaign. The committee coordinated the event with the Neel Municipality.

SUCCESS STORY Babil’s Popular Youth These youth activation committee campaigns Activation Committees undertaken in Neel and Qasim Sub-districts are Bring Out Volunteers significant in that they represent the first time and Develop Future youth have conducted volunteer activities Leaders in coordination with the local government. Becoming well known BABIL Engaging youth in com- developed Service Delivery and popular within their munity activities and local Improvement Planning (SDIP) communities, thanks governance is an important part process for the Youth and Sport to their tremendous of developing future leaders. Sector, are coordinating with outreach and In Babil, eight youth activation local government to implement participatory efforts, the committees have been estab- volunteer activities for the good committees promise to lished across four Districts. of their communities. These committees, established be sustainable. in cooperation with GSP/Taqa- In May 2017, youth of varying dum as part of the project- ages from the Neel Sub-district

14 INTRODUCTION participated in a volunteer edge Path Festival by presenting cleanup campaign organized by a play focused on developing a their local youth activation com- sense of responsibility among mittee. Planning and conducting youth toward community needs the campaign in coordination and raising youth awareness of with the Sub-district govern- community issues. ment of Neel, particularly the Municipality, all those who The Babil Directorate of Youth participated were volunteers. and Sport shared the event on Conducted under the slogan its Facebook page: https://m. “Volunteer Clean-up Campaigns facebook.com/storyphp?story_ are an Indication of a Sophis- fbid=1953637601572280& ticated Society,” the campaign id=100007781771106 was well received by other youth activation committees in These youth activation com- Babil, all of which then planned mittee campaigns undertaken similar campaigns in their areas. in Neel and Qasim sub-districts are significant in that they Photos of the campaign’s activi- represent the first time youth ties can be found here: have conducted volunteer activities in coordination with https://m.facebook.com/story. the local government. Becoming php?story_fbid=4618642241482 well known and popular within 78&id=100009741129862 their communities, thanks to their tremendous outreach and Qasim sub-district’s youth acti- participatory efforts, the youth vation committee participated in activation committees promise its community’s weekly Knowl- to be sustainable.

INTRODUCTION 15 GSP/TAQADUM

Participants of GSP/Taqadum Phase II Streamlining Processes training workshops in Erbil.

16 GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES CHAPTER TWO GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES

Valued by counterparts for its areas. Below are GSP/Taqadum’s political neutrality, responsive- main achievements in support of ness to current and oft-times the Iraqi government’s decentral- changing needs, and caliber of its ization efforts. technical and management staff, GSP/Taqadum worked hand-in- DECENTRALIZATION MAP- hand with the Iraqi government PING AND ANALYSIS PLANS at the federal and provincial (DMAPs): All 15 provinces have levels to help establish a success- adopted DMAPs for their seven ful foundation for decentraliza- targeted ministries (not includ- tion efforts. These efforts have ing the Ministry of Finance) aligned with the Iraqi Constitu- and relevant directorates. Each tion and Law 21, as amended, province sent an official request and have led to improved deliv- to the High Commission for ery of services to Iraqi citizens. Coordination between Provinces Project interventions include Secretariat asking for action to activities in Administrative, Legal, be taken to enable the ministries Financial, Organizational Devel- to complete transfer of functions opment, and Service Delivery as agreed. A total of 816 func-

GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES 17 tions were analyzed and mapped the GOs and staff of the provin- for 18 directorates of the seven cial Directorates of Agriculture, devolved ministries. As a result Education, Health, and Youth of the DMAP and follow-up and Sport. AFAD staff in these focus group meetings, capacity provinces is fully trained on all building needs of the provincial procedures, including standard governments to perform the auditing procedures, in coopera- devolved functions were deter- tion with the Supreme Audit mined, and a capacity building Board (SAB), and have been pro- plan was developed and imple- vided with all forms needed to mented. effectively manage the financial affairs of their provinces. MINISTERIAL TRANSFERS TO PROVINCIAL DIRECTOR- INVESTMENT AND OPERA- ATES: Four of the targeted TIONS BUDGETING: Twelve ministries — Agriculture, Educa- provinces (Babil, Baghdad, Bas- tion, Health, and Youth and rah, Dhi Qar, Diwaniyah, Diyala, Sport — transferred directorate Karbala, Kirkuk, Maysan, Muth- staff and financial allocations to anna, Najaf, and Wasit) gained the provinces. At a July 16, 2017, required skills and knowledge meeting of the HCCP, Prime on procedures and processes Minister Haider al-Abadi set a for integrated provincial Invest- 30-day deadline for the Ministry ment and Operations budgeting, of Construction, Housing, and in accordance with the adopted Public Municipalities to complete investment, and Operation and its transfer. It is anticipated that Maintenance (O&M) budget the three remaining targeted procedures and manuals de- ministries — Agriculture, Labor veloped and institutionalized in and Social Affairs, and Munici- cooperation with GSP/Taqadum. palities and Public Works — will (The target was 10 provinces.) follow suit soon. The provinces The O&M budgets of the eight handled the transference of provinces of Anbar, Baghdad, Dhi staff of the ministries of Agri- Qar, Diyala, Kirkuk, Muthanna, culture, Education, Health, and Najaf, and Wasit were sent to Youth and Sport smoothly, and the Ministry of Finance. their salaries and other related functions, all of which are now GOVERNOR’S OFFICE OR- managed by the GSP/Taqadum¬- GANIZATION STRUCTURE: developed Administrative and The GOs in all 15 provinces Financial Affairs Directorates redesigned their organizational (AFADs) operating in 12 prov- structures and developed and inces. (Ten were targeted.) implemented management models capable of effectively manag- ADMINISTRATIVE AND ing the 18 transferred provincial FINANCIAL AFFAIRS DI- Directorates. (Eight provinces RECTORATES: AFADs were were targeted.) This includes established in all 15 provinces. implementation of e-Commu- In 12 provinces, the AFADs are nication systems in the nine processing salary payments for provinces of Baghdad, Basrah,

18 GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES GSP/TAQADUM

Dhi Qar, Diyala, Karbala, Kirkuk, PROCESS MAPPING AND Muthanna, Najaf, and Wasit. STREAMLINING OF SERVICE DELIVERY PROCEDURES: By PROVINCIAL PLANNING GSP/Taqadum’s end, 67 ministe- AND DEVELOPMENT COUN- rial and 176 provincial sector CILS (PPDCs): In cooperation citizen-centered service delivery with GSP/Taqadum, the HCCP functions/services procedures Secretariat launched the newly were process-mapped, stream- restructured PPDC configuration lined, standardized, and posted approved by Prime Minister Dr. (only by the Directorates, not Haider al-Abadi. The 11 provinc- the ministries). In addition, 143 es of Babil, Baghdad, Basrah, Dhi citizen-centered functions/ser- Qar, Diwaniyah, Diyala, Karbala, vices in eight Directorates (of the Maysan, Muthanna, Najaf, and three initially targeted ministries), Wasit have established PPDCs and GOs and PCs were process- in accordance with this new mapped, streamlined, standard- structure, and the PPDCs in the ized, and posted in both public six provinces of Babil, Baghdad, areas and the media. Dhi Qar, Diwaniyah, Diyala, and Najaf have begun work. ENABLING LEGAL ENVIRON- MENT: The PCs and/or GOs in

GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES 19 GSP/TAQADUM

A Water Directorate worker oversees operation of the newly installed compact water treatment unit transferred from Al-Kahla’a District to Alf Dar.

“We no longer have to SUCCESS STORY buy tanker water,” said resident Kasim Dagher. Water Flows into “It is a great relief.” Homes of Low-Income Echoing this sentiment, resident Um Mohammed and Poverty-Level said, “Before the installation of this Families compact unit, we would not have water for up On September 3, GSP/Taqadum February 2016 for low-income to three days, when it joined Essential Service Deliv- and poverty-level families. An would rain. The water ery Oversight working group estimated 5,000 people cur- tankers could not access members and conducted a site rently live in Alf Dar, which our neighborhood. visit to Alf Dar (Arabic for 1,000 suffers from a lack of services, Now, we have water houses) community, located 20 including those of education, continuously flowing into kilometers south of Amarah, in electricity, health, and water. the city center of Maysan. The our homes.” local government constructed Due to Iraq’s ongoing economic the 1,000-house community in crisis, the community was not

20 GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES supplied with a compact water no longer have to buy tanker treatment unit to pump drinking water,” said resident Kasim Da- water to households. This left gher. “It is a great relief.” Echo- residents needing to buy tanker ing this sentiment, resident Um or bottled drinking water, which Mohammed said, “Before the added a burden to their already installation of this compact unit, limited income. we would not have water for up to three days, when it would In June 2016, the Water Service rain. The water tankers could Delivery Improvement Plan not access our neighborhood. Implementation Committee Now, we have water continu- (SDIPIC) developed in coopera- ously flowing into our homes.” tion with GSP/Taqadum, oversaw implementation of long-term The solution to transfer the solution # 5: “Installation of a compact water treatment unit Compact Water Unit in Antici- instead of buying a new one pation of Population Growth,” signals a significant success, in cited in the Water Directorate’s terms of improving the delivery Service Delivery Improvement of drinking water to citizens and Plan. Implementing this solution therefore engendering commu- involved the Water Director- nity appreciation and satisfac- ate’s transfer of a water com- tion, as well as showcasing the pact unit from Al-Kahla’a district strength of the Water Direc- to Alf Dar. The site visit verified torate’s SDIP-related resource satisfactory implementation of management. Given that instal- this solution, thanks to the unit’s lation of a new water compact capacity of 240 cubic meters an treatment unit in Alef Dar hour has seen the water cover- would have cost the directorate age indicator increase to 100 1.7 billion Iraqi dinars, the trans- percent. fer has provided great savings to the local government. Residents interviewed expressed relief and satisfaction GSP/Taqadum’s official video on regarding the quantity and Alf Dar can be viewed here: continuity of drinking water https://youtu.be/bBV8Zg5mtzM supplied to their homes. “We [Length: 2:29 minutes]

GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES 21 all 15 provinces drafted pro- SERVICE DELIVERY IMPROVE- posed amendments to the laws MENT PLANS IN 12 PROV- in conflict with decentralization INCES FOR SERVICE AREAS and referred them to the HCCP IN THE SEVEN MINISTRIES: Secretariat, Council of Ministers, A total 112 SDIPs (the target and/or COR. In addition, GSP/ was 96) were developed in 12 Taqadum developed seven legal provinces (the exceptions being mechanisms used by provin- Anbar, Ninawa, and Salah ad cial governments to perform Din) in the transferred sectors of the transfer functions. Twelve seven ministries as follows: provinces have adopted all seven mechanisms. • Babil, Basrah, Diyala, Kirkuk, and Maysan: Each province DISTRIBUTION OF INTER- developed one SDIP for each GOVERNMENTAL RELA- of eight targeted sectors: TIONSHIPS AND ACCOUNT- Health, Education, Water, ABILITY: Roles, responsibilities, Sewer, Municipality, Youth, and authority relationships were Vocational Training Centers defined between Governors (VTCs), and Orphanage Care and Directors of the transferred in the central cities of the Directorates. provinces.

ACCOUNTABILITY AND • Baghdad: Developed 19 OVERSIGHT: Accountability and SDIPs as follows: in addition technical relationships between to one SDIP for each of the the national and provincial gov- eight targeted sectors, Bagh- ernments were defined via nu- dad developed an additional merous GSP/Taqadum-developed five SDIPs for education models. Between seven and 14 (Baghdad has six education provinces adopted these models. directorates), one for health In addition, the GSP/Taqadum- (Baghdad has two health developed, online Social Ac- directorates), two for youth, countability System and related two for agriculture (non-tar- program were adopted by 12 geted service delivery sector), provinces and implemented in and one for VTC. eight. • Diwaniyah, Najaf, and Wasit: SERVICE-BASED PERFOR- Each province developed MANCE MANAGEMENT SYS- one additional SDIP for the TEM: This system was adopted agriculture sector. by the eight provinces of Babil, Dhi Qar, Diwaniyah, Karbala, • Dhi Qar and Karbala: Each Maysan, Muthanna, Najaf, and province developed one addi- Wasit, and is used to develop tional SDIP for the municipali- SDIPs based on standards, crite- ties sector (outside the center ria, service gaps, implementation, city of the provinces). monitoring, and follow-up. • Muthanna: Developed eight SDIPs: seven for the targeted

22 GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES sectors (the exception is VTC adopted monitoring and over- because the province does sight standard operating proce- not have any VTCs), and one dures developed in cooperation for the agriculture sector. with GSP/Taqadum.

[Note: GSP/Taqadum’s end state TRASH COLLECTION MAN- deliverables targeted 648 short- AGEMENT SYSTEM (TCMS): term solutions to be implemented. An effective and efficient TCMS However, the project implemented was developed by GSP/Taqadum 715 solutions, representing a 110 and was successfully implement- percent success rate regarding ed in the six provinces of Bagh- targeted solutions and far surpass- dad, Karbala, Kirkuk, Maysan, ing expectations.] Najaf, and Wasit.

ESSENTIAL SERVICE DELIV- POST-DISASTER SERVICE ERY OVERSIGHT EXPANSION RESTORATION CAPACITY TO YOUTH AND SPORT, BUILDING: Provincial capacity VOCATIONAL TRAINING to address post-disaster service CENTERS, AND ORPHAN- restoration was built in five AGE CARE: Twelve provinces provinces: the four ISIL-afflicted (the exceptions being Anbar, provinces of Anbar, Diyala, Nina- Ninawa, and Salah ad Din) wa, and Salah ad Din; as well as expanded their essential service Wasit, which showed a specific delivery oversight efforts to in- interest in the topic and directly clude orphanage care, VTC, and affected by Internally Displaced youth and sport services, and Persons (IDPs).

GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES 23 GSP/TAQADUM

(Left to right) Volunteer Basmat Al-Amal; GSP/Taqadum Service Delivery Specialist Uday Mohammed; Al-Adhameyah Orphanage Headmistress Iman Nasir; and USAID COR, Mr. Abdul Kareem Kasim discuss the outdoor renovations of the orphanage.

SUCCESS STORY Private Sector Companies, NGOs, “It is important to care for the underprivileged,” and Citizens Work said USAID/Iraq COR, Mr. Abdul Kareem Together to Repair and Kasim. “I commend Ms. Nasir, her team, Renovate Baghdad’s Al- GSP/Taqadum’s team, the volunteers, and Adhameyah Orphanage the organizations that made donations and committed to such an BAGHDAD The children who Labor and Social Affairs held a important cause.” call Al-Adhameyah Orphanage public meeting and shared the home are excited about ongo- Service Delivery Improvement ing renovations and repairs Plan (SDIP), developed in coop- made possible thanks to the eration with GSP/Taqadum, ad- generosity of their community. dressing solutions that had been Soon after the Directorate of identified to make Baghdad’s

24 GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES orphanages more hospitable. Basmat Al-Amal NGO (Imprint One proposed SDIP solution of Hope) removed the rubble said that coordinated efforts and cleaned outdoor areas, should be made with local and transforming them into a garden international organizations to and playground, and painted secure the necessary resources the entire interior with bright to repair and renovate the colors and fun murals, as well orphanages. The Directorate’s as the external walls and curbs. outreach efforts to, and coordi- Professionals from the commu- nation with, NGOs, private sec- nity made the needed repairs, tor entities, and citizens proved particularly to the plumbing in to be successful in securing the bathroom and the air condi- the badly needed assistance. tioning units. Organizations and citizens were generous and more than happy On May 31, USAID/Iraq Con- to donate time and materials tracting Officer Representaty- to improve the orphanage and ive (COR), Mr. Abdul Kareem bring smiles to the children’s Kasim joined GSP/Taqadum faces. Service Delivery Specialist Mr. Uday Mohammed and met Built in the 1950s, Al-Ad- with Headmistress Iman Nasir hameyah Orphanage had not to review the progress of the been renovated since 2001. renovations and repairs. Ms. The entire building needed to Nasir took the lead coordinat- be repainted, the outdoor play ing with the international and area was filled with trash and local organizations, as well as unusable, electrical and plumb- citizens from the community to ing repairs were required, new make the Al-Adhameyah dream furniture was needed, and there a reality. was not enough space to meet the demand of orphaned chil- “It is important to care for the dren in need of a home. Despite underprivileged,” said Mr. Kasim. the enormity of the task, high “I commend Ms. Nasir, her temperatures, and long days of team, GSP/Taqadum’s team, the Ramadan fasting, all work was volunteers, and the organiza- completed in record time. tions that made donations and committed to such an impor- Kia Motors of Baghdad donated tant cause.” swings for the playground and two caravans to add housing Photos of the renovations have space. Al-Merjan Company been posted on the orphanage’s donated all the indoor and out- Facebook page: https://tinyurl. door paint. Volunteers from the com/y86xrgrb

GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES 25 GSP/TAQADUM

Wasit Deputy Governor, Mr. Rashid Edan (c) points to areas to be targeted by the implementation of GSP/Taqadum’s Trash Collection Management System, developed in cooperation with local government officials.

SUCCESS STORY Thanks to a cooperative Trash Collection Wasit’s Use of Management System (TCMS) initiative e-Communication between GSP/Taqadum, Wasit’s Governor’s Moves Trash Collection Office (GO), and the Kut Municipality citizens can Management System now access the names of their trash collector Into the Future and trash collection supervisor, along with A growing population, rapid ment. An estimated 31,000 tons their phone numbers, economic growth translating of solid waste is produced daily, and neighborhood into increased personal incomes, with per capita daily waste gen- garbage pickup times and ongoing sectarian conflicts eration estimated at between and terrorist activities have 0.8 and 1.4kg. Baghdad alone and days. created enormous challenges produces in excess of 1.5 million for Iraq’s solid waste manage- tons of solid waste yearly. Rapid

26 GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES growth in solid waste produc- responsible Sector and its tion combined with inadequate supervisor trash collection services, has put • Route lengths (shortest and increasing strain on an outdated longest) and mismanaged infrastructure The advantages of this amazing heavily damaged by years of technology are myriad. conflict. Citizens: A true technological advance • Know the day and the time was initiated in Iraq this week as of pick-up schedules and their Wasit launched an online Trash home garbage pickup route Collection e-Monitoring service number available to both citizens and • Can call and place a comment government entities - the first of or complaint with the trash its kind countrywide. Thanks to collection supervisor if pickup a cooperative Trash Collection is late, doesn’t come at all, or Management System (TCMS) if the garbage truck does not initiative between GSP/Taqadum, take its determined route Wasit’s Governor’s Office (GO), • Will come to know their and the Kut Municipality citizens trash collection driver and su- can now access the names of pervisor through their photos their trash collector and trash which are fixed to the end of collection supervisor, along each route with their phone numbers, and • Can hold the Municipality ac- neighborhood garbage pickup countable if there is a prob- times and days. lem or if the garbage truck does not follow the deter- Thanks to the cooperation of mined routes GSP/Taqadum Service Delivery specialists who, working with Government: provincial trash collection staff, • The e-Monitoring system will used Google’s “My Map” service assist in recording (inventory) to draw and then number the and numbering processes. garbage truck routes in the • Assist the identification of neighborhoods targeted in Wa- problems given route num- sit’s pilot TCMS, with a simple ber can help pinpoint exactly click of their mouse or touch of where problems are occur- their Smart-phone, anyone can ring access the Trash Collection e- • Improve the waste collection Monitoring website and see the service via “Solid Waste Col- following: lection Route Optimization” • Monitor service performance • Start and end points of these of waste pick-up and garbage routes truck operation to better • Registration panel of garbage identify defects in the TCMS trucks service • Day and the time of trash pick-up schedules • Phone numbers of the

GSP/TAQADUM MAIN ACHIEVEMENTS/ DELIVERABLES 27 GSP/TAQADUM

GSP/Taqadum’s Service Delivery Improvement Plan (SDIP) work, done in cooperation with Iraq’s provinces, improves delivery of citizen- centered services.

28 TOOLS AND FRAMEWORKS CHAPTER THREE TOOLS AND “Decentralization means FRAMEWORKS to distribute the roles, responsibilities, authorities, and financial resources between the Decentralization. Even those GSP/Taqadum Chief of Party federal and local most knowledgeable in the Cameron Berkuti had an an- governments. The international community do not swer. Iraqi-born with years of quite understand what decen- experience as a project manag- federal government tralization is or what is involved er in Kuwait and Iraq, and later assumes the strategic in implementing it in real terms. after migrating to the United This is understandable given States, as an assistant city engi- role and sets national each country’s decentralization neer in National City and public policies, while the efforts must meet its situation- works director in La Mesa, ally-specific needs, which differ San Diego County, California, local government is greatly. Although charged with he returned to Iraq in 2003 to responsible to provide implementing decentralization rebuild his homeland. Rolling by law, Iraqi government officials up his sleeves, he spent more the required services met this assignment with skepti- than a decade working with since they are close to cism, hesitation, and questions: many USAID, Army Corps of What is decentralization? How Engineer, and State Department their citizens.” will it manifest? Will it take projects. Who better to address GSP/TAQADUM CHIEF power away from those who decentralization and its focus OF PARTY CAMERON have it now, or worse, transfer it on supplying better services to BERKUTI to those incapable of appropri- Iraq’s people? ately carrying out the associated responsibilities? How exactly will decentralization materialize?

TOOLS AND FRAMEWORKS 29 TOOLS “The project conducted FACT-FINDING TRIP TO INDONESIA a visit for 20 select Mr. Berkuti’s prescient plan- challenges, pitfalls, and benefits federal and local Iraqi ning abilities saw him organize a of a decentralized system in fact-finding trip for select federal action. This important first step officials to Indonesia, and local Iraqi government of- set the stage of GSP/Taqadum’s which shifted to ficials to Indonesia, which had approach to decentralization begun its rapid transition from and development of tools and decentralization in a strongly centralized system frameworks, chief among them, 2004. The officials to a decentralized one in 1999. the project-developed, Decen- There, the Iraqi officials met tralization Mapping and Analysis spent 10 days engaged with their Indonesian counter- Planning tool, or DMAP. in examining federal parts and discussed the many and local systems.” DECENTRALIZATION MAPPING AND ANALYSIS CHIEF OF PARTY BERKUTI PLANNING (DMAP) To implement decentraliza- and department; 3) organization in Iraq, it was necessary tional structures and functions to: 1) first analyze functions of each Directorate and GO; 4) of the directorates within the then-current core services and ministries that fell under the delivery status; 5) all functions mandate of Law 21 of 2008, of the targeted ministries, in- as amended; and then: 2) to cluding criteria, current resourc- determine which Directorates, es, and skill sets in each relevant functions, and equipment should office; and 6) capacity needs of be transferred to the provinces staff, as well as properties to be and which would remain at transferred. the ministerial level. Entering new territory for which no The DMAP identified and listed precedent existed, GSP/Taqa- the many functions within each dum recognized that provincial ministerial Directorate, staff- leaders would need to deeply ing numbers, and equipment understand the structures, func- used. It then determined which tions, responsibilities, resources, of these should be transferred and day-to-day workings of each and which should remain. The of the ministerial Directorates DMAP analysis was completed slated for transfer — before through regional GSP/Taqadum- their transfer, and how these hosted workshops with rep- Directorates would be consti- resentatives from the three tuted after their transfer. Using ministries of Education, Health, scientific methods,GSP/Taqadum and Municipalities and Public devised the DMAP tool, which Works; specialists from the reviewed and assessed 1) each provincial Directorates; and GO ministry’s laws, regulations, and and PC representatives from organizational structure; 2) each the seven provinces of Babil, Directorate and its vertical and Baghdad, Diwaniyah, Diyala, horizontal links with its ministry Kirkuk, Najaf, and Wasit. Once

30 TOOLS AND FRAMEWORKS this analysis was complete and effort included finding consensus these DMAPs approved, further on the road map used by the workshops were then held with first three ministries. representatives from the other eight provinces of Anbar, Bas- DMAP CLOSING “I would like to extend rah, Dhi Qar, Karbala, Maysan, STATEMENT my appreciation to GSP/ Muthanna, Ninawa, and Salah The results of GSP/Taqadum’s ad Din that shared the results of DMAP efforts met the proj- Taqadum for their huge work with the aforementioned ect’s main goals of: 1) ensuring efforts that created provinces, replicated their the ministries identified in Law DMAP work, and approved 21, as amended transfer their a good environment their respective DMAPs. functions, staff, and assets to for the transfer the provinces; and 2) build and Once all 15 provinces had enhance the capacities of the of authorities and completed the DMAP analysis, transferred directorates to identified mechanisms the results were unified and best assume these functions. reviewed by project special- The DMAP laid the foundation to this effect. The ists, presented to three min- for: 1) transfer of ministerial project classified istries and representatives of Directorates and related staff the provinces, the HCCP, and (Agriculture, Construction and functions and showed relevant COR committees that: Housing, Education, Health, us experiments in 1) determined the transfer and Municipalities and Public Works, transition periods 2) and, in Labor and Social Affairs, and other countries that cooperation with GSP/Taqadum, Youth and Sport); 2) capacity have transferred developed a road map for tran- building efforts that facilitated sition of these three ministries transferred Directorate staff’s authorities. All of with detailed steps for conduct- then-current ability to carry out this helped us to ing inventories and transferring the transferred functions trans- staff, assets and liabilities, funds, ferred effectively and efficiently; implement the article and records from the ministries 3) the proper defining of roles, specified in Law 21.” to the provinces. responsibilities, and technical relationships; 4) streamlining of BAGHDAD DEPUTY The project’s third extension in service procedures and devel- MINISTER OF July 2016 saw GSP/Taqadum rep- opment and implementation of ADMINISTRATIVE AFFAIRS YALMAZ licate this DMAP work with the strategic plans that have im- SHABAZ following four additional service proved services delivery; and 5) delivery ministries targeted by formation of Administrative and Iraq’s decentralization mandate: Financial Affairs Directorates Agriculture, Construction and (AFADs) and Provincial Plan- Housing, Labor and Social Af- ning and Development Councils fairs, and Youth and Sport. This (PPDCs) in the provinces.

TOOLS AND FRAMEWORKS 31 GSP/TAQADUM 32 TOOLS AND FRAMEWORKS FRAMEWORKS

GSP/Taqadum developed, learn about high-level concepts; worked within, and imple- and 2) on-the-job training under mented four decentralization guidance of five or six project frameworks: 1) Financial, 2) specialists embedded in each Administrative (Organizational provincial office who would Development), 3) Legal, and 4) meet daily with staff and walk Service Delivery Improvements. them through the financial, ad- This was done via: 1) periodic ministrative, legal, and manage- regional or national workshops ment tasks applicable to their where provincial staff would be technical areas. invited to Baghdad or Erbil to

FINANCIAL FRAMEWORK In accordance with GSP/Taqa- financing local services, fostering dum’s Local Financial Manage- local government accountability, ment Module of the framework, and improving service delivery. which was presented and Development of a clear and approved at the project’s Febru- reliable budgeting process will ary 2015 National Local Finance combine these revenues with Management Workshop held provincial resources transferred for provincial officials and repre- from or allocated by the federal sentatives from the ministries of government. Taken together, Health, Education, Municipalities these two functions should be and Public Works; Ministry of managed by a provincial financial State for Governorates’ Affairs; authority (Provincial Finance and Council of Ministers Secre- Management System) that will tariat; project finance specialists control resources, conduct worked with the 15 provinces financial planning, and oversee to implement the module in spending of budget allocations in stages. (Note: Due to the Minis- accordance with finance poli- try of Finance’s initial resistance cies and regulations. The three to the financial module, the major areas are defined below. module did not receive MOF support until August 2015.) F1. DEVELOPMENT AND IMPLEMENTATION GSP/Taqadum’s budgeting team OF A PROVINCIAL focused on three major areas, MANAGEMENT with progress differing in each SYSTEM — ADMIN- area according to each pro- ISTRATIVE AND vincial government’s capacities FINANCIAL AFFAIRS and resources. These areas are DIRECTORATE interrelated and combined, represent a practical and functional • The initial process of estab- Decentralized Financial Manage- lishing a provincial financial ment Framework. Creating a lo- management system was cal revenue system is critical to restructuring of finance staff

TOOLS AND FRAMEWORKS 33 roles and responsibilities and frameworks governing rev- establishment of provincial enue generation by providing AFADs responsible for 1) a roadmap and assisting them financing provincial director- in drafting local and national ates, 2) combining provincial laws to establish a local user- O&M budgets and tracking fee collection, management, execution, 3) performing and enforcement systems. auditing and financial control, 4) reporting to the MOF, and • The revenue-generation sys- 5) providing other related tem provides provincial gov- services as needed. ernments with a transparent means to collect and spend F2. DEVELOPMENT AND local revenue to meet com- IMPLEMENTATION munity service needs. This OF A LOCAL REVE- system also makes local gov- NUE-GENERATION ernment more accountable SYSTEM to its citizens. Having a local revenue-generation system • Establishing local revenue- in place, even a surcharge generation systems ensures system, and having access provinces are able to finance to local revenue increases devolved service delivery the accountability of pro- functions without total reli- vincial governments to their ance on federal government citizens. The service delivery funding. Revenue-generation incentives facing provincial activities include 1) develop- governments may improve if ing fiscal policy; 2) forming they have to raise their own Local Revenue-generation revenues through tax or user- Units (LRUs); 3) conducting fee increases, rather than economic-based line studies; relying on federal transfers. and 4) developing laws and In the long run, in addition to processes for using, managing, increasing accountability, local evaluating, and auditing the revenue generation-systems system. GSP/Taqadum trained reduce the blame attributed provincial governments on to the federal government for guiding principles, structures, poor service delivery. and collection mechanisms for user-fee and other rev- • Understanding the impor- enue collection. This included tance of local revenue gener- taking steps to create a ation as a means to support favorable legal environment service delivery, accountable to direct payments and ability, and citizen satisfaction, conduct public surveys that GSP/Taqadum’s local financial determine the willingness of management approach called constituents to pay for clearly for the establishment of LRUs identified services. Project responsible for reporting staff supported provincial on, financially managing, and governments in analyzing the eventually collecting local national and provincial legal revenues from within each

34 TOOLS AND FRAMEWORKS provincial GO. clear mechanism for identifying roles and responsibilities of all F3. DEVELOPMENT AND entities that participate in the IMPLEMENTATION budgeting process. Taken as a OF AN INVESTMENT whole, the 20-step process ends AND OPERATION with a monitoring and evalua- BUDGET SYSTEM tion process that feeds or cycles back into the next fiscal year’s Budget preparation, and bud- investment budget prepara- geting in general allows for the tion process. Unfortunately, the development of a spending plan absence of investment funds in based on provincial funds (on- the 2017 budget caused local hand or estimated) and ensures governments to begin to lose there will be enough funds interest in the implementa- available to support provincial tion of this process. However, expenses (planned or actual). thanks to the efforts of the The budget process requires project’s Service Delivery team, a prioritization of needs and a significant progress was made in balancing of income to expen- identifying the status of services ditures. in provinces and establishing realistic indicators to measure Since 2006, when the Acceler- services according to national ated Reconstruction Develop- standards; these are important ment Plan fund was launched, first steps in the formulation there have been many challeng- of the local investment budget. es facing the Investment Budget With the restructuring of the process in the provinces. GSP/ PPDCs, a window of opportu- Taqadum identified several of nity opened for local govern- these challenges, among them: ments to start working on the 1) a lack of coordination be- investment budget formulation tween the financial and technical process. As a result, PPDCs planning processes; 2) no clear have begun to play a critical role policy to drive the Investment in synchronizing planning efforts Budget process in the provinces; among provincial directorates to and 3) a lack of integration achieve the objectives of local among projects mentioned in policy and reach out to citizens the Investment Budget. The de- to fulfill their needs. centralization process provided the provincial governments with OPERATION AND opportunities to address these MAINTENANCE BUDGET challenges, as well as to plan SYSTEM (NEWLY ADDED and manage their budgets in an ACTIVITY) integrated manner. The O&M Budget is a major element of any financial man- To this end, GSP/Taqadum agement system. It represents proposed a 20-step process the backbone of the day-to-day to formulate a well designed, work in a directorate and allows integrated, and applicable that directorate to conduct its Investment Budget, as well as a duties related to the delivery of

TOOLS AND FRAMEWORKS 35 essential citizen-centered ser- Management Module, which en- vices, such as maintaining water abled provinces to gain reason- pumps or providing food and able control over their financial clothing for patients in hospitals. resources, including significant decision-making independence Formulation of an O&M Bud- on how to use those resources. get requires following a set of procedures as well as a flow of At its core, the module saw information between a direc- the establishment of AFADs in torate’s financial and technical all 15 provinces. GSP/Taqadum sections. GSP/Taqadum identified prepared roles and responsibili- several weaknesses in the then- ties for its sections, developed current O&M Budget formula- related job descriptions, and tion process that adversely offered several training courses affected service delivery to to AFAD staff that enabled citizens. To alleviate these weak- them to manage the new func- nesses, GSP/Taqadum developed tions they are now responsible and proposed a series of actions for. No easy task, it took some and procedures to enhance the time for the provinces to get O&M Budget’s formulation in MOF approval to establish and all targeted Directorates. These officially recognize their AFADs actions and procedures included as the entities responsible for all estimation of different mainte- directorates transferred to the nance expenses, goods require- provinces, provincial financial ments, and service require- functions, and monitoring and ments. controlling all financial transactions in the province. FINANCIAL FRAMEWORK CLOSING A second important module STATEMENT element: generation of local When GSP/Taqadum began revenues, saw GSP/Taqadum working on decentralization, propose a roadmap for local there was no clear vision of governments to start generating what could be done on the their own revenues, and to ad- fiscal side and tremendous dress the lack of PC ordinance pushback from the Ministry of drafting experience, project Finance regarding decentral- financial staff shared typical izing its functions. Justified to elements of a local revenue- a degree due to a fault in Law generation ordinance. To date, 21 and compounded by a lack nine provinces have passed local of international experience in revenue laws, and 13 have es- support of decentralizing MOF tablished L revenue-generation functions, a Financial Frame- units to manage and control work needed to be developed local revenues. that supported decentralization process without crossing To support the final module ele- the legal boundaries of MOF ment, Budget Formulation, GSP/ functions. As a result, GSP/Taqa- Taqadum presented a systematic dum proposed a Local Financial 20-step Investment Budget for-

36 TOOLS AND FRAMEWORKS mulation process that integrates CONCLUSION financial planning with technical There is still a lot of work to do planning processes. Combining at the federal and local levels on the processes of several local establishing a solid decentralized government entities into one financial system in Iraq. Given overall provincial Investment the correct application of these Budget process, the process first steps, we are confident the itself is now at the core of the process will continue. The Local PPDCs’ Investment Budget Financial Management Module formulation. requires additional shaping to make it more responsive to GSP/Taqadum gave special at- transferred directorates needs. tention to the other side of The relationship between the the planning process — budget AFADs and the MOF needs to formulating for operation and be clearer and more systematic. eminence needs — by develop- The assignment of revenues ing and providing better O&M and expenditures also must be Budget estimation tools, taking clearer and must give provin- into consideration the differing cial authorities a true role in needs of investment budgeting local generation powers. The and O&M budgeting. This effort investment budget formulation saw 12 provinces adopt these process has not been tested yet two processes. due to the financial crisis Iraq is experiencing.

ORGANIZATIONAL DEVELOPMENT FRAMEWORK Organizational Development is zational structure and identifying an ongoing, systematic process a management system that will of implementing effective struc- be able to develop a reporting tural change by using organi- system and relationships be- zational resources to improve tween and roles and responsibil- efficiency. It can be used to ities of, each of the key players. solve problems within the organization or to analyze processes Regarding work processes, all and find more efficient ways of organizations have them. For meeting goals. In GSP/Taqadum’s example: When an employee work, the process is designed wants a salary increase, what to enable the provinces to: is the process for making this 1) receive the departments request? i.e., to whom does he transferred to them from the or she make the request and ministries; 2) be smoothly linked when and from whom can he to the structure of the GO; and or she expect an answer? What 3) be more effective, efficient, is the process of the person and closer to Iraqi citizens. who receives the request? Who approves or disapproves the GSP/Taqadum strengthened the request? If it is approved, what GO by building a stable organi- is the process to ensure the

TOOLS AND FRAMEWORKS 37 employee actually receives the and others are combined, or increase? In this one example, their sequencing is changed. there are many steps, i.e., a Once this visualization of the “process” that needs to be fol- process occurred, Iraqi officials lowed. were able and will continue, to diagnose which steps need to Mapping such processes pro- remain and which need to be vides a common framework for discarded. Hence, streamlining all involved, one that not only to reduce the time needed for strengthens and clarifies the staff and citizens interested in lines of communication in an accessing a “service,” which is organization but also allows an the desired goal at the end of individual to easily understand the process. the roles and responsibilities of staff in the organization. Process For example, the process to mapping techniques focus first obtain permits to build a new on identifying, and then planning home might not be understood and implementing, improve- or even known by applicants. ments to each process, with the The streamlining analysis pro- goal of improving the organiza- vides results that reduce and/ tion’s efficiency levels. or reorganize the steps in the process and thus decrease the Once the steps of a given pro- time it takes to complete it. cess are identified and mapped, GSP/Taqadum’s decentraliza- they are analyzed and stream- tion work saw the steps of a lined. This involves collectively given process streamlined, then re-examining key steps and shared with all provinces for sub-processes with stakeholders adoption, and made public via — all the individuals who are government outreach and cam- involved with inputs and out- paigns to ensure transparency. puts of a specific process. The In some cases, the process has act of process mapping involves been placed online to allow citi- recording and preparing written zens greater and easier access. “as-is” steps that illustrate or In addition, applying online for visually “map” the entire pro- such items as building permits cess, as well as the resources, eliminates human interaction timeline, and external issues that and thus works to reduce cor- affect that process. Streamlining ruption. Also, documenting and involves questioning each step standardizing processes will al- of the process: Is this a relevant low for a continual organization- step? Does it comply with rules al learning system that can get and laws? Where is this step the work done in cases when placed in the overall sequence the person normally in charge of of steps? What resources are that area or task is absent or no allocated to support it? After longer employed. these questions and others are answered, the identified steps To this end, GSP/Taqadum in the process are simplified and worked in the following organi- reduced, some are eliminated, zational development areas.

38 TOOLS AND FRAMEWORKS GSP/TAQADUM

GSP/Taqadum Legal staff leading a working group in the process mapping of the service “Delegate Staff to Attend Workshops”.

A1. DEVELOPMENT OF A ORGANIZATIONAL PROVINCIAL ORGA- DEVELOPMENT NIZATIONAL STRUC- FRAMEWORK CLOSING TURE AND MANAGE- STATEMENT MENT MODEL Organizational Development is the processes of helping A2. BUILDING CAPAC- organizations improve through ITY IN PERFORM- changes in policies, power, lead- ING TRANSFERRED ership, control, or job redesign. FUNCTIONS Development of an organization can be achieved via a change A3. PROCESS MAPPING in communication systems or AND STREAMLINING support by various software CITIZEN-CENTERED applications. Employee behavior FUNCTIONS AND IN- patterns allow organizational CREASING CITIZEN development professionals to AWARENESS IN 12 monitor and examine cases and PROVINCES consider related modifications that can be put into practice to achieve effective organizational change.

TOOLS AND FRAMEWORKS 39 GSP/Taqadum’s Organizational rectorates that were targeted in Development team developed the project’s 13th Modification) an organizational structure for citizen-centered service delivery the GOs that matched require- functions/services procedures ments of Article 45. Working have been process-mapped, closely and in cooperation with streamlined, standardized, and the 15 targeted provinces, GSP/ posted (only in the Director- Taqadum developed a related ates, not by the ministries). In and suitable management model addition, 143 citizen-centered that was approved by Prime functions/services in eight Direc- Minster Dr. Haider Al-Abadi torates (of the three initially and now supports this approved targeted ministries), and GOs organizational structure, thus and PCs have been process- making it more efficient and mapped, streamlined, standard- effective. ized, and posted.

Regarding systems and in rela- CONCLUSION tion to the organizational struc- Unable to delve into a more ture cited above, GSP/Taqadum detailed structure, the provincial restructured Iraq’s PPDCs. The organizational structure ap- 11 provinces of Babil, Baghdad, proved by the Prime Minister Basrah, Dhi Qar, Diwaniyah, focused on main departments, Diyala, Karbala, Maysan, Muth- sections, and supported councils anna, Najaf, and Wasit have only. It would be ideal if a future established PPDCs in accor- project could develop a more dance with this new structure, detailed organizational structure and the PPDCs in Babil, Bagh- for the GO that addresses the dad, Dhi Qar, Diwaniyah, Diyala, Directorates and the relation- and Najaf have begun actively ships between the district and working. Initially formed by the sub-districts, and obtain re- Ministry of Planning in 2012 as quired approvals from the Prime advisory bodies, PPDCs were Minister and HCCP Secretariat. to be responsible for developing This would leave a great legacy and setting provincial policies — one that would steer decen- and providing technical advice tralization for decades to come. on the provincial development of strategies and plans. It is widely known that each However, due to an overly function may include several large number of members and services, and each complete unclear mandates, these original service may include many PPDCs were not effective or processes. GSP/Taqadum pro- sustainable. vided support to provincial officials from different sectors In addition, GSP/Taqadum dis- in the instruction and use of the seminated the use of process process mapping technique to mapping as a tool to streamline streamline procedures involved citizen-centered services. To in delivering services to citizens. date, 67 ministerial and 176 This was done by selecting provincial sectors (in the ten di- services (not a full function)

40 TOOLS AND FRAMEWORKS for each selected sector. Due project continue updating and to the project’s timeframe and reviewing the streamlined ser- approaching closeout, GSP/ vices to check for any changes Taqadum was not able to focus have occurred to authorities, on certain functions or process equipment, or supporting laws. map and streamline all related services and processes. In ad- And last, regarding the delay dition, the project was unable of forming federal civil service to meet all the requirements councils by the government, it is related to streamlining citizen- unfortunate that GSP/Taqadum centered services, especially could not support the targeted changing laws to clarify roles, provinces to develop the coun- responsibilities, and authorities, cils, which were to be formed in which in their current state have accordance with Law 4 of 2009. a negative effect on the delivery A future project can support of services to Iraqi citizens. The civil service council develop- project simply ran out of time ment and empower provincial and hope a follow-up project officials to secure its place in takes the lead on this. GSP/Taqa- local government. dum also recommends a future

LEGAL FRAMEWORK Implementation of decentral- advise; draft laws, rules, and ization requires a sound legal regulations; and follow-up on environment that addresses implementation of legislative transfer from centralization into actions. decentralization. • Identifying 55 national laws, To this end, GSP/Taqadum rules, and regulations that worked in the following legal conflicted with the admin- framework areas: istrative decentralization process of the targeted L1. ENABLING DECEN- ministries, essentially block- TRALIZATION ENVI- ing implementation of Article RONMENT 45 of Law 21 of 2008, as amended. Working collab- GSP/Taqadum legal specialists oratively with federal and built a legally enabling envi- provincial entities, particularly ronment for the transfer and the Provincial Legal Commit- performance of functions at a tees, GSP/Taqadum compiled local level through two parallel recommendations and related approaches: draft amendments to address and harmonize these conflicts • Assisting in the formation within the laws. and training of Legal Work- ing Units (LWUs) from PC To that end, GSP/Taqadum Legal Committees to re- selected four pilot provinces search, prioritize, analyze, and matched to the LWUs from

TOOLS AND FRAMEWORKS 41 their PC Legal Committees, AND PROVINCIAL GO legal sections, and legal GOVERNMENTS — staff in related Directorates by GOs, PCs, DIRECTOR- ministry affiliation, and worked ATES, AND CITIZENS with each, reviewing, research- ACHIEVEMENTS ing, prioritizing, and analyzing all related information in prepara- GSP/Taqadum developed a gen- tion for writing the first draft eral accountability framework amendments to laws in conflict that included seven mecha- with Law 21, as amended. nisms for vertical accountability mechanisms such as federal L2. DEFINE AND DE- authorities; and horizontal ac- VELOP ADMINIS- countability mechanisms such TRATIVE ROLES, as PC, Governor’s Office, and REGULATIONS, local departments. This frame- AUTHORITIES, AND work also defined the techni- RELATIONSHIPS BE- cal relationships between the TWEEN THE GOVER- transferred directorates and NOR’S OFFICE AND their counterpart ministries. The THE 10 NEWLY TAR- roles and responsibilities of each GETED DIRECTOR- of these entities were identified ATES in accordance with the public policies included in Article 2.1 Review of the seven 45. This general accountability GSP/Taqadum-proposed framework also includes clear legal mechanisms by definitions regarding the role which the transferred citizens and civil society orga- legal functions can be nizations have in holding local practiced. governments accountable for the services they provide. 2.2 Defining their roles, responsibilities, au- The following are the seven thorities, and working GSP/Taqadum-proposed legal relationships through mechanisms that were present- on-the-job training. Le- ed to the provinces, along with gal functions were then their status regarding review institutionalized in ac- and adoption. cordance with the GSP/ Taqadum-developed 1. Endorsement of Contracts, and proposed Roles, Undertakings, and Guar- Responsibilities, and antees — All PCs reviewed Authorities Distribution the GSP/Taqadum-proposed Model. Notary Public Author- ity draft legislation granting L3. DEVELOP MONITOR- legal staff in the transferred ING, OVERSIGHT, Directorates the authority to AND ACCOUNTABIL- ratify contracts, pledges, and ITY FRAMEWORK guarantees related to their AMONG NATIONAL Directorates. The 13 provinc-

42 TOOLS AND FRAMEWORKS es of Babil, Baghdad, Basrah, pared proposed draft legisla- Dhi Qar, Diwaniyah, Di- tion for eventual submission yala, Karbala, Kirkuk, Maysan, to its GO for adoption. Muthanna, Najaf, Ninawa, and Wasit have adopted the 5. Property Management — proposed draft legislation. The proposed Property The exceptions are Anbar Management draft instruc- and Salah ad Din. tions have been adopted by all 15 provinces: Anbar, Babil, 2. Legal Representation — Baghdad, Basrah, Dhi Qar, GSP/Taqadum provided a Diwaniyah, Diyala, Karbala, proposed Power of At- Kirkuk, Maysan, Muthanna, torney draft form granting Najaf, Ninawa, Salah ad Din, legal staff in the transferred and Wasit. Directorates the authority to represent their Directorate 6. Eminent Domain — The in court. The 13 provinces proposed Eminent Domain of Babil, Baghdad, Basrah, draft instructions were ad- Dhi Qar, Diwaniyah, Di- opted by the 14 provinces of yala, Karbala, Kirkuk, Maysan, Anbar, Babil, Baghdad, Basrah, Muthanna, Najaf, and Wa- Dhi Qar, Diwaniyah, Diyala, sit have adopted the draft Karbala, Kirkuk, Muthanna, mechanism. The exceptions Najaf, Ninawa, Salah ad Din, are Anbar and Ninawa. and Wasit. The exception is Maysan. 3. Administrative Investigation — GSP/Taqadum worked with 7. Contract Drafting — GSP/ all 15 targeted provinces on Taqadum developed a (draft) Administrative Investigation unified mechanism: Contract draft instructions. The draft Drafting, to exercise the instructions have been ad- contract drafting function and opted by the 14 provinces of submitted it to all provinces. Anbar, Babil, Baghdad, Basrah, The 12 provinces of An- Dhi Qar, Diwaniyah, Diyala, bar, Babil, Basrah, Dhi Qar, Karbala, Kirkuk, Muthanna, Diwaniyah, Karbala, Kirkuk, Najaf, Ninawa, Salah ad Din, Muthanna, Najaf, Ninawa, and Wasit. The exception is Salah ad Din, and Wasit Maysan. have officially adopted it and instructed all directorates to 4. Legal Counselling — The implement the instrument as Legal Counselling draft in- proposed by GSP/Taqadum. structions have been adopted The exceptions are Baghdad, by the 14 provinces of Anbar, Diyala, and Maysan. Babil, Baghdad, Basrah, Dhi Qar, Diwaniyah, Diyala, L4. PUBLIC POLICY DE- Karbala, Kirkuk, Muthanna, VELOPMENT Najaf, Ninawa, Salah ad Din, and Wasit. The remaining The concept of public policy- province, Maysan, has pre- making is relatively new to local

TOOLS AND FRAMEWORKS 43 Iraqi officials because ministries ment for administrative decen- have traditionally done most tralization, addressed the legal of the policymaking. Now, system and identified articles with the ongoing decentraliza- inconsistent or in conflict with tion process, the concept of implementation of decentraliza- policymaking has begun to be tion, and prepared amendments transformed. A final GSP/Taqa- that would ensure optimal dum workshop series prepared implementation of the func- local governments for their new tions transferred in accordance public policy development role, with provisions of Article 45. one that harmoniously brings Over the course of two phases, together federal and local levels GSP/Taqadum reviewed all laws of government. As result of regulating the work of the seven decentralization, the federal service delivery ministries cov- government should now shape ered by Article 45: Agriculture, public policies in cooperation Construction and Housing, Edu- with, and involvement of, the cation, Health, Labor and Social local governments. However, Affairs, Municipalities and Public there is not yet a commonly Works, and Youth and Sports. agreed-on definition of public policy and of how both levels of Phase 1: Assisted local govern- government should in practice ments to create and build the consult and involve each other capacity of legal teams to study when designing their policies. laws and legislations (collective groupings of laws) governing LEGAL FRAMEWORK the work of the Ministries of CLOSING STATEMENT Education, Health, and Mu- Since the beginning, the objec- nicipalities and Public Works, tive of GSP/Taqadum’s legal work and to review and analyze laws was to provide a proper legal relevant to the work of these environment for administrative ministries. Through this process, decentralization and build the 240 national laws, rules, and capacity of local governments regulations were analyzed, of to: 1) receive the functions which 35 were found to contra- transferred from the ministerial dict the provisions of adminis- to local levels; and 2) exercise trative decentralization and thus their roles in accordance with prevented the best exercise of the administrative decentraliza- the functions transferred from tion as per the provisions of the ministries to the provinces. Iraq’s Constitution (as amend- Of these 35, 20 regulated the ed) and Law 21 of 2008 (as work of the ministries men- amended). tioned, and 15 were general in nature regarding all of Iraq’s L1. ENABLING DECEN- ministries. Recommendations TRALIZATION ENVI- and amendments proposed RONMENT by 12 provinces were officially brought before the Council of To this end, GSP/Taqadum en- Representatives (COR) and the abled an external legal environ- Council of Ministers (COM) to

44 TOOLS AND FRAMEWORKS take the necessary measures to transferred authorities and ensure ideal implementation of functions and distribute them administrative decentralization between the Governors and in accordance with provisions the Directorate Directors; and of Law 21 and the 2005 Iraqi 2) work with the Governors to Constitution. develop legal mechanisms allowing for the practice of the legal Phase 2: Four provinces were functions transferred from the targeted to replicate the review ministries to the provinces. To and amendment development this end, GSP/Taqadum worked work completed in Phase 1 with with representatives from the remaining four ministries of the GOs and the transferred Agriculture (Wasit), Labor and Directorates to develop a Roles, Social Affairs (Babil), Construc- Responsibilities, and Authorities tion and Housing (Baghdad), Distribution Model between and Youth and Sport (Najaf). the Governors and Director- The results of this effort — 20 ate Directors aimed at helping initial draft amendments re- the Directors take responsibility lated to each ministry — were and manage their departments presented to all provinces in a without total reliance on the national workshop that included Governors for the issuance of representatives from all con- decisions related to their Direc- cerned provinces and ministries, torates. The following standards the federal government, and were used when considering the the HCCP. Recommendations distribution of authorities: developed during the workshop were then submitted by 15 • Authorities granted to the provinces to the COR, Council Directorate Directors by the of Ministers Secretariat, HCCP, Ministers before implementa- and relevant ministries. tion of Article 45 will be the minimum level of authorities L2. DEFINE AND DE- for the Director to assume. VELOP ADMINIS- TRATIVE ROLES, • Technical authorities are to REGULATIONS, be fully granted Directorate AUTHORITIES, AND Directors. RELATIONSHIPS BE- TWEEN THE GOVER- • Grant Directorate Directors NOR’S OFFICE AND financial, administrative and THE 10 NEWLY TAR- legal authorities to enable GETED DIRECTOR- them to manage their depart- ATES ments on a daily basis.

This involved GSP/Taqadum This model, been implemented focusing on enabling internal by most Governors and at local government legal environ- different levels, enables the ments to: 1) support Governors Governors to devote their time and Directors of the transferred to making key decisions and Directorates to regulate their focusing on more important

TOOLS AND FRAMEWORKS 45 supervisory, inspection, and • Technical relationships gov- province management planning erning the work of the trans- roles granted in accordance ferred functions and defining with the authorities laid out in the roles and responsibilities Article 31 of the Provincial Law. of each ministry and trans- GSP/Taqadum assisted the local ferred directorates governments in issuing direc- tives and legislations to support • Local monitoring and over- them to exercise the legal func- sight mechanisms within the tions mentioned above on page authorities of the governor XX. and PC

L3. DEVELOP MONITOR- • A clear role for citizens and ING, OVERSIGHT, civil society to play in terms of AND ACCOUNTABIL- holding the local government ITY FRAMEWORK accountable for services deliv- AMONG NATIONAL ered, promoting community AND PROVINCIAL accountability, and participat- GOVERNMENTS ing in local decision-making — GOs, PCs, DIREC- TORATES, AND Thanks to GSP/Taqadum ef- CITIZENS’ ACHIEVE- forts, the proposed Account- MENTS ability Model, which includes the above-mentioned points, GSP/Taqadum met and worked was adopted by 15 provinces on the preparation of a gen- and officially submitted to the eral accountability framework HCCP and relevant ministries. to determine implementation Local departments intend to mechanisms related to the func- apply this system in the greater tions transferred in accordance context of their work within with the public policies drawn their department and in relation by the federal ministries with to the transferred functions. representatives from the HCCP Secretariat, Council of Ministers In addition, 12 provinces have Secretariat, Supreme Audit adopted the e-Social Account- Board, Integrity Commission, ability System and related and Inspectors General. This program software developed effort ensured implementation by GSP/Taqadum, which saw a of decentralization and ensured surprisingly high level of broad the functions were transferred acceptance from the provincial in accordance with the general governments thanks to its many regulations and in line with pro- benefits, chief among them — visions of Article 45 of Law 21 support of local government and included the development transparency and responsive- of the following: ness to local needs and allowing citizens to hold their local • Mechanisms for federal au- governments accountable for thorities to hold local govern- services delivered. An impor- ments accountable tant tool, this e-Social Ac-

46 TOOLS AND FRAMEWORKS countability System organically Through this system, citizens are manifested as a direct result afforded a way to voice their of decentralization efforts to opinions, contribute to holding make local government more local government accountable, transparent and responsive to and take part in local decision- its constituents. A survey-based making. program, the e-Social Ac- countability System empowers The 12 provinces of Babil, citizens to take a more involved Baghdad, Basrah, Dhi Qar, Di- role in government proceedings waniyah, Diyala, Karbala, Kirkuk, by allowing them to evaluate the Maysan, Ninawa, Najaf, and quality of the services offered Wasit have adopted this model. by local government based on criteria they can access online and shows them the immediate results of their evaluation.

TOOLS AND FRAMEWORKS 47 48 TOOLS AND FRAMEWORKS SERVICE DELIVERY IMPROVEMENTS FRAMEWORK The heart of GSP/Taqadum’s of technical experts chaired by service delivery work focused the Governor or a Directorate- on improving delivery of vital related official. The task force services to Iraq’s citizens by reviews and provides the Devel- enabling local, provincial govern- opment Committee feedback ments to respond more effec- on possible modifications. Once tively and efficiently to needs the task force’s review process is of their communities. Local complete, the SDIP is submitted governments know best their to the Governor for adoption constituents needs. Citizens can and ready to be implemented. better monitor and hold accountable the actions of locally An SDIP Implementation Com- elected officials. mittee is then formed within the directorate to oversee GSP/Taqadum’s SDIP system the implementation process. involved the establishment of Chaired by the Governor or SDIP Development Commit- Deputy Governor, this committees in each provincial Director- tee prioritizes implementation ate. Consisting of Directorate of the solutions as short- and experts, these Development long-term. Available funding, Committees are chaired by that whether the solution will have Directorate’s planning depart- a quick or gradual impact, and ment manager. Their main each solution’s effect on its re- responsibility is to identify and spective “gap” are all taken into define objective and measur- consideration. The Implementa- able performance standards tion Committee then develops and indicators for each service two action plans — short- and that is then used by government long-term — with each outlining officials to realistically address how each solution will be imple- service management issues. mented and identifying by who, when, where, why, and how The Development Commit- each solution will be implement- tee measures the current or ed and begins implementing the “as-is” status of each service and solutions. compares it to the standard of what should be. The difference The Directorate informs the or “gap” between the standard Governor as each solution is and the as-is situation needs to implemented, and the province’s be closed for the standard to Essential Service Delivery Over- be reached. Solutions to close sight (ESDO) working group of these gaps are then developed technical experts undertakes a into an SDIP solution frame- monitoring process measuring work, which is then presented the effectiveness and efficiency to citizens for feedback through of each solution’s implementa- public meetings, surveys, and tion. The ESDO experts com- local government websites, and pare the current as-is indicator also sent to the GO task force data collected to the standard

TOOLS AND FRAMEWORKS 49 SUCCESS STORY Network Maintenance Prevents Annual Rainy Season Flooding and Sewer Backup

MAYSAN For the first time in many years, the 2017 spring rains did not back up sewage into, or flood the streets of Amara City thanks to implementation of a solution identified as part of the Service Delivery Improvement Plan (SDIP) developed by the Sewer Direc- torate, in cooperation with GSP/Taqadum. The solutions, just one of many identified in the SDIP, called for securing funds to conduct the much-needed annual sewer network maintenance. Presenting its case to the Governor’s Office and the Ministry of Construction, Hous- ing, and Public Municipalities, the directorate not only demonstrated the need, but also how, in the long run, proper sewer maintenance would prevent more costly repairs in the future. The Ministry agreed and provided $70,000 in emergency funds to cover the cost of the maintenance.

Maintenance efforts saw 14,500 meters of sewer pipe inspected and cleaned where necessary. Normally contracted out to private companies, maintenance of the sewer network, specifically preparation for the annual rainy season, had not been done due to financial constraints. Thanks to the identification of the SDIP solution that called for funding to be requested from the ministry, the network received maintenance in October 2016, which, much to the relief of Thanks to identification residents, resulted in zero flooding and no backed up sewers during of the SDIP solution Amara City’s 2017 rainy season. that called for funding to be requested from the Ministry of Construction, Housing, and Public Municipalities, the network received maintenance in October 2016 and Amara City’s 2017 rainy season saw no flooding or backed up sewers, much to the relief of residents.

50 TOOLS AND FRAMEWORKS and determine how much, if at local governments, and their all, the gap has changed. This Directorates are better able to information signals the success manage and improve the deliv- level of the solution’s imple- ery of service to citizens. mentation. Is the gap larger, the same, or has it been reduced? SERVICE DELIVERY IMPROVEMENT GSP/Taqadum strengthened local FRAMEWORK CLOSING government capacity in citizen- STATEMENT based service delivery through a When GSP/Taqadum began performance management sys- working with the provincial tem approach that resulted in: service Directorate employees, project Service Delivery staff • Development and implemen- found they did not have strate- tation of 102 Service Delivery gic plans to assist in improving Plans by eight sectors in 12 the level of services they were provinces that directly ben- providing to citizens. To address efitted 7,650,500 people this lack, the project focused on building the capacities of • Implementation of 577 short- these Directorates to prepare a term solutions strategic planning SDIP system that involved developing and • Development and implemen- implementing short- and long- tation of a Trash Collection term solutions to: 1) fill the gaps Management System in two in services; and 2) improving the pilot provinces that is now efficiency and coverage levels spreading throughout Iraq of these services. GSP/Taqadum Service Delivery staff assisted • Five provinces legislating the provincial governments’ the institutionalization of a implementation of 20 percent Service-Based Performance of the short-term solutions Management System identified based on this strategic planning system. It is hoped • Development of scientifi- the GSP/Taqadum SDIP system, cally based Service Delivery developed in cooperation with Performance Standards the provinces, will not only continue to improve services but • Collection of data and mea- also expand to include the rest suring of service indicators of the provincial Districts and that allows for identifying gaps Sub-districts. in services and development of tangible solutions SD5. POST-DISASTER MANAGEMENT • Citizen involvement in defin- AND SERVICE RES- ing community service needs TORATION CAPAC- and monitoring those services ITY BUILDING IN 12 PROVINCES Thanks to the adoption of GSP/ Taqadum’s SDIP methodology,

TOOLS AND FRAMEWORKS 51 Al-Khazer Bridge: before funding was secured (l) and after (r).

SUCCESS STORY Rebuilding Ninawa: “GSP/Taqadum’s damage Damage Assessments assessment forms are very useful and practical,” said Ninawa Roads and Bring Funds for Schools Bridges Director Najm Sa’eed. “We are using and Bridges them to assess damage to the bridges as a result Almost from the beginning of providing basic needs to citizens of the battle to liberate the Islamic State of Iraq and the and returnees. Ninawa from ISIL. These Levant (ISIL) destructive oc- forms have helped us cupation of Anbar, Ninawa, and In Ninawa, GSP/Taqadum’s work gather the necessary Salah ad Din, GSP/Taqadum un- with local government enabled derstood these provinces would it to address reconstruction information, which helped need post-conflict assistance. At after the devastation inflicted us to get the funding we the request of the Ministry of by ISIL. This included: 1) Post- need to rebuild. We really Municipalities and Public Works, Disaster Management System appreciate and thank GSP/Taqadum began an initiative capacity building via workshops GSP/Taqadum for all of its to support post-conflict recov- and technical training and 2) efforts.” ery and restoration of stability forming and building the ca- once the three provinces were pacity of the province’s Crisis liberated. This initiative centered Cell and Field Technical Team on understanding that devel- (FTT). Consisting of at least opment of post-conflict plans one technical expert from each would require: 1) extensive of the service-related director- organizational skills to perform ates, the FTT is responsible for immediate assessments and 2) utilities damage assessments, development of a basic services service delivery action planning, restoration plan, with a focus on development of post-disaster

52 TOOLS AND FRAMEWORKS Ashuri School: before funding was secured (l) and after (r).

management guidelines, and se- After more than two and a half curing funding from international years of closure, an estimated donors. 70 schools were restored and reopened, thanks to this funding Using the skills gleaned from stream. GSP/Taqadum’s interventions, Ninawa’s local government Seeing schools up and run- submitted the FTT’s completed ning and bridges rebuilt not assessment forms when success- only builds the confidence of fully reaching out to the United Ninawa’s citizens in their local Nations Development Pro- government, but also gives gramme for funds to rebuild the people a much-needed sense of province’s bridges and schools. security after the deeply har- Thanks to these assessments, rowing and deadly ISIL occupa- Ninawa received Accelerated tion. The demonstrated compe- Reconstruction Development tency of the FTT also provides Program (ARDP) funding to re- testament to the sustainability build Al-Khazer Bridge and ex- of GSP/Taqadum’s approach and pects an additional $1.4 million the successful application of the to rebuild Al-Zuhoor Bridge. In project’s Post-Disaster Manage- addition, officials are exploring ment System. options to obtain funding the reconstruction of Al-Sukkar Unwavering in its commit- Bridge. ment to provide the three Iraqi ISIL-devastated provinces with Additional funding received the necessary capacity building from the United Nations, based and technical assistance, GSP/ on the FTT’s completed assess- Taqadum has ensured these ment form addressing needed local governments are equally school repairs, saw Ninawa’s prepared as the other provinces Provincial Council announce on to implement decentralization January 21, 2017 that the school and provide improved services year would begin the next day. to their citizens.

TOOLS AND FRAMEWORKS 53 GSP/TAQADUM

GSP/Taqadum’s international post-conflict management and recovery expert, Mr. Moustafa Osman, discussing various scenarios after the liberation of the areas occupied by the Islamic State terrorists with member of Ninawa’s Civil Defense Directorate at the project’s November 25-27 preparedness training workshop.

Although all levels of govern- or even years. In such scenarios, ment are generally involved in local governments can play a disaster and post-conflict man- key role in taking the initiative agement, the role and actions in advance to protect and assist of local government are particu- their citizens by having plans and larly critical. In major disasters, entities designated to imple- such as the hurricane that struck ment those plans. To this end, Puerto Rico, local communi- GSP/Taqadum conducted Post- ties are often left to fend for disaster Management Training, themselves for several hours or first with provincial government even days until help can ar- officials from Diyala (beginning rive. In the case of conflict, as in April 2015); then with those occurred with the incursion, from Anbar, Ninawa, and Salah occupation, and liberation of ad Din (beginning in November areas in Iraq’s northern prov- 2015); and finally with officials inces by Islamic State of Iraq from Wasit (January 2017). and the Levant (ISIL) terrorists, assistance may not be able to After conducting Post-conflict reach affected areas for months Capacity Building Training with

54 TOOLS AND FRAMEWORKS Diyala provincial officials during 2. Immediate response the project’s Phase I, in Phase II, as per the request of the Minis- 3. Transition try of Municipalities and Public Works, GSP/Taqadum expanded 4. Stability and sustainability its Post-disaster Capacity Build- ing objective to include the • Roles and responsibilities of provinces of Anbar, Ninawa, and Crisis Cell and Field Techni- Salah ad Din in order to enable cal Team (FTT) members, as each to effectively respond to well as criteria for selecting the urgent needs of citizens them afflicted by ISIL-driven conflict. Related workshop training • FTT Disaster Response Op- focused on the development erations Room criteria of preliminary plans to assist Internally Displaced Persons • Restoration Phases (IDPs) after the liberation of these provinces. Later, this focus • Action Planning expanded to include preparing plans to deal with the aftermath • How to coordinate with of natural (flooding) and man- competent international orga- made disasters and emergen- nizations cies, including accommodating IDPs. At the request of Gover- Partnering implementers of the nor Malik Wadi, Wasit received local government post-disaster this expanded version of the management strategic plan in- project’s Post-disaster Manage- clude the ministries of Education ment Training, adapted to fit and Construction, Housing, and Wasit’s needs resulting from Public Municipalities; interna- major flooding damage during tional NGOs; investment com- the March 2015 rainy season. missions; and provincial service directorates. Workshop participants from these provinces acquired full POST-DISASTER knowledge of the following: MANAGEMENT CLOSING STATEMENT • The concept of crisis/disaster Overall, GSP/Taqadum worked management with the five provinces of Anbar, Diyala, Ninawa, Salah ad Din, • The Disaster Management and Wasit to: 1) sustain and Cycle enhance the capacity of their local governments to restore and • Types of disasters manage services after destruc- tion; and 2) establish systematic • Four-stage Crisis Manage- and organized crisis cells and ment Strategy: Field Technical Teams equipped with the necessary knowledge, 1. Readiness tools, and resources. These five provinces established systematic

TOOLS AND FRAMEWORKS 55 COP Mr. Cameron Berkuti presenting an overview of GSP/Taqadum activities to participants of a post-conflict preparation workshop.

56 TOOLS AND FRAMEWORKS and organized crisis cells and governments, which in turn has field technical teams that are helped improve the quantity equipped with specific knowl- and quality of services delivered edge, tools, and resources to to citizens. avoid certain future emergen- cies, and are ready to face and GSP/Taqadum’s trash collection appropriately deal with any type management work has proven of future crisis. the provincial government’s ability, commitment, and willing- SD7. TRASH COLLEC- ness to improve services within TION MANAGE- a decentralized environment. MENT SYSTEM DE- Although the federal govern- VELOPMENT AND ment had a system theoretically IMPLEMENTATION in place, it had not been applied at the local government level. A growing population, rapid This left the lower provincial- economic growth translating level government without a vi- into increased personal incomes, able trash collection system; the and ongoing sectarian conflicts capacity building was needed and terrorist activities have to increase this service and gain created enormous challenges the respect of citizens. In May for Iraq’s solid waste manage- 2016, in cooperation with the ment. An estimated 31,000 tons Ministry of Construction, Hous- of solid waste are produced ing, and Public Municipalities, daily, with per capita daily waste GOs, and PCs, GSP/Taqadum generation estimated at 0.8 began working with Najaf and kilogram to 1.4 kilograms. Rapid Wasit as pilot provinces and de- growth in solid waste, combined veloped a successful TCMS. Its with inadequate trash collection clear steps and procedures led services put increasing strain on to more efficient and effective an outdated and mismanaged handling practices that showed infrastructure heavily damaged immediate and positive results by years of conflict. Before and saw it quickly expanded implementation of Law 21, trash from its small targeted pilot collection services were man- coverage areas in these two aged by provincial municipalities provinces to much larger ones. influenced by a central ministry Most importantly, it was devel- rife with bureaucratic mires and oped to be easily adaptable to mismanaged resources, and match each province’s differ- certainly not focused on local ing environments and logistical priorities. This overall situa- issues. tion weakened local government’s abilities to properly On December 5-7, 2016, GSP/ address trash collection and Taqadum hosted a National other citizen-centered service Trash Collection Management needs. The transfer of functions System Conference that show- in accordance with Law 21, as cased the technical aspects and amended, brought decision- successes of Najaf and Wasit’s making processes closer to local TCMS implementation to of-

TOOLS AND FRAMEWORKS 57 ficials from the other provinces, the other provinces will adapt who immediately requested the TCMS to their respective assistance in replicating it. After individual needs and replicate it. a project-developed selection process to determine the ability OVERALL IMPACT of other provinces to implement • The collection and removal of the TCMS, it was adopted by solid waste service is now be- Babil, Baghdad, Karbala, Kirkuk, ing done according to a scien- and Maysan, where its wide- tific standards-based system spread application is already im- that uses resources available proving efficiency, effectiveness, to the Municipality Director- productivity, citizen satisfaction, ate in the most optimal ways. and resource allocation. • Public awareness campaigns TRASH COLLECTION have shown they play a signifi- CLOSING STATEMENT cant role in improving service Assessing the work of the delivery by raising the cultural Municipality Directorates, GSP/ and environmental conscious- Taqadum’s Service Delivery ness of citizens and increasing team found that they did not their cooperation with mu- have a system that was prop- nicipalities — all of which has erly using existing resources. contributed significantly to Therefore, in coordination with saving the resources required specialists from the Ministry to provide this service. of Construction, Housing, and Public Municipalities, project • Key elements in the success- specialists developed the Trash ful implementation of the Collection Management System TCMS that reduced costs and (TCMS) that addressed issues of resources were: 1) identifica- resource application and used tion of garbage truck routes innovative trash collection pro- and other trash collection and cedures, specific to each respec- cleaning mechanisms via the tive province’s needs. Initial suc- use of satellite maps; 2) track- cesses of TCMS implementation ing actual garbage truck and in small pilot areas in Najaf and cleaning mechanisms move- Wasit quickly fueled expansion ments by using the GPS; and to larger areas — both with Na- 3) monitoring and evaluation jaf and Wasit, and then to Babil, processes conducted by the Baghdad, Karbala, Kirkuk, and Municipality Directorate. Maysan, where its widespread application is improving efficien- • Another important factor cy, effectiveness, productivity, that contributed effectively citizen satisfaction, and resource to oversight of trash collec- allocation. It is hoped that local tion and solid waste removal governments in these provinces efforts was implementing the continue to implement and use of weigh stations to de- develop the TCMS to ultimately termine the amount (kilos) of reach into every District and collected solid waste for each Sub-district. It is also hoped that garbage truck. Since different

58 TOOLS AND FRAMEWORKS truck designs have different of much-needed teamwork, capacities, this information and a support system that significantly informed officials expedites necessary decisions who made changes to trash by government officials as collection modes, usage of needed. trucks and required quantities (i.e., depending on neighbor • Use of Microsoft Office soft- needs, etc.). ware, such as Excel, contributed to the development of a • Implemented use of Tele- reliable database that archives gram and/or Viber messenger weigh station data, as well group apps provided a rapid as data collected via GPS means of communication tracking systems. These GPS between the GOs, PCs, Mu- systems are easily updated nicipality managers, staff, and and available for use in ongo- trash collection workers. All ing and future solid waste are now connected and effec- planning and management. tively exchanging information, sending and receiving notifica- • Implementation of the TCMS tions and the latest breaking has contributed to reducing news, and sharing documents costs and resources that can and photos of TCMS efforts be reserved for emergency and needs in the streets. The situations, as well expanding positive impact of this cannot the TCMS to cover slums and be minimized. In addition to other areas not covered. keeping all members of all groups involved in trash col- • The number of collection and lection activities in the loop, solid waste removal days has each can share experiences, been significantly reduced thoughts, and questions, get due to the improved efficien- information, and clarify issues. cy and effectiveness of the The results? A high level TCMS; hence, daily collec- of transparency, a govern- tions are no longer needed, ment self-support system which adds to savings in both fostering trust and a sense cost and effort.

TOOLS AND FRAMEWORKS 59 GSP/TAQADUM

GSP/Taqadum, members of Karbala’s ESDO working group, and government officials on a site visit to the province’s newly opened plastic trash bag factory.

SUCCESS STORY

“We commend the Trash Woes in Karbala role of GSP/Taqadum in helping the provincial Resolved: New Garbage departments prepare and implement SDIPs,” Bag Factory Fully said ESDO Committee member, and Operational Department Services Manager Faris Sadiq. A growing population, rapid tion, combined with inadequate “This helps us provide economic growth translating trash collection services, has put better services for the into increased personal incomes, increasing strain on an outdated citizens, especially and ongoing sectarian conflicts and mismanaged infrastructure considering the scarcity and terrorist activities have cre- heavily damaged by years of of financial resources. ated enormous challenges for conflict. GSP/Taqadum’s SDIP Iraq’s solid waste management. methodology helped An estimated 31,000 tons of To resolve a chronic trash col- us to search for low- solid waste are produced daily, lection problem made worse cost solutions with with per capita daily waste gen- by Karbala’s inability to provide eration estimated at between trash receptacles to residences, considerable impact.” 0.8 and 1.4 kilograms. Rapid in November 2016, the Munici- growth in solid waste produc- palities Directorate opened a

60 TOOLS AND FRAMEWORKS plastic trash bag manufacturing ment officials recommended factory. This was in response a short-term solution: for the to a long-term solution identi- factory to be connected to the fied and implemented as part of sub-district’s emergency power GSP/Taqadum’s Service Delivery line to secure a continuous Improvement Planning (SDIP) source of electricity. Provincial process, conducted in coopera- officials quickly approved, the tion with the directorate. A $55 connection was made, and the million investment, the factory factory is now producing at employs a staff of 10 and has capacity levels. the capacity to produce up to 1,000-1,200 bags per hour — “We commend the role of GSP/ enough trash bags to supply all Taqadum in helping the pro- of the provinces’ districts and vincial departments prepare sub-districts and a supply level and implement SDIPs,” said to adequately meet increased ESDO committee member and demand resulting from the Department Services Manager estimated 1 million visitors to Faris Sadiq. “This helps us pro- Karbala’s holy city during major vide better services for the citi- religious holidays. The distribu- zens, especially considering the tion of bags, rather than recep- scarcity of financial resources. tacles, provided an affordable GSP/Taqadum’s SDIP methodol- solution that would better facili- ogy helped us to search for low- tate trash removal from homes cost solutions with considerable and help improve solid waste impact.” removal service. ESDO committee and Karbala However, a January 1, 2017, officials continue to use the site visit by GSP/Taqadum and SDIP process to be innovative the province’s Essential Service in their search for continuous Delivery Oversight (ESDO) improvement in solid waste working group (in its monitoring removal. A recent plan will see role gauging the effectiveness of the province purchase a 60 KV SDIP implementation solutions) generator as a long-term backup discovered the factory was only energy source, and research producing 400 to 450 bags per is underway to investigate the day due to constant power out- possibility of establishing a ages. This low production level plastic recycling factory that not made the substantial investment only would provide raw plastic economically unfeasible. for the garbage bag factory, but also reduce solid waste. Working together, the ESDO working group and local govern-

TOOLS AND FRAMEWORKS 61 GSP/TAQADUM

GSP/Taqadum’s international management and recovery expert discusses various scenarios after the liberation of areas currently- occupied Islamic State terrorists with members of provincial Field Technical Team (FTT).

62 LESSONS LEARNED CHAPTER FOUR LESSONS LEARNED

Within the context of this implement programs that ben- report, lessons learned consists efit from others’ experiences. of knowledge gained through experience, which when shared, The following are lessons benefits the work of others. A learned via the GSP/Taqadum lesson can be a good experi- experience: ence to follow or a bad experience to avoid, and sharing ESTABLISH TRUST AND it may not translate into the RELATIONSHIPS actual transfer of a program or GSP/Taqadum sought to commu- a strategy from one country nicate with government entities to another. Culture, tradition, early in the process and shared geography, and various social, the results of its work with all. economic, political, and legal This engagement established systems must all be considered trust and relationships, which before attempting any type of facilitated further cooperation. replication. However, lessons This was done via the following: learned in one place can be a helpful or transferable model • Regularly Engaging with in another and can be adapted Stakeholders: Understanding in different contexts. Not all establishing trust and com- lessons are positive, but the munication with stakeholders lessons learned from even less- is critical to the success of any than-successful programs may project, GSP/Taqadum in- promote others to evaluate and cluded key stakeholders in all

LESSONS LEARNED 63 GSP/TAQADUM

Anbar’s Al-Qassim Bridge before (l) and after (r) repairs were made, thanks to funding from the United Nations Development Programme by the local government.

SUCCESS STORY Anbar’s Secures Funds to Repair Water “It was more than adequate and we Networks and Bridges appreciate GSP/Taqadum’s reaching out to us and Almost from the beginning of plans would require: 1) ex- throughout Iraq to give the Islamic State of Iraq and the tensive organizational skills to us the necessary tools,” Levant (ISIL) destructive oc- perform immediate assessments said Anbar Governor’s cupation of Anbar, Ninawa, and and 2) development of a basic Advisory Commission Salah ad Din, GSP/Taqadum un- services restoration plan, with a and Technical Advisor derstood these provinces would focus on providing basic needs Jassim Mohammed. need post-conflict assistance. At to citizens and returnees. “This boosted our the request of the Ministry of confidence in managing Municipalities and Public Works, In Anbar, GSP/Taqadum’s work our new tasks.” GSP/Taqadum began an initia- with local government enabled tive to support post-conflict it to address reconstruction recovery and the restoration of after the devastation inflicted by stability once the three provinc- ISIL. This included: 1) post-disas- es were liberated. This initiative ter management system capac- centered on understanding that ity building via workshops and development of post-conflict technical training and 2) forming

64 LESSONS LEARNED and building the capacity of the sion and Technical Advisor Jas- province’s Crisis Cell and Field sim Mohammed. “This boosted Technical Team (FTT). Consist- our confidence in managing our ing of at least one technical ex- new tasks.” pert from each of the service- related directorates, the FTT is Seeing bridges rebuilt, sewer responsible for utilities damage systems working properly, and assessments, service delivery ac- having water service restored to tion planning, the development their homes not only builds the of post-disaster management confidence of Anbar’s citizens in guidelines, and securing funding their local government, but also from international donors. gives people a much-needed sense of security after the Thanks to the Anbar FTT’s abil- deeply harrowing and deadly ity to properly gauge damages ISIL occupation. The demon- and its completion of the GSP/ strated competency of the FTT Taqadum-developed damage also provides testament to the assessment form accompanied sustainability of GSP/Taqadum’s by strong documentation, local approach and the successful government efforts obtained application of the project’s post- such funds from the United Na- disaster management system. tions Development Programme for several successful rehabili- Unwavering in its commitment tation projects. Among these to provide the three Iraqi ISIL- were repairs and restoration to devastated provinces — Anbar, the Al-Qassim and Al-Fallujah Ninawa, and Salah ad Din — bridges, five water networks, with the necessary capacity and seven sewage stations. building and technical assistance, GSP/Taqadum has ensured these “It was more than adequate, local governments are as pre- and we appreciate GSP/Taqa- pared as the other provinces to dum’s reaching out to us and implement decentralization and throughout Iraq to give us the provide improved services to necessary tools,” said Anbar their citizens. Governor’s Advisory Commis-

LESSONS LEARNED 65 of its workshops and training. TAILOR GSP/TAQADUM- This provided deeper knowl- DEVELOPED PROCESSES edge of local perceptions, AND TOOLS TO needs, and priorities, and LOCAL NEEDS AND allowed for incorporating this CONDITIONS local knowledge into project The project’s approach included planning. This included ob- the understanding that local taining the as-is and desired conditions would dictate ap- levels of services and a better plication of the GSP/Taqadum understanding of the cultural methodology. This approach setting of the identified prob- resulted in adaptable modifica- lems, both of which should be tions that made the resulting standard components of any action plans relevant to local governance project. needs, thus compelling federal (central) and local partners to • Building Relationships with fund and implement the plans, All Levels of Government both of which were key to their and Partners: Aligning GSP/ sustainability. Taqadum objectives with those of national and local DEMONSTRATED IRAQI government entities encour- COMMITMENT AND BUY- aged them to assume con- IN trol of implementing actions From its initial engagement, GSP/ identified through theGSP/ Taqadum received an unprec- Taqadum process. In addition, edented level of support and the role of each participating buy-in from all levels of the Iraqi entity was made clear from government. The seeds planted the beginning of the process in the preceding years of the to avoid misunderstandings project grew as government or delays, especially regarding entities and employees alike capacity building training. invested time and resources to implementing GSP/Taqadum’s • Promoting Transparency by recommendations and increas- Communicating Science- ing their capacity to perform the Based Planning and Its transferred functions more ef- Result: A strong element in fectively. The project continued institutionalizing a system is to send invitations to meetings, public participation and feed- workshops, and training sessions back. This included commu- to all entities that had a stake nication of the GSP/Taqadum- in any aspect of its work. This developed SDIPs and their was the optimum route to take results to community leaders, to achieve success and avoid citizens, and local govern- roadblocks later in the process. ments. Through this process, GSP/Taqadum management also local stakeholders came to learned that involving a greater understand the relevance, number of stakeholders in the importance, and use of these planning and implementation results when planning provin- processes would improve over- cial development objectives. all stakeholder buy-in.

66 LESSONS LEARNED In Year 6, the impact was It is important to note the fact evident. Ministries and GOs that the chief of party and the used and continued to use GSP/ deputy chief of party spoke Taqadum’s proposed systems, Arabic, were born in Iraq, and procedures, and processes, all had previously worked for other of which are widely considered USAID/Iraq projects contrib- essential to ensuring the effec- uted greatly to the project’s suc- tiveness of the decentralization cesses, built trust, and resulted process. The federal govern- in a deeper and more meaning- ment has begun to decentral- ful outreach to Iraqi govern- ize administrative authority for ment counterparts. a select number of services to the provinces. The Prime GSP/Taqadum continued to Minister’s Office is honoring further deepen relationships GSP/Taqadum-suggested solu- with federal and provincial gov- tions such as the restructuring ernment officials, including the of the PPDCs and the new Council of Ministers Secretariat; structure of the GOs. Some of COR; HCCP Secretariat; Prime Iraq’s oldest and most impor- Minister’s Advisory Council; tant ministries have brought Supreme Audit Board; the min- in enough of these solutions istries of Finance, Agriculture, to cede some of their author- Education, Health, Labor and ity to provincial governments Social Affairs, Youth and Sports, in accordance with Article 45 and Construction, Housing, and of Law 21, as amended, taking Public Municipalities; the GOs unprecedented steps toward a and PCs in all 15 provinces; and decentralized government. The finally, Iraq’s universities. local governments’ remarkable commitment to GSP/Taqadum’s WIDE CITIZEN-LEVEL objectives and assistance helped IMPACT cement a partnership that spans Iraqi citizens want and expect a every executive office or PC in better quality of services from 12 Iraqi provinces (not including their government and recog- those outside of the Kurdistan nize that it is not providing the region and Ninawa, Anbar, and level of services it is capable of. Salah ad Din). By living up to GSP/Taqadum’s work with local the “moving forward” that GSP/ governments helped meet these Taqadum was named for, this expectations, and the impact partnership has fostered an has been clearly noticed. As evi- atmosphere of Iraqi ownership dent in a citizen feedback survey and commitment to long-term conducted by local munici- change in Iraq. This was clearly palities, the project-developed evident in the keynote speech TCMS has proven effective in of then-Iraqi National Alliance cleaning cities in those provinces Chair Sayed Ammar Al-Hakim that are implementing it. during the project’s May 21, 2017, National Legacy Confer- ence.

LESSONS LEARNED 67 GSP/Taqadum’s SDIP process effects positive results in Iraq. Here in Wasit, a service delivery awareness campaign was launched encouraging use of recently distributed trash containers.

68 LESSONS LEARNED LEADERSHIP ing the capacity of provincial DEVELOPMENT governments to plan and deliver GSP/Taqadum continued to services with the participation invest in building the capac- of their constituents. ity of local directorate staff to ensure sustainability after the MAINTAINING THE project ends, thus investing in MOMENTUM the long-term success of local GSP/Taqadum worked side-by- governments to better serve side with provincial leaders and their citizens. their staff to implement the TCMS in the pilot provinces TRANSFERABLE of Najaf and Wasit. Once this KNOWLEDGE implementation was complete, GSP/Taqadum management the system was replicated learned that learning by do- throughout Iraq, with its imple- ing on the part of national and mentation occurring at a much provincial technical specialists faster pace than in the pilot improves the effectiveness of provinces. The successes in the training by providing continual pilot provinces fed an imple- support, which enables partici- mentation momentum through- pants to implement on-the-job out the other provinces, with lessons learned. outstanding results and effects felt in cities in the provinces of For efficiency and effective- Baghdad, Karbala, Kirkuk, and ness, common issues were Maysan. communicated via regional or national workshops. GSP/Taqa- CROSS-POLLINATION dum worked to ensure coun- AND NETWORKING terparts were equipped with The project established links tools, processes, and systems between stakeholders by taking to identify and solve prob- a proactive approach, linking lems in the long term, which is officials from different provinces especially important after the and the central government, project’s closure. In addition, the which allowed for stronger project-developed financial, le- ties between the provincial gal, and administrative structural and federal governments. The changes that will stand the test exchange of information be- of time as ministerial functions tween local government entities are transferred to the provinces. created a greater consensus on Local governments are now common issues. GSP/Taqadum more independent and have learned firsthand that data- developed more confidence sharing among provinces helps in delivering better services to in obtaining consensus and their constituents. Designed to provides a unified view among transfer knowledge and strate- provincial government mem- gies through innovative stan- bers. In addition, the project dardized systems and effective replicated lessons learned from methodologies, GSP/Taqadum one province in other prov- made great advances in build- inces, which helped deepen the

LESSONS LEARNED 69 ties among provinces, encour- tions outlined in the short-term aged officials to learn from one solutions in the SDIPs slated to another and identify common improve services. This scientific challenges, and saw them form approach of calculating perfor- communication and other mance standards and indicator networks. Finding and sharing values is now being used as the challenges enables officials to basis for preparing the annual better understand what it will investment budget. In addition, take to confront them. This was the project made significant clearly evident with the Trash progress toward systemizing Collection Management System and streamlining devolved func- implementation experience in tions and providing citizens with the pilot provinces. clear instructions for key steps and a timeline and helped elimi- ANALYTICAL TOOLS nate redundancy and streamline GSP/Taqadum used a compre- the process. hensive approach with well- thought-out criteria and analysis GSP/TAQADUM methodologies to map func- DECENTRALIZATION tional responsibilities. Essential FRAMEWORK VIDEOS to effectively implementing the GSP/Taqadum produced nine provincial level decentralization comprehensive video shorts process is building the capac- depicting all aspects of the ity of those responsible for its project’s decentralization work implementation. Sustaining the within its four frameworks: legal, decentralization process nation- financial, administrative, and wide relies on the creation of service delivery. These videos appropriate tools and frame- capture the very essence and works that institutionalize the culminating results of GSP/Taqa- process. The project worked dum’s efforts during it six-year side-by-side with provincial lead- trajectory and will serve as a ers and their staff and devel- roadmap for ongoing decentral- oped a unique and wide-ranging ization efforts in Iraq, as well as set of tools. Transfer of these for those interested (educators, tools, processes, and method- development workers and agen- ologies to local governments en- cies, and government entities) in sures replication and will sustain learning about and/or applying Iraq’s provincial government decentralization principles in organizational structure far into other countries. A complete list the future, thus benefitting citi- of titles and summaries can be zens for generations to come. found in the Legacy section of this report on pages 73-91. MEASURING SYSTEM FOR BETTER STANDARD OPERATING MANAGEMENT PROCEDURE GUIDES GSP/Taqadum successfully ap- AND MANUALS plied and affected Iraq’s Service Great efforts were made to Delivery Performance Standards frame GSP/Taqadum activities as evidenced by remedial ac- and related implementation

70 LESSONS LEARNED results by producing and dis- six-year decentralization efforts; tributing a complete set of 23 address legal, financial, admin- official manuals to federal and istrative, and service delivery local governments via electronic aspects of local governance; and format. In addition, the project now serve as tools for Iraqi gov- printed special hard copy sets ernment officials to use as they of the manuals, which were de- move forward decentralization livered to the following govern- efforts. A complete list of titles ment and other entities: and summaries can be found in the Legacy section of this report • High Commission for Coor- on pages 73-91. dination between Provinces Secretariat EMPOWERING PROVINCIAL • Council of Minister’s Secre- GOVERNMENTS tariat GSP/Taqadum’s ability to provide capacity building and techni- • Baghdad University’s Ameri- cal assistance to officials and can Resource Center government staff promoted ownership and enlightened • Diyala University perceptions with regard to the government’s responsibility to • Supreme Audit Board serve its constituents. Capacity building materials for the seven All 23 manuals in Arabic and ministries (not including the Min- 22 in English are available on istry of Finance) were gathered GSP/Taqadum’s official website: in cooperation with federal and http://iraqgsp.org. The Guide for local governments and will help Civil Service Law (not within the local governments assume the project’s work plan), appears new transferred functions ac- only in Arabic. These manuals cording to Law 21, as amended. offer the results and insights gleaned during GSP/Taqadum’s

LESSONS LEARNED 71 GSP/TAQADUM

72 LEGACY CHAPTER FIVE LEGACY

Closing at the end of Septem- Thanks to GSP/Taqadum’s com- ber 2017, GSP/Taqadum leaves prehensive scientific approach a legacy firmly grounded within that involved supporting all the cross-section of impact, levels of government to improve sustainability, and committed structures, establish systems, counterparts. Concluding six and build capacity across the years of assistance to Iraq’s local board, Iraq’s decentralization provinces, the project leaves work advanced practical steps behind systems of reform, ac- that saw targeted ministries countability, transparency, good move authorities to the prov- management, and partnership. inces, and governors’ offices During its final year, GSP/Taqa- distributing authorities to depu- dum anchored the knowledge, ties, assistances, and provincial tools, processes, and systems directorates. Provincial officials it helped to develop with and are now exercising these au- successfully transfer to the thorities, as well as many others. provinces, leaving them fully Decision-making is moving away equipped to resolve challenges from the ministries and becom- and improve performance on ing closer to citizens in the prov- their own for years to come. inces, which furthers the Iraqi GSP/Taqadum was fortunate to government’s goal to resolve work with partners that were the country’s major administra- willing to implement institutional tive, economic, and social issues. changes, adopt new processes As witnessed by GSP/Taqadum and systems, and use new tools, and noted by Iragi government skills, and practices. officials, this is leading to the delivery of better services, a more

LEGACY 73 GSP/TAQADUM

GSP/Taqadum, joined by a delegation of local government officials, visiting the newly established Jebala Vocational Training Center in Babil. A Directorate worker oversees operation of the newly installed compact water treatment unit transferred from Al-Kahla’a district to Alf Dar.

SUCCESS STORY Opening of New

“My goal for Vocational Training participating in such a course is to learn Center Stems sewing so I can teach my daughters this profession Unemployment and so they can be self- supportive.” – Kabeela Provides Security Mejthab Babil Decentralization supports of Iraq and the Levant (ISIL) community empowerment, secu- insurgents, as a direct result of rity, and stability. This was dem- GSP/Taqadum’s decentralization onstrated in Jebala sub-district activities. in North Babil, a known hotbed of Al-Qaeda and Islamic State

74 LEGACY Having benefitted fromGSP/ their names have been entered Taqadum’s decentralization into a database, and interested workshops and technical as- individuals are being notified as sistance, particularly the analysis relevant courses become avail- of functions and services with able. regard to determining which functions should be transferred, GSP/Taqadum and a local govern- various entities in Babil’s local ment delegation recently visited a government came together to sewing course at the Jebala VTC tackle unemployment and poor consisting of 32 women of vari- service delivery in North Babil. ous ages enrolled, 30 of whom Focusing reducing unemployment are illiterate. Free of charge, the in the Jebala sub-district, an area two-month course will secure all too familiar with insurgent dressmaker certificate for suc- activity, especially car bombings, cessful graduates. Excited about the Directorate of Labor and her and her daughters’ future Social Affairs, supported by GSP/ prospects, trainee Kabeela Me- Taqadum, developed a Vocational jthab said, “My goal for partici- “I learned about this Training Service Delivery Im- pating in this a course is to learn training through the provement Plan. sewing so I can teach my daugh- mosque. By the second ters this profession and then they week of the course, I The plan identified a solution to can be self-supportive.” had already learned the increase the number of indi- basics of dressmaking. viduals benefitting from receiving Explaining why the training was I want to learn this vocational training by establishing important to her, trainee Aseel profession so I can start new Vocational Training Centers Abd Alaa said, “I learned about working as a dressmaker (VTCs) in Jebala sub-district. this training through the mosque. since government Given that the closest VTC By the second week of the employment was 45 kilometers away, it was course, I had already learned the opportunities are prohibitive to attend in terms basics of dressmaking. I wanted difficult to obtain.” – of time and cost associated with to learn this profession so I can the commute. After identifying start working as a dressmaker Aseel Abd Alaa this solution, the Babil Director- since government employment ate of Labor and Social Affairs opportunities are difficult to organized a joint effort involving obtain.” the sections of vocational training, people with disabilities, and “This is exactly what was needed employment and loans that saw in Jebala sub-district,” said Direc- the development of a new VTC torate of Labor and Social Affairs in Jebala sub-district. Director Ahmed Faris. “When our citizens have the chance to Its opening was announced to learn and find more opportuni- the public via the distribution ties for employment, they will of flyers and hanging of posters feel positive and have hope. This at mosques (supplemented by hope will encourage them to announcements after prayers), work towards a better future government offices, and other and fight to keep insurgents out public places. To date, 1,260 un- of our communities. Thank you employed individuals have signed for giving us hopes of a better up for various training programs, future for Jebala.”

LEGACY 75 responsible citizenry, and more most importantly, leaves visi- responsive government entities. tors with GSP/Taqadum’s legacy videos and manuals. One clear impact on communities has been clearly experi- GSP/TAQADUM LEGACY enced due to the enormously VIDEOS AND MANUALS successful GSP/Taqadum-devel- To ensure support would be oped Trash Collection Manage- available to ensure GSP/Taqa- ment System — just one of the dum’s work would live on long successful systems the project after the project concluded, this has implemented during its last year saw the production, six years strengthening Iraq’s distribution, and posting (on the governance abilities and shift to project’s official website nine decentralization. legacy videos (also available via YouTube) and 23 legacy manu- GSP/TAQADUM OFFICIAL als. The summaries for all can be WEBSITE found below. As part of closeout prepara- tions, GSP/Taqadum retooled its It is our sincere hope that these official website (http://iraqgsp. tools will be accessed and org) to match USAID website provide a roadmap for profes- design branding. This version sionals, government officials, will live online for two years journalists, academics, students, after the project’s end. An ar- and those in the develop- chived treasury of the trajectory ment community interested in and successes of the project’s understanding not only how decentralization work, it houses to develop a successful decen- all of the project’s weekly, quar- tralization process, but also the terly, best practices and lessons earliest stages of Iraq’s decen- learned, and final reports, and tralization process.

Iraq’s decentralization: Alf Dar 1000 Houses – a GSP/Taqadum success story vedio.

76 LEGACY GSP/TAQADUM LEGACY VIDEO TITLES AND SUMMARIES

1. OVERVIEW: GSP/TAQADUM DECENTRALIZATION

Theme: EMPOWERING THE PEOPLE OF IRAQ TO BUILD THEIR COUNTRY [Length: 12:29 minutes] https://youtu.be/BaMXYEEtB7k

This video shows where it key aspects of GSP/Taqadum’s all began, explains what de- decentralization work. He is centralization is, where GSP/ joined by a few of our main Taqadum worked and how, the supporters, each champions of frameworks focused on, and the decentralization in their own tools developed that enabled right: 1) Baghdad Provincial the smooth beginnings of Iraq’s Council Chair Riyadh al-Adhadh; transition to decentralization. 2) Deputy Minister of Adminis- Especially highlighted is the proj- trative Affairs Yalmaz Shabaz; 3) ect’s Decentralization Mapping High Commission for Coordina- and Analysis Plan, developed tion between Provinces Secre- (as many of our tools were) by tariat Chair Torhan al-Mufti; and Chief of Party Cameron Berkuti. 4) Baghdad University President In fact, it is Mr. Berkuti hosts Alaa Abdul Hussein. us on this journey, explaining

2. IRAQ’S DECENTRALIZATION: ALF DAR 1000 HOUSES – A GSP/TAQADUM SUCCESS STORY

Theme: EMPOWERING THE PEOPLE OF IRAQ TO BUILD THEIR COUNTRY [Length: 2:29 minutes] https://youtu.be/bBV8Zg5mtzM

This Alf Dar 1000 Houses com- and most importantly, the munity was built by Maysan to people directly affected by the accommodate Iraq’s poorest solutions implemented, thanks families. As the families moved to the adoption of GSP/Taqa- in, they discovered there were dum’s service delivery process. no services: no roads, no water, Among those featured in this and no schools. Through GSP/ video: 1) Kibriya al-Shahada Taqadum’s Service Delivery Primary School Headmaster Improvement Planning, work Mohammed Abid Jabur; 2) a with the Municipalities Director- female student attending the ate that included outreach to newly acquired caravan school international partners, solutions building at the Kibriya al-Shaha- were implemented to resolve da Co-ed Primary School; 3) a these issues. This video takes us water station employee; and 4) to Alf Dar’s streets and schools, an Alf Dar resident.

LEGACY 77 3. IRAQ’S DECENTRALIZATION: TRASH COLLECTION MANAGEMENT SYSTEM KEEPS STREETS CLEAN AND CIRIZENS HAPPY – A GSP/TAQADUM SUCCESS STORY

Theme: AN ADVANCED AND RELIABLE TRASH COLLECTION MANAGEMENT SYSTEM ACHIEVES A HEALTHY ENVIRONMENT FOR CITIZENS TO ENJOY [Length: 6:57 minutes] https://youtu.be/vY-qM4B1R24

From house to truck to dump Iraqi government officials who and even to the trash collec- appear: 1) Ministry of Con- tion equipment repair shop, struction, Housing, and Public this video shows the road Iraq’s Municipalities Deputy Minis- garbage takes thanks to the ter for Technical Affairs Jabir GSP/Taqadum-developed Trash Al-Hassany; 2) Najaf Provincial Collection Management System. Council GIS Manager Mustaq Currently being welcomed as Talib; 3) Najaf Eng. Udai Al-Sa- it is deployed in most of Iraq’s hib; 4) Najaf Governor Advisor provinces, the TCMS has been for Services Ahmed al-Hillu; 5) so successful and widely ac- Wasit Eng. Ayad Hassan; and 6) cepted that we decided to make Wasit Deputy Governor. Rashid it its own video. Edan.

4. IRAQ’S DECENTRALIZATION: PROCESS MAPPING AND STREAMLINING, SERVICE DELIVERY, AND IRAQ’S FUTURE – A GSP/TAQADUM SUCCESS STORY

Theme: USING PROCESS MAPS TO STREAMLINE SERVICE PROCEDURES OF CITIZEN-CENTERED SERVICES OUTLINES STEPS CITIZENS MUST FOL- LOW TO RECEIVE DESIRED SERVICES [Length: 5:02 minutes] https://youtu.be/u3iv8BXZrFQ

GSP/Taqadum’s work with pro- and responsibilities and enabled vincial governments to process citizens the ability to more easily map and streamline 147 trans- and efficiently access services. ferred functions and provide a common unified framework USAID/Iraq Mission Director for government entities and Brooke A. Isham makes a special citizens to follow is explained in appearance, where she says: this video. Process mapping and “The success of decentralization streamlining has strengthened and what you are learning today, and clarified internal lines of it doesn’t depend on USAID, communication. Most impor- it doesn’t depend on the GSP tantly, it has allowed employees project. It depends on you. to easily understand their roles You are really the ambassadors

78 LEGACY of decentralization. On behalf of 1,368 local government staff of the U.S. government and from the transferred director- USAID, we want to thank you ates (Phase 1) and an additional for sharing our thoughts today 640 staff from the transferred with us in a very frank way and directorates (Phase 2), and for being within your ministry 2) the process mapping and champions of decentralization. streamlining results and positive Because what you are doing is impact of simplifying procedures helping your country, your fami- that enable citizens to access lies, helping future generations services. of Iraqis to have better services where they live.” Notables who appear: 1) Maysan Municipalities Human Video footage shows the re- Resources Manager Eng. Kassim sults of GSP/Taqadum’s service Hussein, 2) Diwaniyah Housing delivery efforts on the lives of Directorate IT Manager Eng. children and residents of Alf Dar Dhurgham Shihab, 3) USAID/ “1000 Houses” community for Iraq Mission Director Brooke low-income families, and two A. Isham, 4) a citizen driver, and infographics depict: 1) GSP/Taqa- 5) a Karbala Water Treatment dum’s building the process map- Plant staff member. ping and streamlining capacity

5. SERVICE DELIVERY – GSP/TAQADUM’S SERVICE DELIV- ERY FRAMEWORK

Theme: DEVELOP SCIENTIFIC METHODS TO IM- PROVE THE PROVISION OF CITIZEN-CENTERED SERVICES TO THE IRAQI PEOPLE [Length: 11.30 minutes] https://youtu.be/SP_PSxyWHzA

If you want to see the streets of on the lives of Iraq’s citizens Iraq and the lives of its citizens, that this improvement planning this is the video to watch. It continues to have. The curtain explains to viewers the GSP/ is pulled back as viewers are Taqadum-developed Service shown an operational sewer Delivery Improvement Plan pro- treatment plant, compact water cess from beginning to end and treatment units, production how it enables local, provincial of asphalt in factories and the governments to respond more actual paving of roads, and the effectively and efficiently to the important and critically benefi- needs of their communities. cial results of the project’s Trash This process is clearly laid out Collection Management System through a series of infograph- implementation work. ics. Viewers are then taken on a bird’s-eye journey throughout Citizens and government of- select provinces, where they ficials offer their opinions on can see the results and effects the level and quality of ser-

LEGACY 79 vices being delivered in Iraq car, 4) Karbala Water Director- and the how GSP/Taqadum’s ate Planning Section Manager work helped to improve them. Ahmed Yasseen, 5) Babil Voca- Citizens and Iraqi government tional Training Center Manager officials who appear: 1) Alf (Aliskandariyah District) Nasser Dar Kibriya Al Shahada Co-ed AbdulJabbar, and 6) Administra- Primary School Headmaster tor of the Operation Unit at Mohammed Abd Jabur, 2) Alf Baghdad’s Al-Madein Central Dar Kibriya Al Shahada Co-ed Sewage Treatment Plant Adel Primary School female student, Khudier. 3) Diwaniyah resident in his

6. IRAQ’S DECENTRALIZATION: FINANCIAL FRAME- WORK

Theme: A ROBUST LOCAL REVENUE SYSTEM, WELL-DEVELOPED BUDGET, AND EFFICIENT FINANCIAL SYSTEM PROMOTES DELIVERY OF BETTER SERVICES [Length: 8:27 minutes] https://youtu.be/wi83oH1KH5g

From soup to nuts, this video generating efforts, and govern- takes viewers through GSP/Taqa- ment officials appear, each giving dum’s budgeting team’s work their take on the importance of with both federal and local gov- the Administrative and Financial ernments setting the foundation Affairs directorates (developed for a sustainable and decentral- in each province in cooperation ized Local Financial Manage- with GSP/Taqadum) to decen- ment System, which is critical to tralization, and the many ways financing local services, holding the project built the capacity of local government accountable, financial staff. and improving service delivery. Iraqi government officials who Segments shown of GSP/Taqa- appear: 1) Diyala Provincial dum’s historic breakthrough Council Secretary Khudar Mus- meeting between provincial lim, 2) Salah ad Din Governor finance and Ministry of Finance Advisor for Decentralization officials reveal the true champi- Affairs Mohammed Koja, 3) Dhi ons of Iraq’s fiscal decentraliza- Qar Provincial Council Strategic tion. Planning and Investment Com- mittee Chair Ashwaq Talib, and Two infographics give clear visu- 4) Dhi Qar Governor Advisor als of this and the 20 steps of for Financial Affairs, and Admin- investment budget formulation, istrative and Financial Affairs footage of citizens enjoying Dhi Directorate Director. Razzaq Qar’ Nasiriyah Park shows the Kshayish. success of provincial revenue-

80 LEGACY 7. IRAQ’S DECENTRALIZATION: LEGAL FRAMEWORK

Theme: CREATE A SOLID CONSTITUTIONAL EN- VIRONMENT TO ENSURE A SMOOTH IMPLEMEN- TATION OF DECENTRALIZATION [Length: 7:01 minutes] https://youtu.be/VJuwsDlwKws

This video simplifies the com- accountability mechanisms that plexities of Iraq’s legal transition ensure implementation of public to decentralization for viewers, policies outlined by ministries; especially how GSP/Taqadum and 3) the legal mechanisms that legal specialists 1) analyzed 240 allow for provincial exercise of national laws, rules, and regula- all the transferred legal functions tions and identified 55 in conflict (endorsement of contracts, un- with decentralization’s full imple- dertakings, and guarantees; legal mentation and 2) worked with representation; legal counseling; government legal officials and property management; eminent entities to amend and thus re- domain; contract drafting; and move these blockages. Viewers administrative Investigation) and will receive a full understand- remove red tape and adminis- ing of how the project enabled trative burdens. provincial governments to exercise the transferred ministe- Iraqi government officials who rial functions in accordance with appear: 1) Babil Governor Law 21, as amended, by creating Advisor for Legal Affairs and a favorable legal environment to Governor’s Office Decentral- meet local needs by delivering ization Section Manager Khalid better services to citizens. Rayis; 2) Diwaniyah Governor Sami al-Hasnawi, who confirms Three infographics give easily the fair distribution of the rules understandable visuals of: 1) and responsibilities among the the analysis, identification, and governor and the transferred amendment processes that directorates; and 3) Muthanna cleared the path to decentral- Governor Advisor for Ser- ization; 2) the accountability vices Affairs Haider Abid Jabir, mechanisms developed in coop- who lauds the great results of eration with GSP/Taqadum and delineating the relationships the adopted technical relation- between the directorates at the ships between ministries and local level, and the directorates provinces, including transferred and their line ministries at the directorates and ministerial federal level.

LEGACY 81 8. IRAQ’S DECENTRALIZATION: GSP/TAQADUM’S ORGA- NIZATIONAL DEVELOPMENT FRAMEWORK – GEN- ERAL

Theme: FURNISHING THE GOVERNORS’ OFFICES WITH THE TOOLS TO MANAGE TRANSFERRED DIRECTORATES AND IMPROVE THE QUALITY AND QUANTITY OF SERVICES PROVIDED TO CITIZENS [Length: 8.48 minutes] https://youtu.be/hAtLSJx_nu0

This video depicts GSP/Taqa- system installed that replaces dum’s collaborative work with (and in some cases when neces- government officials enabling sary, enhances) paper-based provinces to receive and man- communications, and 3) the age the departments trans- number of local government ferred from the ministries, staff GSP/Taqadum provided and install an organizational capacity building training to, and structure that is smoothly linked how many then institutional- to the governors’ offices and ized that training by transferring makes local government func- it to others in their offices and tion in better ways. With drectorates. greater authority than the ministries, local government is now Iraqi government officials who more effective, efficient, and appear: 1) High Commission for accountable, which, as the video Coordination between Prov- shows, translates into more and inces Secretariat Chair Torhan better services delivered to citi- al-Mufti; 2) Basrah Assistant zens and growing trust between Governor for Administrative Af- them and their government. fairs Mo’een al-Hassan; 3) Wasit Deputy Governor Hayder Three infographics show: 1) the al-Jasani; and 4) Najaf Ministry governor’s office organizational of Construction, Housing and chart and the relationships in- Public Municipalities Sewage Di- volved, 2) the e-communication rectorate Manager Haider Taki.

82 LEGACY 9. IRAQ’S DECENTRALIZATION: GSP/TAQADUM’S ORGA- NIZATIONAL DEVELOPMENT FRAMEWORK – PRO- CESS MAPPING AND STREAMLINING, AND SERVICE DELIVERY

Theme: FURNISHING THE GOVERNORS’ OFFICES WITH THE TOOLS TO MANAGE TRANSFERRED DIRECTORATES AND IMPROVE THE QUALITY AND QUANTITY OF SERVICES PROVIDED TO CITIZENS [Length: 8:31 minutes] https://youtu.be/mvahUSZz1Yo

GSP/Taqadum’s work with pro- helping your country, your fami- vincial governments to process lies, helping future generations map and streamline 147 trans- of Iraqis to have better services ferred functions and provide where they live.” a common unified framework for government entities and Video footage shows the re- citizens to follow is explained in sults of GSP/Taqadum’s service this video. Process mapping and delivery efforts on the lives of streamlining has strengthened children and residents of Alf Dar and clarified internal lines of “1000 Houses” community for communication. Most impor- low-income families and two tantly, it has allowed employees infographics depict: 1) GSP/Taqa- to easily understand their roles dum’s building the process map- and responsibilities and enabled ping and streamlining capacity citizens the ability to more easily of 1,368 local government staff and efficiently access services. from the transferred directorates (Phase 1) and an additional USAID/Iraq Mission Director 640 staff from the transferred Brooke A. Isham makes a special directorates (Phase 2) and appearance where she says: 2) the process mapping and “The success of decentralization streamlining results and positive and what you are learning today, impact of simplifying procedures it doesn’t depend on USAID, that enable citizens to access it doesn’t depend on the GSP services. project. It depends on you. You are really the ambassadors Iraqi government officials who of decentralization. On behalf appear: 1) Maysan Municipali- of the U.S. government and ties Human Resources Manager, USAID, we want to thank you Eng. Kassim Hussein, and 2) for sharing your thoughts today Diwaniyah Housing Director- with us in a very frank way and ate IT Manager, Eng. Dhurgham for being within your ministry Shihab. champions of decentralization. Because what you are doing is

LEGACY 83 GSP/TAQADUM LEGACY MANUAL AND GUIDE TITLES AND SUMMARIES

Great efforts were made to Arabic only). The manuals and frame GSP/Taqadum activities guides address legal, financial, and implementation of proj- administrative, and service deliv- ect results by developing and ery aspects of local governance disseminating 23 manuals and and serve as tools for Iraqi guides (22 in both Arabic and government officials to utilize as English, and one – Guide for they move forward decentral- Civil Service Law, appears in ization efforts.

SERVICE DELIVERY

GUIDE FOR DEVELOPING SERVICE DELIVERY AND IMPLEMENTING MONITORING SERVICE DELIVERY AND OVERSIGHT IMPROVEMENT PLANS PROCEDURES MANUAL Provides step-by-step guidelines Provides action mechanisms for to follow in developing Service monitoring and oversight work- Delivery Improvement Plans. ing groups in relation to the Service delivery improvement provision of services that outline planning is a comprehensive, how to prepare, implement, strategic process developed to follow-up, and improve the address a variety of manage- quality of services provincial di- ment issues aimed at improving rectorates provide to citizens by service delivery to citizens and using applied mechanisms and enabling a given directorate to successful internationally-proven achieve its short-, medium-, procedures. These mechanisms and long-term objectives. The include setting service quality process uses a methodologi- standards, calculating indica- cal approach that: 1) identifies tors, conducting surveys on the management, technical, and status of services via field visits, procedural problems to ef- public meetings, and social me- fectively and efficiently address dia networking. Service delivery immediate service delivery monitoring and oversight work- shortcomings by developing ing groups can use this manual specific solutions; and 2) handles to: 1) be best informed about non-quantifiable elements and the quality of services, and 2) information regarding service learn how to educate and train delivery using scorecards, as employees on the mechanisms, well as planned application tools, procedures, and service of resources to achieve these standards designed to ensure goals. efficient and effective delivery of services to citizens.

84 LEGACY POST-DISASTER TRASH COLLECTION CAPACITY BUILDING MANAGEMENT SYSTEM MANUAL MANUAL A great guide for those looking This manual provides a compre- to restore or meet service de- hensive set of actions to take to livery demands after a crisis or develop and implement a TCMS disaster. This manual provides: that encompasses all the steps 1) a reference for overall post- required to efficiently and ef- disaster management, includ- fectively manage trash collection ing preparedness, assessment, and its transportation to land- analysis, prioritization, planning, fills. Outlining six steps: 1) infor- implantation, and monitoring mation gathering, 2) standards and evaluation; and 2) tools to and indicators, 3) data analysis, help build the capacity of emer- 4) solutions implementation, 5) gency teams: crisis cells and field action plan, and 6) monitoring technical teams, to conduct and evaluation. This manual also assessments and plan, prioritize, covers the contracting proce- and manage service restora- dures and the forms needed to tion and improvements for the contract out the trash collection citizens, such as: hazard vulner- services with the private sector. ability assessments, damage and risk assessments, gap analysis, and infrastructure redevelop- ment prioritization.

LEGAL

LAW 21 OF 2008, 3) a detailed explanation of the AS AMENDED, FOR Articles of Law 21, as amended, PROVINCES NOT in relation to the provincial INCORPORATED INTO A councils and: a) procedures to REGION MANUAL formulate them; b) membership A clear and comprehensive and termination conditions; c) reference for local govern- provincial council competencies; ments at the legislative and d) local council (district and sub- executive levels and director- district) competencies, including ates, this manual enables them the rights, privileges, and powers to manage their local affairs in of the governor, administrative accordance with the principle of unit managers, and district and administrative decentralization sub-district chairs. In addition, and deliver better service to this manual contains the most citizens. It provides: 1) a detailed important decisions taken by the explanation of the Provinces Supreme Court and the State Not Incorporated into a Region Shura Council, including texts Law 21 of 2008, as amended; 2) of the most important relevant clarification of the most impor- Articles of the Constitution and tant ongoing amendments to the Federal Court Law. the law, in accordance with Law 15 of 2010 and Law 19 of 2013;

LEGACY 85 GOVERNORS’ DISTRIBUTION AUTHORITIES MANUAL OF ROLES, A comprehensive and an impor- RESPONSIBILITIES, tant reference for local govern- AND AUTHORITIES ments and governors to manage BETWEEN GOVERNORS local affairs consistently to pro- AND PROVINCIALS vide the best quality and quan- DIRECTORS MANUAL tity of services to Iraq’s citizens. This manual is a clear and This manual provides substantial detailed reference for the support to governors to man- governors’ offices and director- age provincial affairs and trans- ates to manage local affairs in ferred directorates, functions, accordance with the principle and responsibilities following of administrative decentraliza- implementation of administrative tion and provide citizens with decentralization at the local level the best quality and quantity of in accordance with Article 45 of services. This manual provides the Provinces Not Incorporated standardized models for all into a Region Law No. 21 of provinces, including an outline 2008, as amended. This manual of the roles, responsibilities, and includes: 1) the identification of authorities distributed between all activities and legal provisions the governor and directors of related to all functions, compe- the directorates of Agriculture, tences, and authorities of the Buildings, Education, Health, governors whether: a) as stated Housing Labor and Social Af- in the Constitution of Iraq for fairs, Municipalities, Planning and the year 2005; b) as stated in Follow-Up, Roads and Bridges, the abovementioned Article 45; Sewage, Urban Planning, Water, or c) as stated in the rest of the and Youth and Sport. Clear and laws in force – whether these explicit distribution was made authorities are supervisory, in- to prevent concentration of the vestigatory, administrative, legal, transferred authorities in the financial, or related to security, governor’s office and related managing the governor’s office negative impact regarding the and its administrative unit, or successful implementation of transferred directorates. This administrative decentralization. manual also includes a summary of the most important constitu- [Note: After the implementa- tional articles, laws, legislations tion of Article 45 of the Law (groups of related laws), federal of Provinces Not Incorporated supreme court and State Shura into a Region, Law 21of 2008, Council decisions. as amended, and the issuance of the ministerial orders for the transfer of functions and special- ties to the provinces, it became necessary to regulate the exercise of these functions at the local level between the governor, in his capacity as the province’s highest executive officia, and the directors

86 LEGACY of the local executive departments amended, as well as the instruc- transferred to the provinces.] tions and controls they contain regarding the most important GUIDE FOR civil service subject, such as: a) GOVERNMENT DEBT employment grades and sala- COLLECTION LAW ries; b) appointment provisions A guide to the Government and controls of appointment; Debt Collection Law No. 56 c) contracting and assignment; of 1977, as amended, which d) provisions of bonus granting, guarantees the preservation and promotion, seniority, resigna- maintenance of public funds and tion, transfer, and secondment; the collection of government e) leave provisions (annual, sick, debts from the debtors to en- maternity, study, accompanying able public facilities to operate leave, and Iddah leaves [Note: in a stable manner so individuals In Islam, Iddah is the period a can enjoy public services. This women must observe after the guide clarifies the law’s most death of her spouse or after a important ongoing amendments, divorce, during which she may as well as the instructions and not marry another man]; and controls it contains regarding: f) delegation, appropriations, 1) the scope of law applica- and exclusion provisions other tion; 2) debtor warning, arrest, than those made by the Higher seizure, and selling of property, Administrative Court, the State and imprisonment procedures Shura Council, and the Staff Judi- and supporting laws; 3) enforce- cialCourt. The guide made clear ment instructions; 4) Inclusion the key activities and phases Law No. 31 of 2015 provisions; and procedures on transactions and 5) pertinent decisions by related to the most important the: a) Council of Ministers; b) employment. Revolution Command Council (dissolved); c) Coalition Pro- GUIDE FOR UNIFIED visional Authority (regarding PUBLIC RETIREMENT development of judicial proceed- LAW ings related to religious disputes This guide clarifies the provi- No. 78 of 2004); and d) of the sions of Unified Retirement relevant courts and the State Law No. 9 of 2014 and provides Consultative Council. detailed information on retirement issues, service extension, GUIDE FOR CIVIL and calculation of services and SERVICE LAW pensions. Considered one of Detailing the key transactional the most important laws in activities, phases, and proce- Iraq because it affects a large dures related to employment, and important segment of the this guide provides detailed population, the Unified Retire- explanations of: 1) Civil Ser- ment Law aims to improve the vice Law No. 24 of 1960, as living conditions of retirees. To amended and its most impor- that effect, it organizes explicit tant ongoing amendments; and mechanisms to: 1) encourage 2) Staff Law No. 25 of 1960, as private sector employment by

LEGACY 87 facilitating the transfer of utilities and controls regarding working between the public and private outside of official hours. This sectors; 2) expand the law’s guide also touches on the most scope to include more catego- relevant decisions taken by the ries; 3) achieve equity for those Higher Administrative Court, killed due to terrorist opera- State Shura Council, Staff Judicial tions, as well as the families of Court, Council of Ministers, and military and police personnel; Revolution Command Council and 4) reduce the differences (dissolved). between retirees. GUIDE FOR PUBLIC GUIDE FOR PUBLIC EMPLOYEE DISCIPLINE EMPLOYEE LAW LAW This guide addresses: 1) the con- This guide acts as a code of cept of public employment; 2) conduct and addresses State and employee duties; 3) prohibitions Public Sector Employees Disci- to avoid regarding discipline vio- pline Law 14 of 1991, as amend- lations that may be considered ed, and the instructions and criminal offenses; 4) employee controls related to functional rights regarding bonuses, pro- disciplines, such as: 1) determin- motions, seniority, school leave, ing the duties to be performed and risk allowances; 5) types and by state employees and 2) effects of disciplinary penalties, prohibitions to avoid regarding related grievances, and requests discipline violations that may be to cancel such penalties; and considered criminal offenses. It 6) employee suspension and includes explanations of: 1) types related circumstances. and effects of disciplinary penalties, related grievances, and re- GUIDE FOR PUBLIC quests to cancel such penalties; EMPLOYEES’ SALARIES 2) employee suspension proce- LAW dures; 3) formation of investiga- This guide provides a detailed tive committees, their roles and explanation of: 1) the Articles functions; 4) the administrative of State Employees and Pub- investigation mechanism; 5) the lic Sector Law 22 of 2008, differences between separation, as amended; 2) the ongoing isolation, dismissal, and exclusion amending of Law 103 of 2012; from work; and 6) identifying and 3) the instructions and con- felonies. trols to facilitate the implementation of Law 22; in addition to PUBLIC POLICY detailed information on grades, DEVELOPMENT GUIDE salaries, terms and conditions FOR IRAQI LOCAL of allowances; promotion and GOVERNMENTS allocations of all types, such as The Iraqi Constitution and laws job title allowance, certification, set a relatively new role for marital status, children; occupa- local governments as actors tional hazards with all relevant developing local public poli- details; geographical location cies, often in coordination with allocations; and the provisions federal ministries. A practical

88 LEGACY tool support an informed and establish the concept of trans- healthy policy making process parency and governance of the for Iraqi local government of- procedures related to the sale ficials involved in policy develop- and lease of state property, d) ment, this guide provides: 1) an strengthen the steps to maintain overview of the concept of the public funds, and e) develop the public policy, its dimensions, and financial resources of govern- requirements, and an outline of ment institutions to positively the local policy-making process; affect the quality and quantity of 2) deeper understanding of the services delivered to Iraqis. roles and responsibilities of local officials and other concerned INTERGOVERNMENTAL policymaking actors; 3) a discus- GUIDE AND TECHNICAL sion on how local public policy RELATIONSHIP GUIDE is created; and 4) practical tips, This guide provides detailed based on experience, on how explanations of on the vertical to make the policy development accountability system between process more productive and the ministries and provinces and satisfying for all sides. Based on the horizontal accountability the experience of international system between the transferred policy models, this guide shares directorates and provincial various service-related policy- government, in accordance making best practices. with the provisions of the Iraqi Constitution and laws in force. It LAW OF SALE AND identifies the: 1) mechanisms of LEASE OF STATE local monitoring and inspection PROPERTY LAW to be practiced by the provin- MANUAL cial government’s legislative and This manual provides a sequen- executive levels; 2) technical tial explanation of the Articles relationships related to joint of the Sale and Lease of State legal, administrative, and financial Property Law 21 of 2013, includ- functions; 3) technical relation- ing: 1) related important laws ships of devolved directorates; and instructions and publica- and 4) reports and statistics tions; 2) legislative, Council of that must be submitted to the Ministers, Federal Cassation ministries by the provinces. Court, State Shura Council decisions; 3) regulations regarding [Note: After Article 45 of the the sale and lease of state prop- Provinces Not Incorporated Into erty procedures consistent with a Region Law 21 of 2008 Law, social and economic variables; as amended, was implemented, and 4) a summary of the Sale it became necessary to address and Lease of State Property Law the legislative shortage by defining 21 presented via explanatory a general Accountability Frame- plans, tables, and models that: work to clarify the mechanisms a) depict the significant impact for monitoring, supervision, and (positively) on work procedures, identification of the technical b) ensure a proper applica- relationships between the relevant tion of the law’s provisions, c) ministries and provinces.]

LEGACY 89 ORGANIZATIONAL DEVELOPMENT

PROCESS MAPPING This guide is a reference for: AND STREAMLINING MANUAL • Citizens — to make then This manual outline how to more aware of the steps and draw a process map and analyze documents required to more and adapt it for local govern- easily receive the desired ment use and offers practi- service cal guidance regarding which processes to concentrate on, • Newly hired employees — to as well as guides the reader make them aware of their through the task of improv- roles and responsibilities ing and streamlining these when assisting citizens to ob- processes. Process mapping tain their desired services is a simple and valuable tool for improving and streamlining GUIDE FOR existing processes of citizen- GOVERNOR’S OFFICE based services or designing the ORGANIZATIONAL required procedures for the MANAGEMENT new services. It enables officials STRUCTURE to visualize complex sequences This guide details how the of activities and tasks and facili- Organizational Management tates the careful analysis needed Structure System used in the to streamline and improve 15 provinces (not including services. the Kurdistan regional government): 1) consists of explicit and SIMPLIFIED CITIZEN implicit institutional rules and GUIDE FOR PUBLIC policies that outline how various SERVICES work roles and responsibilities Public services need to: 1) be are delegated, controlled, and delivered with integrity, 2) be coordinated and 2) determines centered on and responsive to how information flows from actual citizen needs, particularly level to level within the compa- those most vulnerable, 3) pro- ny. For example, in a centralized mote greater transparency, and structure, decisions flow from 4) enable ordinary citizens to the top down, while in a decen- seamlessly receive and benefit tralized structure, the decisions from required services. are made at various levels.

90 LEGACY FINANCE

INVESTMENT BUDGET ates. This manual: 1) presents PLANNING AND techniques to accurately esti- FORMULATION MANUAL mate O&M budget items, 2) de- The manual: 1) gives a compre- picts the main parameters to be hensive description of how to used for estimating each kind of integrate financial and technical expenditures, 3) explains how planning by way of a 20-step to use data from other director- process, 2) outlines how to ate zections in the estimating use public policy objectives set process; and 4) contains a spe- by the Provincial Council as cial section on how to estimate a framework for financial and salary items in the budget, given technical planning to achieve that this represents the largest community needs, and 3) portion of each directorate’s describes how to use outputs annual expenditures. from other government activities, such as essential service INVESTMENT BUDGET delivery oversight reports, as EXECUTION MANUAL inputs for the budgeting and The Budget Execution Manual is planning process. considered as a complimentary tool the Ministry of Planning’s ACCOUNTING MANUAL Standard Bidding Document FOR ADMINISTRATIVE Regulation and provides: 1) AND FINANCIAL a comprehensive description AFFAIRS DIRECTORATE of the main steps to follow This manual is based on Iraq’s when beginning the investment financial system and the general budget execution process and accounting procedures applied 2) reviews of: a) the importance by the Supreme Audit Board of the integration between the and contains all accounting investment and operation and procedures related to the Ad- maintenance budgets (given ministrative and Financial Affairs executed projects will defi- Directorate financial functions, nitely require O&M expenses including bank account recon- and these must be reflected in ciliation, monthly trial balance the budget) to help provincial reconciliation, different types of authorities execute a better general ledger entries, and how budget; b) the main obstacles to generate different financial facing executing the provincial reports. investment budget; c) the steps required to start the contracting GUIDE FOR OPERATION process, starting with prepar- AND MAINTENANCE ing feasibility studies and other BUDGET FORMULATION biding documents; d) the types MANUAL of contracting methods and The O&M budget is critical for procedures; and e) monitoring sustaining services to citizens and evaluating the investment and needs to receive special at- budget execution results. tention from provincial director-

LEGACY 91 GSP/TAQADUM

Representatives from sectorial directorates of five southern provinces attend a workshop on preparation of Service Delivery Improvement Plan (SDIPs).

92 CONCLUSION CHAPTER SIX CONCLUSION

Administrative decentraliza- context of the country. Despite tion in Iraq was performed the fact that the concept of under very dynamic and difficult sharing power between central political, economic and security and local governments was not circumstances. The project be- common practice in Iraq, due gan its administrative decentral- to the project’s approaches, ization efforts in 2014 when oil processes, tools, and techniques process dropped dramatically, developed, accepted, and used, ISIS took over one-third of the it received wide support from country, and a national election provincial and federal counter- conducted in April was fol- parts. Although the targeted lowed by the formation of new ministries initially opposed the government and appointment devolution of power, the project of the ministers, which took involved them in the process, several months. In addition, and the logical and practical 2014 saw the previous federal aspects of GSP/Taqadum plans government file a court injunc- softened their opposition. tion against the 2013 Amend- ment of Law 21 of 2008, which The main questions are: What is legal framework for adminis- has been implemented on trative decentralization as stated the ground in support of the in Article 45. transfer of 18 directorates of the seven targeted ministries? Despite these challenges, in the And what needs to be done to span of approximately three further decentralization in Iraq? years, GSP/Taqadum was able to develop and implement Iraq’s Following the most common decentralization plans based “3Fs” (Functions, Functionar- on bottom-up and top-down ies, and Finance) sequencing methodical approaches and us- for decentralization, GSP/Taqa- ing processes, tools, and tech- dum analyzed and mapped 816 niques tailored to the political, functions from 18 directorates social, cultural, and economic of the seven ministries using

CONCLUSION 93 Decentralization and Mapping at provincial levels to ensure Analysis Planning (DMAP). Of institutionalization and ease of the 816 functions, 610 were transferring and performing identified as local government functions. functions and were mapped to be transferred gradually based GSP/Taqadum also formed and on 14 criteria established to operationalized Administration assess the capacity of provincial and Financial Affairs Director- governments to perform the ates (AFADs) in all 12 provinces. transferred functions. These AFADs are now conducting budgeting, salary payment, The ministerial orders from the pension, audit, and reporting seven targeted ministries were functions for the provincial issued for the transfer of func- governments. In addition, seven tions and covered 69 percent legal mechanisms were estab- (402 functions) of the 584 func- lished at the provincial govern- tions that were analyzed (via ment level thus enabling them the DMAP process) as imme- to perform the transferred diately transferable. Given the functions. The project also short period of time and lack of drafted amendments to 55 laws federal focus on decentraliza- that were submitted by the pro- tion, the inclusion of 69 percent vincial governments to HCCP, of the functions mapped via the COM, and COR for approval to DMAP process in the ministerial harmonize the existing laws with orders is good progress. decentralization.

The DMAPs developed will The project also trained and continue to be the sound foun- assisted provincial governments dation for current and future in developing Service Delivery governments to follow to fur- Improvement Plans using per- ther devolution and a blueprint formance measurement system for developing the capacity of to the municipality, water, sewer, local government by the minis- primary education, primary tries and others. The provincial health care, vocational training, governments supported the orphanage, and youth services. results of DMAP process and had been advocating with the Regarding the ISIS controlled HCCP for the full transfer of provinces of Anbar, Diyala, the functions. The DMAPs will Ninawa, and Salah ad Din, as be used by both national and well as Wasit (affected by IDPs), provincial governments as road- the project established and maps for furthering the devolu- trained Field Technical Teams tion of functions and ensuring that developed plans for assess- the alignment of responsibilities ment and restoration of services and authorities. before, during, and after the crisis. Furthermore, 319 local functions and 67 ministerial func- As far as the second “F” (Func- tions were process mapped, tionaries), more than 500,000 streamlined, standardized, and staff from four ministries: published for citizen perusal Health, Education, Agriculture,

94 CONCLUSION and Youth and Sport, have federal government and social been transferred to the pro- accountability at local level. vincial governments. Thanks to the proximity of provincial Finally and most importantly, governments to the director- the third “F” is finance. As ates, which have taken over mentioned above, GSP/Taqadum service delivery responsibilities, established and operationalized many ghost positions have been AFADs, which act as miniature eliminated, staffing records Ministries of Finance in each have been corrected, and staff province performing budgeting, salaries, promotions, and pen- auditing, accounting, and report- sions are now handled by the ing functions. The provinces provincial government. The were trained on and institu- other ministries were slated tionalized the integrated and to provide a list of staff to the transparent process of develop- Ministry of Finance for transfer. ing investment and operation However, two major items must budgets. However, due to lack be done: 1) Ensure transferred of investment funds, they were staff commensurate with the unable to practice the invest- transferred functions; and 2) ment budgeting process. inventory all the assets in the directorates and transfer them As far as local revenue genera- to the provincial governments. tion, the provinces have formed Detailed steps for this transfer local revenue teams or units; were prepared by the project developed a roadmap for local and distributed to the ministries revenue generation; identi- and provincial governments. fied and listed potential local revenues; classified the current GSP/Taqadum also prepared a fees and charges as federal, lo- new organizational chart and cal, shared, and developed; and management procedures for passed a legal mechanism for the Governor’s Offices, which local revenue generation based were approved by the HCCP. on sound technical, transpar- These will ensure efficient and ent, and legal aspects. Several effective management of the 18 provinces have begun generat- directorates by the Governor’s ing local funds. However, buy-in Offices. from the Ministry of Finance is the next major step for fiscal The project also developed decentralization and local rev- roles, responsibilities, authori- enue generation mechanisms, ties, and accountability models collection, sharing, etc. between the Governor Offices and directors thus ensuring effi- As a final comment, the capacity cient delivery of services by the of local governments at the lev- directorates, while at the same els of Qada and Nahiya need to time holding them accountable be built and local election to be for the results. In addition, GSP/ held in order to further devolve Taqadum developed vertical the service delivery functions to accountability model between the government levels that are provincial government and closed to people before central- izing them at the provincial level.

CONCLUSION 95 U.S. Agency for International Development 1300 Pennsylvania Avenue, NW Washington, DC 20523 Tel: (202) 712-0000 Fax: (202) 216-3524 www.usaid.gov

96 Chapter 1 Name Here