República da Guiné-Bissau
Guiné-Bissau
Project Title: Create conditions for local governance and local development in Guinea Bissau UNDAF Outcome(s): Outcome 1: national institutions are effectively implementing national reforms that are gender-sensitive and promote good governance, political dialogue and social cohesion. Outcome 2: national and civil society institutions provide the population with basic social services of good quality, especially for the benefit of the most vulnerable
Outcome 5 : The most vulnerable population in the poorest regions have improved access to economic opportunities
UNDP Strategic Plan Outcome 2: Citizen expectations for voice, development, the rule of law and accountability are met by stronger systems of democratic governance Outcome 3: Countries have strengthened institutions to progressively deliver universal access to basic services. Outcome 4: Faster progress is achieved in reducing gender inequality and promoting women’s empowerment
Outcome 6: Early recovery and rapid return to sustainable development pathways are
achieved in post-conflict and post-disaster settings Outcome 7: Development debates and actions at all levels prioritise poverty, inequality and exclusion, consistent with our engagement principles
UNCDF Strategic Plan Outcome 1: Increasing financing for basic services and sustainable and inclusive growth Outcome 2: Establishing financing mechanisms to increase resilience to economic and environmental shocks Outcome 3: Fostering policy environment conducive to sustainable financing for
sustainable development.
UNDP CPD Output 2: Population groups, institutions and national organisations have improved production systems, diversified activities and contribute to the reduction of poverty in an environmentally sound manner.
Output 1- Capacity of local administrations and civil society (especially women’s Project Output associations) strengthened in the delivery of equitable basic services around the values of gender equality, climate change and transparency Output 2: The structure for coordination and development planning at the national, Regional and Local levels is in place and operational to ensure coordination of all interventions in the region of Gabu, Cacheu and Quinara, consistency with national sector strategies, accelerate on the MDGs and boosting economic potential (DEL). Output 3: Local Development Plans are funded and investments in gender sensitive service delivery are promoting the Food and Nutritional Security (FNS) and Local Economic Development (LED). Output 4: Programme is successfully implemented and managed.
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Programme Period: 2015 - 2019 Estimated total 5-year project budget:
Key Result Area (Strategic Plan) ______Allocated resources: Atlas Award ID: 00084600 IBSA US$ Start date: January 2015 BCPR US$ 500,000
End Date December 2019 UNCDF US$ 250,000
UNDP TRAC US$ 570,000 BPAC Meeting Date 18/11/2014 Management Arrangements ______EU US$ Modality: NEX BAD US$ Total US$ 12,070,000 Unfunded budget: US$ 10,800,000 In-kind Contributions ______
Approved by (Government): Mr. Mário Lopes da Rosa, Minister of Foreign Affairs, International Cooperation and Communities,
______, /______/______/2015
Approved by (Executing Entity): Mr. Degol Mendes, Secretary of State for Planning and Regional Integration,
______, /______/______/2015
Approved by (UNDP); Mrs. Maria do Valle Ribeiro, Resident Representative of the United Nations Development Programme (UNDP),
______, /______/______/2015
Approved by (UNCDF): Mrs. Judith Karl, Executive Secretary of United Nations Capital Development Fund,
______, /______/______/2015
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Table of content 1. Context and Situation Analysis ...... 4 1.1 General country context ...... 4 1.2 Political and institutional context ...... 6 1.2.1 Decentralization, de-concentration and local development ...... 6 1.2.2 National Development priorities ...... 7 1.2.2.1 MDG trends ...... 7 1.2.2.2 National strategy for Poverty Reduction (DENRP 2- Horizon 2020) ...... 8 1.2.3 Weak capacity of local administrations and CSO to deliver gender sensitive services ...... 9 1.2.4 Weak local and regional coordination mechanism to implement plans and national strategies . 10 1.2.5 Insufficient initiatives to induce economic recovery ...... 10 1.3 Current support to local governance and local development ...... 12 2. Strategy And Approach ...... 16 2.1 Introduction ...... 16 2.2 Guiding Principles ...... 17 2.3 Strengthening the social contract approach ...... 18 2.4 Targeted and Allocated Budget Support (TABS) and Local development Fund (LDF) ...... 19 2.5 Local economic development (LED) ...... 21 3. Geographical Focus and Target Population ...... 22 4. Programme Description ...... 24 4.1 Programme Goal and Objective ...... 24 4.2 Project outputs ...... 25 5. Partnership Strategy ...... 33 5.1 UNDP and UNCDF ...... 33 6. Implementation Modality ...... 35 6.1 Management Procedures of the TABS / LDF ...... 35 6.2 Division of roles and responsibilities ...... 35 7. Project Organisation Structure (tentative) ...... 37 8. Results and Resources Framework ...... 39 9. Risk Matrix ...... 43 10. Monitoring Framework And Evaluation ...... 45 11. Legal Context ...... 46
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Programme Summary
Guinea Bissau has suffered significant political turbulence with a series of Coup d’états since its independence in the 60’s. This has led to a weakening of state institutions and a growing estrangement between citizens and their state, hence a failing social contract, at all levels of governance. This can be witnessed in the low participation of the citizenry in political processes. The recurrent structural fragility of the economy has left the population with few meaningful opportunities, especially in rural areas. The population continues to be poor and confined to subsistence activities and informal trade. This situation is a source of discontent amongst the population, a serious threat to the livelihood of households, especially in terms of food and social security, and particularly to women and youth, posing extra strain to an already precarious condition. To build the interest of the population in the affairs of the state, a first step is to restore its confidence through investments in local governance for local economic development. The strategy and assumption is that, once the population sees the dividends of service delivery and economic development, it will engage more enthusiastically with the governance system and a social contract can be formed.
This joint UNDP-UNCDF programme aims to create the conditions for decentralization in Guinea Bissau building on lessons learned from the PADDL project. Although laws and regulations to support the decentralization process are in place little has been done to implement these and the country is currently characterized by a deconcentration of power. The main objective of the programme is to capacitate local, regional and national state authorities, with a focus on Gabu, Cacheu and Quinara Regions, in participatory and inclusive planning processes, upstream policy making and in technical, institutional and financial management to enhance quality service delivery, and support to local economic development. The proposed approach on Local development in Guinea Bissau seeks to improve food and income security of affected populations, especially youth and women affected by the prolonged political instability.
1. CONTEXT AND SITUATION ANALYSIS
1.1 General country context The population of Guinea Bissau is estimated to be 1.45 million inhabitants; 51.6% women and 50.2% between the age of 15 and 351. The country is governed by the Constitution of 1996, which established the semi-presidential system. The country is ranked 176 out of 187 countries in terms of socio-economic development indicators in 2011 and 15th out of 177 countries in the Failed States Index for 2012. The high level of poverty in the country, with 70 per cent of the population living on under US$2 a day, is directly linked to the recurrent political and institutional instability and frequent changes in government since independence in 1973. Some social indicators are improving, but at a rate insufficient to meet any of the Millennium Development Goals (MDGs) by 2015. Guinea-Bissau remains heavily dependent on overseas development assistance, which represents 15 percent of the country’s GDP, and funds over 50 percent of the country’s total expenditures.2
The recurrent political instability has undermined the implementation of ambitious and sustainable public policies. Between 2000 and 2010, the country has achieved an average annual growth rate of HDI 0.9%, against an average rate of 2.1% for sub-Saharan Africa and 1.68% for countries whose HDI are very low. Two factors contribute to the low HDI in Guinea-Bissau: (1) widespread poverty, with very low monetary income and life expectancy (48.6 years), closely linked to (2) the absence of income-generating
1 General Census of Population and Housing 2009 2 Analysis of Key Drivers of Conflict, 2013
4 opportunities and the difficulty of accessing quality health services. These weak indicators affect women in particular, and there is a gender inequality index of about 0.381 in 2007, placing the country in148th place amongst 155 countries surveyed.3
In 2011, IMF reported a 5,2% growth in GDP mostly due to the export of cashews, an industry that accounts for 85 percent of the export revenue and provides income for 80 percent of the population. The state was in good shape and could cover 80% of recurrent costs. This allowed for the extra budgetary support mostly from ECOWAS and Nigeria to be used for investments. This positive trend was interrupted by a coup d’état4 in 12th of April 2012, that sent the country back in disarray. In the aftermath of the coup, the socio-economic situation in Guinea Bissau further deteriorated, affecting the situation of the most vulnerable populations. All reform processes halted and donor funds were frozen. IMF reported a decline of -1,5% in revenues as the price of cashew nuts dropped on the global market. This had a negatively impacted the country’s economy and according to a report released by the World Food Programme (WFP) office in Guinea-Bissau, the country is now facing a situation of high food insecurity.
The primary sector (agriculture, livestock, forestry, and fisheries) accounted for 62 percent of GDP in 2008. Agriculture, dominated by cashew growing, employs 80 percent of the rural farming population and occupy 47 percent of farmland. The development of the export market for cashew nuts was a great success, particularly in the rural areas. It is thus a strategic sector for job creation and poverty reduction.5
The agriculture sector is however still characterized by obsolete farming methods and is subject to fluctuating international cashew prices. The potential for agriculture, especially processing, is largely underexploited and could be used as leverage to accelerate the country’s economic growth. Only 4 percent of cashew nut output is processed locally; the rest is exported unprocessed. The possibility of increasing production is real, taking into account the new plantations and the competitive yields (500– 600 kg/ha) compared with other producers, such as Brazil, India, or Vietnam. The internal rate of return (IRR) on investment in cashew nut processing is high. The country’s economy would benefit from locally adding value to cashew exports, which would provide major benefits in terms of growth, employment creation, and poverty reduction.
Eighty-six percent of women in Guinea Bissau perceive domestic violence as common/normal and 51 percent considers this acceptable. Women marry very young and 65 percent did not choose their husband. Genital mutilations of girls are among the highest in Africa. Looking at political participation, employment and activities, the numbers are gloomy. The restoration of constitutional order led to the investiture of new democratically elected authorities following the general, free, fair and transparent elections. The current government has nineteen percent of its framework represented by women, five as ministers and one as Secretary of State. Despite this women's representation rate in government, Guinea- Bissau is still among one of the worst countries in terms of gender equity, particularly in terms of political and economic empowerment of women, which requires changes in the future of women's status and its inclusion in the broader political and economic development. Thus, the empowerment and protection of
3 PBF Priority Plan. 4 The country is currently run by the transitional President, Serifo Nhamadjo, 5 DENRP
5 women should be an integral part of any effort to strengthen the social contract in Guinea-Bissau. A strategy based on gender requires conscious efforts to identify the specific needs of women, the obstacles and the vulnerabilities they face and develop a targeted approach for the development of skills within the social contract approach.
1.2 Political and institutional context Guinea Bissau can be characterized as a patrimonial and elite-centered state, with the military playing a central role in the functions and dispensation of the state. Constant changes in political leadership6 tripled down to rapid changes of state officials within the ministries, of regional governors and administrators of sectors, which contributes to a loss of institutional memory. Because of the political patronage system, a actors are constantly engaged in power games and positioning, so legislative and political issues are not moving. This has had devastating effects on the democratic and socio-economic development at all levels and the state as an instrument to provide security, service delivery and the opportunity to escape poverty has never been realized.
Guinea Bissau has a biometric system of all public officials and a basic statistics center which gives an overview of the numbers of public officials and fiscal expenditures but lacks data generated for each public sector and demographic figures. The lack of public data makes evidence based decision making and strategic planning difficult and more over the insufficient data makes it difficult to right-size the public administration based on workloads and public needs.
State institutions are essentially weak, underfunded and serviced by mostly inadequately skilled personnel. The National School for Public Administration (ENA) is currently being reformed to become the change agent for a people centred and effective administration, but years of neglect has had severe affected on the quality of not only the physical environment but especially the teaching methodologies, tools and materials, which are all outdated.
1.2.1 Decentralization, de-concentration and local development In 1998, the National Assembly modified the constitution in support of Decentralization, which included administrative and fiscal decentralization and opened up for local elections. These texts were approved in 2011 by the National Assembly, but some are still awaiting promulgation by the President. Despite of progress in the legal domain, the reality is that municipal elections are repeatedly postponed, financial management are still centralized and governors, heads of line ministries and managers of sectors are all still appointed by Bissau based on a patronage system.
Decentralization efforts have focused on strengthening regional governments around the governor and the promotion of local initiatives that build local capacity in programming and promoting local economies. The following steps will be taken to promote decentralization: (i) civic education and support to strengthen the voice of civil society (ii) Capacity building of state officials at pre-municipal and regional
6 The Country has had five Presidents and ten governments since independence. The presidents stayed in office for an average of 2 years, and the ministers for barley a year.
6 levels in participatory and inclusive coordination of development processes and technical skills (iii) support to public fiscal management and local economic development.
In 2009, with support from PADRL, a Ministerial Decree created pre-municipal councils in all administrative sectors in the Gabu region7. However, due to the absence of locally elected decision- making bodies, Committees for Sector Development (CSD) and Committee for Regional Development (CRD) were put in place in Gabu to manage the development process, including execution of basic services by local authorities with the financial and technical support by PADRL (funded by UNCDF and UNDP) project. This was an important step towards the implementation of decentralization in the pilot province.
PADRL capacitated targeted members of CRD/CSD on the following areas: participatory and inclusive planning to produce Local development plans, project management and management of funds. The five sectors produced Local Development Plans (LDP) that were validated at the sector level and at the Governorate. These steps were sufficient to give the LDPs a legal status.
However, responsibilities and mandate of the decentralized services at the regional level is not clear and needs to be reviewed. Such a review would feed into a decentralization policy to help formalize local governments’ role in the Local development processes. In addition, a strategy must be defined to improve the capacities of regional entities to deliver services. Currently, the local authorities have no capacities (human nor financial) to support quality service delivery and local development, so capacity building and right-sizing of the local administration and investments are key to meet the new demands created by the decentralization process.
1.2.2 National Development priorities 1.2.2.1 MDG trends Guinea Bissau has on average the lowest scores on MDG indicators in Africa. The country has a life expectancy of 45 years, while the African average is 48, the infant mortality rate is 145/1,000 while the African average is 105/1,000; maternal mortality is 1310/100, 000 while the African average during this period is 700/100,000. In the field of education, the rate of spending to basic education of the state budget is below 5%, while during the same period as the reference, the African average is 15.7%.
Guinea-Bissau will not achieve the MDGs by 2015 and intends to extend the deadline of the MDGs to 2020, while adopting a strategy to accelerate some of the MDGs by 2015. This requires more targeted sectorial policies and substantial resources to achieve the different goals set for 2015 and 2020.
In January 2011, the government committed to make gains in reducing gaps in achieving the MDGs by 2015 and 2020. A national MDG costing exercise was launched to cover the main sectors: 1) education, 2) health, 3) agriculture and 4) infrastructure. The financial needs to reach the MDGs is $ 210 per capita per year, three times more than the amount spent in 2008. This will require the State on the one hand to increase public spending and state revenues and other hand an increase advocacy to mobilize additional resources. The official development assistance should target strategic sectors, overcome the bottlenecks
7 Only Gabu city was granted the status of Special Delegation, which submits the councils members for local elections.
7 that hinder growth, and push for a structural transformation to achieve rapid gains in the realization of the MDGs.
The acceleration of the MDGs will only be effective if sectorial policies are sufficiently defined, well- targeted and linked to a system of efficient programming. It also depends on the effective engagement of the private sector, local authorities and donors. The conditions necessary to ensure a qualitative depends on: i ) consistent and sufficient coordination of sectorial programs; ii ) a system of allocation of budgetary resources based on the MDGs indicators; iii) better implementation and monitoring of sectorial policies taking into account the gender dimension and human capacities; v) civil society to be more involved at all stages in accelerating process towards the MDGs.
To clarify and operationalize key national priorities, the government has stepped up efforts provided sectorial strategies and action plans, such as:
National Agricultural Investment Plan (NAIP) National Plan for Health Sector Development (PNDS) 2008-2017 National Strategy for the Fight against HIV / AIDS Study of the sources of growth achieved in 2010 National Policy for Equality and Gender Equity finalized and will have a plan of action (PNIEG, 2012-2015) Education Sector Policy 2009-2020 Three-Year Plan for the Development of Education for the period 2011-2013 Water and Sanitation Plan 2010-2020 Multiannual programming Tool are in preparation (MTEF, program budget, etc.) A platform for management of ODA is being launched Updating the National Strategic Document for Poverty Reduction (DENRP 2011-2015) Strategic Plan for Reform of the Justice Sector Public Sector Reform
1.2.2.2 National strategy for Poverty Reduction (DENRP 2- Horizon 2020) The DENRP 2, covering the period 2011-2015, capitalizes on lessons learned of DENRP 1 through objectives that can be summarized by its title "Reducing Poverty by strengthening the acceleration of growth and the MDGs ". The Government recognizes that these objectives have not been meet so the DENRP 2 emphasize the need to continue and amplify reforms to strengthen and consolidate the governance and economic and financial conditions in the country. These reforms launches the Integrated Management of Public Finance (SIGFIP) which included the decentralization and modernisation of the public revenue system, provides a legal basis for a more efficient and transparent budget preparation, execution and monitoring system with internal and external control mechanisms to ensure achievement of its four strategic axes:
Priority 1: Strengthening the rule of law and republican institutions Priority 2: Ensure a stable and conducive macroeconomic environment Priority 3: Promote sustainable economic development
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Priority 4: Raise the level of human capital development
The DENRP 2 also introduces a coordination mechanism that will ensure that decision making, management and implementation of programs and projects are carried out efficiently and optimally8.
1.2.3 Weak capacity of local administrations and CSO to deliver gender sensitive services Administratively the country has four provinces and eight administrative regions which are divided into 37 sectors. Sectors are traditional structures, and villages (or tabancas) are headed by village chiefs who also represent traditional authority. The Gabu region is currently made up of five sectors: Gabu city Sonaco, Pirada, Pitche and Boe; Quinara that consists of four sectors: Buba, Fulacula, Empada and Tite. The Cacheu region consists of six sectors: Cacheu, São Domingos Bigéne, Bula, Caió, and Canchungo. All Regional and Sectorial administrations are headed by men and the local administration has a limited presence of women.
Decentralized technical services of the central government are present in the capital of the regions. Some of these services have their representations in the sectors. The Governorate of each region have their own budget and collect taxes in their respective areas of jurisdiction. The national Government transfers funds for the payment of salaries of a portion of the state officials at the regional and sectorial levels (Governor, Executive Directors, Secretaries of Directors, and certain state officials dealing with accounting and fiscal management). Since 2008, the regions are no longer required to send a portion of their revenue to the central government.
The political patronage system and centralized politics has led to a neglect of the regions. Where structures do exist their effectiveness in delivering services to local communities continues to be limited by physical, technical, financial and human resource capacity constraints and there is limited contact between the communities and the state officials. As a consequence the regions are suffering from numerous challenges, such as:
i) Weak capacity of local officials in planning, management and execution of public services. Weak technical tools and a lack of clearly defined administrative procedures. ii) Lack of accountability mechanisms towards the population, as there are no elected officials at the sub-national level. The Governors are appointed, and their position is weak as the line ministries report to their respective national ministries. iii) Vertical and horizontal information sharing and feedback mechanisms are weak. iv) Lack of adequate financial resources to cover recurrent costs and to invest in development. v) Limited awareness among the population of the role and the responsibilities of the state. vi) Limited knowledge on gender issues and presence of women in local administration and decision-making bodies
Guinea Bissau has been marked by a low participation of the citizenry in political processes.9 This is partly due to the weak social contract at all levels and there are few established arenas for the population to
8 Renforcement des Capacités d´Analyse et de Formulation des Politiques et de Gestion de l´Aide 2013-2014 9 TAM report 2013
9 push for change. Politics has been played out among a small group of elites with limited access by civil society. Due to marginalization from governance processes, the population has developed alternative systems for provision of services that normally should fall under the responsibility of the state.
CSOs are an important actor in establishing a space of trust with the Government towards inclusive development while at the same time take responsibility as economic actors to contribute to local development and services delivery in a conflict sensitive manner.
Few NGOs are today organized around ideology and they are currently too weak to drive any normative or right-based change processes. Although there are several radio, newspapers and TV channels, free public debates around political sensitive issues are almost nonexistent.
Over the past years, the emergence of CSOs platforms and women’s networks represented an opportunity for engagement with the government on strategic issues, yet their space is rather constrained by actions on the ground. There NGO law is not yet adopted which create space of various interpretation of “cooperation and engagement”. Additionally, most CSOs are donors-dependent, thus their accountability “favors” donors over that of the communities they serve.
1.2.4 Weak local and regional coordination mechanism to implement plans and national strategies Since 1974, Guinea -Bissau has tried several models to manage the de-concentrated administrations. This resulted in the creation of regional councils. These councils, chaired by the Governor, was supposed to be elected bodies with political powers over investments and fiscal management. Since the middle of this decade, the councils, headed by the Governor is assisted by a Regional Office of Planning, consisting of representatives of the decentralized departments of the State. The councils serves as a forum for consultation, coordination, programming and monitoring of development activities.
Given the limited human and financial resources the Government was forced to create a new structure related to the Office of the Governor (Office of Monitoring and Evaluation) in order to boost development activities underway in the region and ensure monitoring and evaluation by the administration of activities in the region. The support provided has not significantly improved the situation. There are still problems of duplications of the interventions by partners and regional and sector administrators have only limited achievements of planned activities.
1.2.5 Insufficient initiatives to induce economic recovery Available funds and the mobilization of domestic revenue is very low in the sectors (e.g. Boe;2 million FCFA) with the exception of the city of Gabu whose revenues ranged between 30 and 40 million FCFA. All observers agree that the collection of market tax and other fiscal measures are performed in a non- transparent and inefficient way and the potential for revenues generation has never been analyzed in depth.
The revenue collected at the local level are allocated to salaries of state officials at the regional and sector levels. There are currently no reflection how to cover operational costs or maintenance of infrastructure and utilities to ensure the continued provision of quality services. Nor how to mobilize resources to finance the local development plans.
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In this context, local authorities do not have the means to provide the functions that are transferred to them as part of the decentralization process: (i) social services ( through the construction or rehabilitation of investments in basic services in the areas of drinking water, health, education and basic sanitation), (ii) management / maintenance of services and existing infrastructure (iii) revenue and external fund mobilization for investments in development, sustainable fiscal management of basic services delivery to improve the rating on the MDGs.
The sub-national authorities do not use the Local Development Plans as a fundraising tool or as an aid coordination instrument, so they do not take advantage of available funds from donors such as other UN agencies, INGOS, the European Union, The African Development Bank, and other who are planning activities in the regions. There is therefore a need to initiate a sustainable mechanism for the mobilization of external funds as well as maximizing tax revenue to finance development in the area.
To improve the mobilization of tax revenues this project will adjust the framework to mobilize more funds as per recommendation from the study of financial and institutional analysis of the local entities (LAFIAS). The study recommends the active participation of the civil society in the Local Development Committees to increase transparency and horizontal accountability. When the population are more engaged in how public funds are spend the tax revenues increases. The study also identifies the tax potential of each sector in the area. In addition, it defines a strategy for the management and maintenance of infrastructure and utilities and a mechanism of financing of operating costs.
Cash income in this regions are very low. For this project the focus will be on achieving gains on the MDGs in the agriculture sector and food security through the promotion of local products. Agricultural production is mainly during the rainy season from May to September. Despite the high agricultural potential of the area, agricultural production covers only half of the basic food needs of the country in rice and the proximity to the Senegalese markets is untapped. In addition, the country has water resources (groundwater and surface), but lack water infrastructure for better water management. The country does not take advantage of the existing irrigation potential, which would allow it to have two harvests per year. In the villages, the drainage water from traditional wells and irrigation systems to water vegetable crops is done manually, which limits the productivity.
With the support of technical and financial partners, Guinea Bissau has adopted an ambitious National Agricultural Investment Program (NAIP), which falls within the guidelines of CAADP and NEPAD. NIPA identifies four major themes, which are designed to accelerate agricultural growth, reduce poverty and achieve food and nutrition security. The Comprehensive Program for African Agricultural Development provides an annual agricultural growth of 6%, the access of African products to world markets and the creation of local markets for agricultural products. NAIP is part of the dynamics of the development of food and nutrition security, the implementation of sustainable land management practices, management of water resources, improvement of rural infrastructures and infrastructure marketing facilitating market access, strengthening food supply and reducing hunger.
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1.3 Current support to local governance and local development The UNDAF of Guinea Bissau (2008-2012 and extended to 2014), identifies seven priority areas for UN’s support: - Outcome 1: National institutions effectively implement institutional, legislative and administrative, and gender-sensitive reforms to promote good governance, political dialogue and social cohesion. - Outcome 2: The institutional capacities of the Defence, Security and Justice sectors are professionalized and respect to the principles of the rule of law and human rights is strengthened. - Outcome 3: People have increased to quality access to justice and security services in targeted areas. - Outcome 4: National Institutions effectively implement appropriate and gender sensitive policies and strategies to promote sustainable economic development. - Outcome 5: The most vulnerable populations in the poorest areas have greater access to economic opportunities. - Outcome 6: National and Civil Society Institutions provide the public with basic social services quality, especially for the benefit of the most vulnerable groups. - Outcome 7: The most vulnerable groups in the poorest areas have access to and greater use of basic social services quality.
In the context of institutional and administrative reforms, the contribution of the UN system is to support the process of restructuring and modernization of the public administration in order to improve its performance, including its effectiveness, efficiency and transparency in the implementation of public policies and the provision of quality services to citizens. Taking advantage of advisory support and training activities, the UN system will help the government to develop a skilled and motivated workforce, and effective and appropriate tools for effective and efficient management of human, financial , material and information. United Nations system support for administrative reform will also contribute to strengthening the legal and regulatory framework for decentralization, capacity building of local actors in the field of local governance and the establishment of mechanisms and funding tools and of performance management10.
The extended UNDP Country Progamme Document (originally CDP for 2008-2012) reflects in particular UNDAF outcome 1, 6 and 7 and the Governance programme portfolio aims to strengthen the social contract to support state and peace building objectives. There are numerous project under this portfolio that are not adequately linked up, sequenced and timed to reach results on the MDGs. This joint programme will build synergies with ongoing efforts and make clear links to the current activities in each of the four programme outputs (see porgramme description below). In short, current UNDP projects are support to strengthen Coordination and planning structures at a national level to support the implementation of the DNERP 2. This includes assistance to coordination and planning of public finances. Technical support to Public Administration Reform, modernisation and decentralisation is ongoing, where the objectives are a) to get an overview of all laws and regulations in support of decentralisation that has
10 UNDAF 2013-2017, page 16
12 passed the Parliament and what is missing, b) assist with the Implementation of these laws, c) strengthen institutions and capacity building of state officials and civil society organisations, d) modernise the human resource management regulations, right-sizing of public administration, merit based recruitment, client- oriented management to improve service delivery. UNDP also work to strengthen the capacities for public administration at the central level of government to be better prepared to receive and manage funds by promoting transparency within finances through management and implementation of rule and regulation. UNDP’s current Support to civil society is focused on creating civil society platforms where actors can agree on a common policy in response to the political and social situations and to improve their legal framework. Together with UNOGBIS and UNWOMEN, UNDP works to Promote and protect Human Rights through sensitisation campaigns, review of legal regulations and women empowerment. In addition, UNDP has a larger project under the Global Focal Point for Rule of Law on access to justice which strengthens capacities to deliver legal assistance and explain legal procedures to the most vulnerable. A new integrated program to support Justice Sector Reform, including support to judicial police officers is currently being developed with a focus on the National level and in Cacheu and Quinara Provinces. UNDP has a permanent presence in support of elections cycle financed by EU: directly managed by the RR and DRR-P due to the sensitive nature of the elections after the coup. Currently providing technical supports to the CNE and all other electoral bodies including GTAPE (Bureau for Support to Electoral Processes) in preparation of an electoral schedule and identify support trough out the election cycle.
UNDP has an extensive portfolio to support Economic Development and Employment. With financial support from PBF, Japan and Spain UNDP supported youth employment in all regions in the past. Phase II of the project, which aimed to promote the development of socio economic recovery with a focus on infrastructure and youth employment with an inbuilt micro-finance mechanism, was frozen after the coup.
A pilot initiative was recently launched under the IRF window to support labour-intensive employment opportunities targeting youth focused on the rehabilitation of critical socio-economic infrastructure (water drains, local markets, slaughterhouses) and micro- development (small producers) to illustrate dividends of stability in the lead-up to elections. The project is intended to spearhead the implementation of a large portfolio of projects (USD 280 million) aimed at generating short- and medium-term (youth) employment through the rehabilitation of socio-economic infrastructure. The pilot project will implement five (5) labor-intensive construction sites covering the following regions: Autonomous Region of Bissau, Oio, and Cacheu, with a budget of USD 1.68 million for 9 months starting in February 2014. This project can be summed up as a pilot initiative to demonstrate the potential peace dividends of stability in the lead-up to elections, while beginning to expand income-generating opportunities with a view to systematically addressing unemployment in their aftermath. If successful, the proposed intervention would help Guinea Bissau take significant steps towards a more constructive social dynamic before the elections and thus lay the foundations for the large-scale project of state (re)-building envisioned in their aftermath.11
11 IRF HIMO Project Proposal (November 2013)
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UNDP also promoted youth employment through a micro-credit project that included training of micro- entrepreneurs in business development and management, as well as micro-lending. The project was implemented in partnership with finance services providers that had the responsibility of managing the credit component. This project was interrupted in 2013 due to lack of financial resources.
Through a South-South Cooperation, with India, Brazil and South Africa (IBAS) UNDP is facilitating local development through a program of access to sustainable energy for the rural population and improvement of agriculture productivity through provision of improved seeds, storage infrastructures, and low lands rehabilitation for rise production and provision of production tools.
This programme will build partnership with UN agencies active in local governance and development, to build synergies, sequence activities and draw on their expertise to ensure a robust and joint effort to support gains on the MDGs. FAO is supporting training and employment programs for youth and women in the agricultural sector. This includes supports to the intensification, diversification, valorisation of agricultural products (DIVA) and breeding activities in Oio, Bafata, Gabu and Bissau to enhance the food security of rural communities affected by soaring food prices. In addition, FAO is also providing institutional support to improve the capacity of public services to meet the problems of food insecurity, including technical support to irrigation schemes. UNCDF has supported the hardware and software of literacy centers to strengthen the “employability” of women and youth. UNICEF also helps restore many health centers, schools and modern water points. UNWOMEN supports the government to implement under the National Gender Policy and formulating the National Action Plan to stop violence against women. It includes supporting the Parliament in the articulation of laws protecting women and improving the legal framework to empower women and promote equal rights and access to services which will be key for this programme. They are also working on modules for civil servants on gender-sensitive planning and budgeting and they run capacity building workshop to strengthen women’s associations. UNICEF has on-going projects focused on education and literacy classes, nutrition, vaccinations and the fight against genital mutilation of girls. Together with FAO, UNICEF has promoted a multi-level approach to child malnutrition in Gabu and Bafata regions with funding from the MDG-F.
Due to the small size of UNIOGBIS and given its role as a political mission, the mission’s presence in the regions and in support of local administrations is limited. In early 2013, UNIOGBIS opened a regional office in Bafata and deployed two Police Advisors. Further, in late 2013, two offices were opened in São Domingos and Buba with two Police Advisers and a Political Adviser deployed to each office. With their presence in Bafata, co-location of staff working under this programme could be feasible and allow for day- to-day training and mentoring services to the local authorities and civil society grousp. Their new mandate, SCR Resolution 2103 established a revised ten-point mandate for UNIOGBIS, including democratisation, capacity-building, rule of law and human rights, fighting again drug trafficking and organised crime, peacebuilding and the coordination of international assistance. Although the new mandate is quite explicit with regards to support to Public Administration Reform and support to local level of government, no resources are allocated to support this function. However, there is extensive
14 cooperation between UNWOMEN and UNIOGBIS Gender Office in promoting the implementation of SCR 1325 and 182012.
The Peace Building Fund froze its funding after the Coup of April, and has just recently restarted support to youth employment and entrepreneurship through the IRF window. Guinea-Bissau was placed on the PBC’s agenda on 19 December 2007, following a request from the Security Council backing the Government of Guinea-Bissau’s request for inclusion on the Commission’s agenda. Ambassador Antonio de Aguiar Patriota of Brazil is the chair of the Guinea-Bissau Configuration. The Peacebuilding Priority Plan, which had an envelope of USD 16.8 million and which will be updated following the elections, included the following priorities: Priority area 1 - Support the implementation of peace agreements and political dialogue with a focus on SSR, RoL, and DDR. Priority area 2: Promote coexistence and peaceful resolution of conflicts with a focus on National reconciliation, Democratic Governance and the Management of natural resources; Priority area 3: Revitalise the economy and generate immediate peace dividends for Short-term employment generation and Sustainable livelihoods. Priority area 4 - (Re)-establishes essential administrative services within Public administration and Public service delivery (including infrastructure). It would be interesting for this programme seek collaboration with PBF and access the envelops targeting priority area 2 and 4.
The European Union has focused on technical assistance to support the human resource management reform, including the right-sizing of the administration, introduction of a biometric system of state officials and a transparent payroll mechanism. This programme will provide information on development needs in the communities that influences the skills needed and workload of the local administration to be able to respond to these needs. This information can inform the process of right-sizing the administration. However, as with all other partners, EUs funds and support were frozen as a consequence of the Coup.
The African Development Bank is funding the rehabilitation of the Ecole National d’Administration (ENA) building in Bissau and have a USD 1.6 million budget for training and capacity building activities. Their focus will be on modernising the curriculum of the ENA Bachelor’s programme. They are also looking at supporting an exchange programme for post-graduates. This programme will provide information on new tools, skills and methodologies needed to respond to the new responsibilities of the local authorities as a part of the decentralisation process.
After the Coup d’état all donors, except the ADB, froze all budget support and assistance to the Government.
12 S/2013/262
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2. STRATEGY AND APPROACH
2.1 Introduction The programme will be guided by the strategic objectives of the UNDAF and CPD and focus on deliverables under the DENRP 2 and the MDGs. As highlighted above, several initiatives are being undertaken at the national level and in the region of Gabu, Cacheu and Quinara to support local governance and local development. The new project will build on these interventions, explore synergies and complementarities and actively use the expertise of other development partners to ensure greater impact.
The overall programme will be implemented over 5 years and contribute to the UNDAF outcomes13 and to the achievement of the UNDP and UNCDF Strategic Plan Outcomes14.
Lessons learned from similar projects highlight the need for greater ownership in the process by local authorities to ensure coordination of efforts and a development that meets the demands expressed in the local development plans. Therefor it is important to have institutional bodies and strengthen coordination mechanism at a local level and their role of control and supervision to ensure an equal delivery of services throughout the region. Equally important is the upstream policy making and advocacy with the government (through policy dialogue in particular), to progress in decentralization and advocate for the establishment of a permanent mechanism for inclusive planning and coordination to ensure people centered public services and increase rating on MDGs indicators.
The PADDEL demonstrated that civil society organisation are interested to participate in the decision making and management of local development planning if they are given the space to do so. The coordination mechanisms (CSD / CRD) and results of inclusive and participatory was appreciated by the local communities in Gabu and by the central administration. The danger is however, that this engagement can create frustration if expectations are not met. UNCDF will therefor introduce targeted and direct budget support and make a local development fund available for service delivery. Local Governance for development is created in its action; The strategy and assumption is that, once the
13 UNDAF Outcome 4 (National Institutions effectively implement appropriate and gender-sensitive policies and strategies to promote sustainable economic development), Outcome 5 (Greater access to economic opportunities for vulnerable population), Outcome 6 (National and Civil Society Institutions provide the public with basic social services quality especially for the benefit of the most vulnerable groups) and Outcome 7 (The most vulnerable groups in the poorest areas have access to and greater use of basic social services quality). 14 UNDP Strategic Plan Outcomes 6 (Output 6.1.2. on achieving critical benchmarks for local economic revitalization), and Outcome 2 (Output 2.4: Frameworks and dialogue processes engaged for effective and transparent engagement of civil society in national development), Outcome 3 (Output 3.2. Functions, financing and capacity of sub-national level institutions enabled to deliver improved basic services and respond to priorities voiced by the public, Outcome 4 (Output 4.4. Measures in place to increase women’s participation in decision- making) and Outcome 7 (Output 7.5 South-South and Triangular cooperation partnerships established and/or strengthened for development solutions). UNCDF Strategic Plan Outcome 1: Increasing financing for basic services and sustainable and inclusive growth, Outcome 2: Establishing financing mechanism to increase resilience to economic and environmental shocks and Outcome 3: Fostering policy environment conducive to sustainable financing or sustainable development.
16 population sees the dividend of service delivery and economic development, it will engage more forcefully in the governance system15.
2.2 Guiding Principles The Programme is guided by recovery and developmental principles, including “do no harm”. As such, it promotes and fosters i) inclusivity and participation; ii) ownership, accountability and transparency; and iii) capacity development, gender equity, diversity; and sustainability. Moreover, the Programme aims at iv) ensuring area based approach and cross-sectorial linkages; and v) environment protection
Inclusivity and participation: Special attention is given to principles of inclusiveness by ensuring the participation of stakeholders throughout the planning, decision-making, implementation and M&E processes with the aim to mobilize and maximize the use of resources, and to ensure ownership and sustainability. The programme will avoid duplication and overlap with other donor support and will target the geographical location of its interventions accordingly. This includes national institutions, donors, UN agencies, international and national NGOs, CSOs, and the private sector. It will also encourage regional and International partnerships and foster South-South collaboration.
Ownership, accountability and transparency: Special attention is given to the principle of national ownership, e.g. by maximizing the use of existing structures and local resources (human, economic and physical assets) and enhancing capacities of target people while encouraging local procurement of goods and services to stimulate the local economy/market with the aim to create long-term impact and sustainability;
Capacity development: The Programme strives to enhance the capacity of local authorities and municipalities to tackle issues of delivery of basic social services to communities in an effort to build sustainability of the project interventions. In addition, the Programme supports local authorities’ capacities, at municipal and at governorate level, to coordinate partners on the ground, follow-up on and monitor their interventions. The Programme will also contribute to building the capacity of partners CSOs/CBOs especially in supporting grants and micro credit management. Assessment of capacities will be performed prior to contracting. During this process, opportunities for capacity building will be identified and support will be provided in this regard. Moreover, the prorgramme will support their capacities to contribute to building resilience, job creation and social cohesion peace building at both national and local levels.
Women empowerment: The empowerment and protection of women will underpin all effort with a targeted attention to women’s distinctive needs, constraints, and vulnerabilities and to build their skills and capacities to fully engage in the social contract and gain from economic development. The programme will ensure the allocation of at least 15% of the total budget towards specific gender indicators as per the UN Secretary General’s directives. Equal opportunities including in wages, access to
15 Analysis of key drivers of instability. UN strategy 2013-2017, page 16
17 services (social and financial) for men and women, urban and rural, and local communities shall be ensured and promoted.
Youth empowerment: The programme places a particular emphasis on Youth. It targets, in particular, new graduates with the aim to support their employability on the labour market. Moreover, it intends to facilitate their placement in public and private sector entities by subsidizing apprenticeship and on the job-training opportunities.
Area based approach and Cross-sectoral linkages: The programme adopts an integrated and inclusive community/area-based approach to maximize impacts and use available resources to contribute to the achievement of national goals and progress on off track MDG targets in Gabu, Cacheu and Quinara. The areas chosen are where National reform processes are piloted and where former and ongoing projects, such as PADRL and CAJ: access to justice and youth employment schemes have gained precedence to maximize on existing structures of inclusive and participatory planning processes to improve service delivery and enhance potential for Economic development and reinforces both social, institutional and legal protection for vulnerable women.
South-South Partnership is a key priority of the UNDP strategic Plan for 2014-2017 and represents an innovative approach to capacity-transfer with the assumption that regional cooperation provides a better socio-cultural fit and more suitable professional match. It resonates with the UN Civilian Capacity reform process that calls for more use of regional capacity and more flexible and bottom-up approaches when supporting fragile states.
Environment and disaster-risk reduction: Special attention is given to combating and mitigating the effects of climate change, e.g. by integrating and mainstreaming disaster risk mitigation issues into district and national development national planning and budgeting frameworks while strengthening the governance of natural resources, and building the resilience of communities to climate change and to the associated to socio-economic impact. The following are crosscutting issues in the Programme: - Ensuring sustainable development - Linking community level works with national policy and strategies - Being consistently risk sensitive both at activity and policy level. - Partnership building within the municipalities, governorates, the UN and other partners; - Focus on women and youth’s economic empowerment in particular access to finance, access to markets, appropriate domestic energy technologies, and women leadership. - Innovations in livelihoods and local governance interventions through pilot projects that can be scaled up for impact.
2.3 Strengthening the social contract approach The programme will build on the Governance for Peace: Securing the Social Contract approach in terms of promoting responsive institutions, inclusive politics, resilient communities and strengthening partnerships.
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First, responsive institutions are key to delivery essential services to the population. A core requirement is that the state and civil society are equipped with the appreciate capacities in critical areas, and that services are benefitting vulnerable groups and sensitive to gender. Secondly, inclusive politics occurs when the state and society exhibit mechanisms that allow for the legitimate expression of interests in the development of their communities. Thirdly, the approach calls for public entities to work proactively with none-state actors to improve the resilience and ensure that the society plays a role in monitoring, assessing, planning and responding to development needs to avoid crises. Fourthly, it foresees partnership as a means for operationalizing responsive institutions, inclusive politics and resilient societies. Partnership with national and sub-national governments, with UN agencies, NGOs and civil society partners are essential.
2.4 Targeted and Allocated Budget Support (TABS) and Local development Fund (LDF) TABS and LDF together with public finances capacity development are essential components of all local development assistance supported by UNCDF. This is a financial instrument made available to the sub- national level of government to finance public investment, identified in Local Development Plans to improve basic service delivery and accelerate on the MDG.
UNCDF believes that the challenges is not only to provide new sources of funding but also unlock existing sources of domestic and international capital to local communities to increase resilience to shocks. To this end UNCDF applies its seed funds and technical assistance to help develop innovative solutions that leverage or mobilize, allocate, and invest capital flows to the local levels. This includes assistance to strengthen the capacity and procedures of existing public and private institutions.
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This new approach, illustrated in the figure above, identifies how poverty reduction can be achieved through sustainable, inclusive and equitable local development. This innovative approach will provide support to mobilise, allocate, invest and account for the increased investment flows to the local level through strengthening institutions for local public and private finance. This approach is applied through four separate types of engagement fuelled with UNCDF seed capital flows to kick start the processes, coupled with technical assistance to able government or others to scale up, thereby mobilising more resources for local infrastructure and service provision. Local Development Fund will be made available mechanism put in place or strengthened to effectively channel investment funds to the local level. LDFs can also involve funds transferred between central and local levels within ministries. Financing instruments introduced through the Local Development Fund include performance-based grants for infrastructure and service delivery, performance based climate resilient grants, operational expenditure block grants, and business development grants.
The target institutions to local development include local governments, local private sector actors and other actors at the local level and works with central government institutions on the regulatory and policy environment for effective local development including supporting national strategies for local development. At the international level: engaged with networks of local governments and development partner networks on decentralisation and local development.
Gabu, Cacheu and Quinara have a total of 451 438 inhabitants. The total amount of the LDF for the total duration of the project is estimated at $ 6.5 million based on a calculation of $ 4.8 per inhabitations per year.
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Three rounds of financing of projects are planned during the project period. To access the funds, the activity must correspond to a priority identified in their PDL and they most have mobilized, depending on the circumstances, some of the funds (in-kind and / or cash).
This project provides support to analyze the revenue potential and maximize taxation in the target communities to mobilize locale resources (see the LAFIAS study) for the development of the community. The mobilization of locale resources may take some time to develop due to the limited capacity to mobilize domestic revenue and the low income of the local population. However, it is important the communities contribute to the funding of the Local Development Plans submitted to the LDF. It can be adjusted depending on the capacity of communities to contribute and can remain symbolic in the case of poor communities.
To decrease the disparities between sectors/pre-municipalities that have very diverse populations, and very large territories, a funding allocation formula with an amount per capita will be privileged. Other variables may be added to the calculation of allocations.
A contractual partnership agreement will be established between the project (UNCDF) and each sector. It defines the obligations, roles and responsibilities of the parties, predicts the financial mechanisms but also the assessment criteria according to which the sectors will be judged. Particular attention will be paid to the definition of ownership of infrastructure investments and public facilities funded under the LDF and the establishment of a mechanism to collect income from users of this infrastructure to ensure the operation and maintenance is managed in a sustainable manner.
It is important to understand the socio-economic and cultural differences within and between communities in Gabu, Cacheu and Quinara to avoid to exacerbate already existing disparities and maybe also create animosity among different population groups. Indeed, the project will focuses on a formula with a fixed amount depending on the level of poverty in the community, each associated with a lump sum plus an amount per capita. The exact formula, depending on the absorption capacity of local entities, will be established at the start of the project with support by UNCDF and project team, in consultation with the MPAD, local authorities and other civil society organisations operating in the area. An additional variable will be added, if necessary, to ensure an equitable distribution of investments between the administrative center and the rural area in the ratio (to validate) 40% for the administrative center and 60 % of the funds for investments in the outskirts.
2.5 Local economic development (LED) The approach to local economic development in Guinea Bissau seeks to improve incomes and food security of affected populations in urban and rural areas. This will be an important contribution by UNDP for Guinea Bissau’s economic revitalization, poverty reduction, peacebuilding and acceleration of MDG achievements in the short to long term. However, in order to achieve this the project should adopt a strategic approach that includes support (human – both personnel and skills, financial, physical, social, and political) to the national, regional and sector levels.
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The project will adopt a variation of the three-track approach elaborated under the UN Policy for Post‐ Conflict Employment Creation, Income‐Generation and Reintegration which, in the context of Guinea Bissau can be articulated as follows:
Track 1: Local economic recovery through business development services, access to finance, and MSME creation and capacity development, building on the partnerships and capacities created by the existing interventions; Track 2: Sustainable employment creation through development of institutional capacities at the national level and implementation mechanisms, building on the National Employment Policy
The UN policy recommends that activities in each of these tracks should be undertaken simultaneously, as early as possible, and with varying degrees of intensity and duration, depending on local circumstances.
The proposed approach on economic development in Guinea Bissau seek to improve incomes and food security of affected populations and adopts a comprehensive, market driven, gender responsive and community-based strategy, involving strategic partnerships at the local level and contributing to strengthening their capacity as responsible service providers, facilitators and advocacy actors. The approach builds on traditional elements of socio-economic interventions – putting people to work, injecting money into local economy, providing alternative employment opportunities and introduces innovative dimensions: enhances social cohesion through encouraging community members to organize to realise economic activities collectively (horizontal cohesion) and engage other actors (vertical cohesion) in joint economic ventures based on outside investment and risk sharing.
3. GEOGRAPHICAL FOCUS AND TARGET POPULATION
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Region Sector Area (km2) # of Inhabitants Population density GABU15 Pirada 934,4 29 837 31,9 Cidade de Bafatá 2 122,8 81 495 38,4 Pitche 2 021,4 45 594 23,9 Boé 3 287,8 10 878 3,3 Sonaco 783,6 37 804 48,3 CACHEU São Domingos 1 035,1 29 116 28,1 Bigéne 1 082,2 51 412 47,5 Cacheu 1 004,4 18 563 18,5 Bula 746 29 557 39,6 Canchungo 642,9 43 709 68,0 Caió 664,3 12 696 19,1 QUINARA Tite 699,5 14 862 21,2 Fulacunda 917,3 11 275 12,3 Buba 777,4 17 123 22,0 Empada 744,2 17 517 23,5
TOTAL 17 463,3 451 438 25,9 15 Baseline surveys are planned in the project. The basic data available for Gabu come from PADDL.
Gabu in mostly inhabited by Fulani and Mandinka; the Fula ethnic group represents about half the population. In Cacheu region the predominant ethnic groups are: Balanta, Manjaco and Felupe. In Quinara region the predominance are Balanta and Beafada. Regarding the number of inhabitants: Gabu has a total 205,608 inhabitants, the region of Cacheu has a total of 185 083 inhabitants and the region of Quinara 60 777. The total number of inhabitants of Gabu, Cacheu and Quinara, 451,438 match a third of the population. The three provinces have a very young population, 67% of the population is under 24 years. The main trade route through the eastern provinces of Gabu and north, neighbouring countries, Guinea and Senegal, to the capital Bissau coast and increasing trade potential. The Quinara region has the potential to install a port.
Deficiency of access to water is one of the biggest constraints of socio-economic development of the regions. Existing infrastructure is insufficient and far from meeting the needs of people and their livestock. The whole area has 659 water holes of which 443 are equipped with hand pumps. Of these nearly one hundred is down, with long repair times due to lack of spare parts on the market. Statements from the regional management of water resources indicate that 63% of the population of the region is still refueling water from traditional wells with a high risk of contamination. The table clearly shows that the situation in the region of Gabu is lower than the national average and is still far from achieving the MDGs as regards drinking water for all. The situation of hydrogeological characteristics is particularly complicated in the region of Gabu as the water is deep the cost of drilling is higher than average. As for sanitation, much of
23 the area has no problem, in fact, the local population are used to build latrines. In 2009, 9,324 latrines were recorded in the region of Gabu. The However, the problem with sanitation is particularly acute in the city of Gabu where there is no infrastructure and where water collection system and waste disposal does not work effective. Sanitation in the city of Gabu is also complicated because this city is rapidly expanding without any city planning to accommodate the increase in population numbers.
The local economy is based mainly on agriculture and livestock. More than 70% of the population is employed in these two sectors. Agricultural production of Gabu region is important for the country representing 13.5% of the national rice production, 33% for millet, 40% or sorghum, 38% of cassava, 37% of peanuts and 19% of corn production. The total production of rice in the region is 24 314 tons, other cereals (maize, millet, sorghum and fonio) is about 13,000 tons per year. The main cash crop is cashew. Domestic production increased from 57,000 tons in 1997 to 130 000 in 2009. Over 20 million from revenue generated is reinvested in the promotion of the manufacturing industry of cashew nuts.
Region rice Corn Sorghum Millet Potetos Cassava Peanuts Cacheu 38 145 853 1 100 1 534 2 619 9 945 5 263
Gabu 24 314 1 254 7 572 4 042 1 033 21 622 11 444
Quinara 12 283 138 104 87 2 841 1 559 825
Agriculture production in the three regions are important, varied and has the potential for excess productions. Industry experts believe that the capacity for expansion and increase productivity of especially irrigated rice production is significant. Rainfalls remain an advantage even if climate change should be taken into account.
In the mining sector, an operating agreement was recently signed between the Government of Guinea- Bissau and the company "Bauxite Angola." The Angolan company is committed to invest 321 million U.S. dollars (including the construction and management of the port of Buba (south of the country) for the export of bauxite. Regional authorities, NGOs and communities in Gabu and Bafata have already begun to sensitize the central Government so that a portion of revenues from the exploitation of this resource is returned to the regions to finance local development initiatives. The bauxite is concentrated mainly in the large area of Boe.
4. PROGRAMME DESCRIPTION
4.1 Programme Goal and Objective The overarching objective of the project is to create pilots for local governance and decentralization in the region of Gabu, Cacheu and Quinara that contribute to poverty reduction by improving the MDGs, food security and development of the local economy with the social contract at the heart of all efforts.
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4.2 Project outputs Outcome 1 will focus on capacity building of local state officials and civil society to promote decentralization and citizen participation toward improved delivery of equitable basic services around the values of gender equality, food security, climate change and transparency at the local level. Outcome 2 focuses on strengthening the horizontal and vertical coordination mechanisms that brings together state officials and civil society at both the local, regional and national levels to define development priorities aligned with national sector strategies toward accelerated progress on the MDGs, especially on those focusing on food security, gender and local economic development. It also ensures upstream policy advice, capture lessons learned, mobilize political will and funds to promote decentralization and leverage local financing for investments. As local Governance is judged by its action, outcome 3 ensures that Local Development Plans are funded to allow for gender sensitive investments that are promoting basic social service delivery, Food and Nutritional Security (FNS), and Local Economic Development (LED). Outcome 4 refers to the successful management, coordination and implementation of the joint programme.
Output 1: Capacity of local administrations and civil society (especially women’s associations) strengthened in the delivery of equitable basic services around the values of gender equality, climate change and transparency
Output 1.1: Establish technical, institutional and financial capacities of pre-commune structures in Gabu, Cacheu and Quinara and promote the decentralization policy.
The local administration in Gabu, Cacheu and Quinara will benefit from support to strengthen technical, institutional and financial capacities of regions and sectors, with a focus on gender equity, climate change and transparency.
During the phase of the programme, capacity building will be offered to the pre-municipalities in Gabu, Cacheu and Quinara in order to strengthen local decision making and planning processes through the elaboration and development of Local Development Plans (LDP). Such plans will articulate the delivery of equitable basic social services and investments around the values of gender equality, food security, climate change and transparency at the local level.
As the management and implementation of the Local Development Plans lays within the core responsibility of the pre-communes, their project management and contracting capacities will also be strongly strengthened and regular on-the-job coaching and advice will be offered by the project team. This will allow to empowering the pre-commune administrations to successfully implement the Local Development Plans.
Lessons learned from the establishment of the pre-commune and how they function and operates will feed into national debates in order to promote decentralization and policy reform. A national workshop will be convened to achieve this objective.
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This overall activity will be based on lessons learned from PADRL, coordinated with the planned support from the EU and the ADB and aligned to the implementation of the UNDP project on Technical support to Public Administration Reform, modernisation and decentralization.
Output 1.2: Citizens capacitated in negotiating development priorities in their community, promoting transparency and holding the state accountable. Women’s associations are empowered to promote gender equity in these negotiations.
To promote active participation and maximum engagement of the population in the affairs of the state, civic education campaigns will be rolled out in the media and through outreach in Gabu, Cacheu and Quinara Regions to promote awareness of roles, responsibilities and obligations of citizens and state and how citizens can engage in local development. A dedicated UNDP Communication Expert, who is a part of a Technical Working Group, co-located within the local administration in Gabu, Cacheu and Quinara, will assist the local administration to develop a communication strategy that will ensure a two-way communication and feedback loop between the local authorities and its constituents.
Women’s associations are limited, especially in the rural areas and they generally have low capacities. They are seldom engaged in the affairs of the state. Women’s associations and civil society forums will be supported so that they have an avenue for discussions and capacitated to voice their priorities and concerns in the development process. Women facilitators will be hired for this purpose. The UNDP communication expert will also facilitate space for youth and women’s associations in the CRD/CSD so they can become the change agents in the communities and improve the stature of women.
To promote accountability and transparency in the local development process, civil society and women’s associations will receive training in the M&E system used by the local authorities to track progress on development indicators, implementation of agreed development priorities and assure compliance with specific gender components. They will also benefit from a training on how to denounce malpractices or none compliance to agreed development priorities in a safe and effective manner that yields results. These efforts will be aligned to the National Gender Policy and coordinated with activities under the ongoing UNDP project to strengthen the capacities of civil society organizations and to strengthen the legal framework of associations. UNDP staff embedded in the Local administration in Gabu, Cacheu and Quinara will manage these training and civil society organization will be contracted and supported to facilitate these activities.
Output 1.3: Reinforced functionality and fiscal autonomy of Gabu, Cacheu and Quinara region
Pre-communes, the government and partners must work together enhance the effectiveness of local structures to ensure sustainable and lasting development of local public services - a development that fulfills the expectations of the local population. To achieve this, it is necessary to make an objective diagnostic on the deficiencies and potentialities within the pre-commune.
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UNCDF will apply Locally Owned Knowledge = Inclusive Growth (LoOking) diagnostic to assess the way that pre-communes function to helps them find appropriate solutions for management and governance challenges. Using diagnostics and analysis, LoOKING will identify both inefficiencies and economic, financial, and organizational potential at the local level. This should allow improving the functioning and fiscal autonomy of the pre-communes as well as the quality of basic services. The following step by step process will be applied in Gabu, Cacheu and Quinara region to promote investment in local development:
A comprehensive audit will evaluate the economic, fiscal, and organizational functioning of the pre-communes. A local conference will validate the audit. A scorecard will be used to track the pre-communes investment program and performance, including the identification of responsible actors and their roles.
Output 2: The structure for coordination, financing and development planning at the national, Regional and Local levels is in place and operational to ensure coordination of all interventions in the region of Gabu, Cacheu and Quinara, consistency with national sector strategies, accelerate on the MDGs and boosting economic potential (LED).
Output 2.1: Strengthened regional and local planning in coherence with national sectorial priorities for development
Local planning is a tool that fits into the principles and methods of public management focused on results.
To contribute to the overall sustainability of efforts, the programme will supply advisory services to both the national, regional and local level to ensure institutional strengthening. Support will be focused on the use of tools and building technical skills of the CRP/CSP, lines ministries and the staff of permanent civil servants to renegotiate the social contract to enhancing transparency and social accountability through participatory planning and budgeting, implementation, M&E and assessment processes.
The PADRL put in place a structure at a national, regional and local level to ensure horizontal and vertical coordination. This programme will build on achievements under PADDL and use the local development plans in Gabu which has received a first cycle of financing through the LDF. The plans will be updated during the project and aligned to the annual investment plans and budget circles. This programme will roll out the same structures and methodology in the regions of Cacheu and Quinara, starting off with a mapping of the populations needs and local economic potentials, vulnerability assessments including conflict and disaster risks, (conducted under Output 3) to inform the development of Local Development Action Plans and Territorial Marketing for the region.
To strengthen linkages between sectors, regional and center of government this programme will strengthen the role of the Regional office of Planning as the secretariat of the CRD/CSD and the office of monitoring and evaluation to ensure compliance and progress towards agreed goals. The office of
27 planning will receive technical training on communications to ensure the feedback loop with the population and the hierarchy, conducting strategic analysis and propose solutions to bottleneck as they arises. The technical skills of the office of Monitoring and Evaluation will be strengthened to ensure they can fill their mandate and especially their ability to requesting needed statistics and data for decision making. The office of planning, through their ministry is responsible to capture lessons learned and to support the CPD in upstream policy advice to their counterparts in Bissau to inform government’s policy and legislation.
To ensure sustainability of efforts and institutionalize change, the programme will enhance the capacities of the National School of Administration- ENA to be the lead agent of skills transfer by using tools and best practices developed by the PADDL project. ENA will be supported in three areas: 1. Curriculum development for a Master course that reflects the National Gender Policy the new laws, regulation and procedures as per the decentralization reform process and technical skills to improve targeted service delivery. 2. In assessing and analyzing capacities needs of pre-municipalities to improve inclusive and transparent service delivery targeted towards MDGs, 3. Develop training modules and conduct workshop (training of ENA trainers) to meet the capacity needs of the local administration in target locations.
This Master course will be developed through a South-South partnership between Guinea Bissau-Brazil and a third country. Professors from ENA in the partner country will be deployed to Guinea Bissau to work with the Ministry of National Education and ENA. The aim is to integrate a 6 months course within a new Master Programme at ENA as a part of a larger ongoing effort to strengthen the curriculum and quality of teachers and teaching in collaboration with ADB.
The National School for Administration (ENA) will benefit from a Training of Trainers so they can become the change agents and lead the reform process to improve the modus operandi of local development and governance in the regions. Based on capacity gaps assessment, lessons learned and the tools already introduced by PADRL in Gabu, ENA will be capacitated to organize workshops for local administrative civil servants in Gabu, Cacheu and Quinara that addresses their different needs.
Output 2.2: Strengthened CRD/CRS capacities to lead on inclusive planning and identify development priorities
The planning and M&E offices in the target regions are dependent on abstract statistics which are rather inaccurate and cannot adequately inform decisions and responds to the needs of the target community. Regions also lacks information infrastructure and the skills for effective data collection, analysis and planning. This programme will support “hardware” and “software” to strengthen the capacity of national data center, located within the N-CRD, to facilitate the work of the regional offices for M&E and Planning. The staff of the national data center will be capacitate to collect and aggregate statistics with a minimum of error. This statistics will inform baselines and allow for tracking of progress. Moreover, the data center will feed information to the CRD/CSD for evidence based decision-making. These efforts will be aligned to the implementation of the ongoing project Strengthening capacities for public administration to be better prepared to receive and manage funds, which is focused on Central level of government.
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This programme will be aligned to the DENRP project and provide assistance to revise development baselines and Indicators as per the MDG target for 2015 and 2020. They will also be supported to oversee and monitor progress on MDG indicators, provide quality assurance through a horizontal accountability mechanism and ensure alignment to sector strategies. The N-CRD will also be capacitated to ensure effective communications with the R-CRD and capture upstream policy advice as well as lessons learned for future transfer of competencies to other regions.
At the Regional level the CRD is chaired by the Governor, and attended by Line Ministries, Civil society Groups and UN agencies. The programme will strive to reach gender equity in the CRD and CRS. The Governors will receive management and consensus building training course to strengthen their role as the chair of the Committee for Regional Planning. In the spirit of the Paris Declaration and improving the effectiveness of aid, the CRD of Gabu, Cacheu and Quinara will be capacitated to ensure the Local Development Plans are consistent to sectorial strategies, to initiate a LED strategy focused on the potential and capacity of the region and use the LDPs as a tool to coordinate actors and initiatives (existing or planning) in their region to reach greater impact on MDGs goals. This includes building relations with other partners who brings in expertise to improve food and nutrition security and local economic development such as UNICEF, FAO and WFP.
The UNDP-UNCDF technical working group, co-located within the local administration in Gabu, Cacheu and Quinara will provide advisory services to the CRD/CSD and facilitate the need assessment and identify capacity gaps. The Programme will strive to reach gender equity also of staff employed as part of this Working Group to better support local women’s groups. The Technical Working Group will act as the interlocutor with ENA to help input to the training modules and assist with the facilitation of the workshops, led by ENA, which addresses capacity gaps.
Output 3: Local Development Plans are funded and investments in gender sensitive service delivery are promoting Food and Nutritional Security (FNS) and Local Economic Development (LED).
Local Development Funds is an essential component of any local development project designed and implemented by UNCDF. This output will be managed through three LDF funding windows: Improving basic social services FNS and LED window related to Activity result 3.1 Private sector and value chain promotion related to Activity Result 3.2 and 3.3.
The mechanism is designed to be disbursed rapidly and used in timely manner and targeting specific sectors. A rigid M&E framework will be put in place that will allow for performance-based incentives to empower the local administration to deliver strong results in core functions. It explicitly foreshadow a system of fiscal transfers to local governments which will be improved based on the PADRL experience in Gabu.
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This Joint programme will introduce gender sensitive financial and institutional market analysis of the sectors/pre-municipalities, based on the UNCDF Gender Equity Local Development experience to identify ways to increase the tax base so that they are able to provide an increasing share of operating costs and investments related to the improvement of food security, the LED and the MDGs. It is an essential tool for community development in a context where transfers from the central government are limited and inadequate for the needs. The project will also provide support to implement tax measures identified and validated with communities to mobilize local financial resources and make better use of funds (external funding) for which communities are eligible. Methodological support will be provided for a better consideration of the specific needs of women and vulnerable population groups at all stages of the process. This includes support for the implementation of gender sensitive initiatives to promote economic development.
Advocacy systems will be put in place to ensure funding of the new municipal structures based on the planning, budgeting and investment model of the Gabu pre-municipalities. Planning is not limited to the development of Local Development Plans (three-to five-year) and updating them. Planning must also cover the financial aspects. The project will introduce, at the local level, the use of technical and financial planning tools already used at central level (associated with the preparation of the MTEF). The establishment of a coherent planning process, based on market potential, is essential to activate the targeted budget support function. Targeted budget support was introduced in Gabu under the PADRL and financed a significant portion of the priority needs related to the development of basic services to the populations and to initiate activities that contributed to local economic development to reduce poverty. Technical tools and financial planning, such as the Expenditure Framework will link medium to long term investment to resources available to the community to ensure the sustainability of efforts. This model from Gabu will be introduced in Cacheu and Quinara with adjustments as per lessons learned.
Planning will be linked to: Effective mobilization of revenue for investment that can covers operational cost of basic service delivery and develop the local economy. The programme will finance a financial and institutional market analysis for each sector in both regions. Development of tools to monitor public expenditure by the authorities ; The develop a social accountability mechanism towards the population ; Introduce a performance assessment of local state officials on planning and resource management Develop tools to more effectively integrate the consideration and issues of targeting vulnerable groups, gender equity, food security, in the context of local economic development and climate change. Improve the mobilization of external funds to upgrade basic infrastructure related to the MDGs.
The programme will seek to lower the risk social and political instability this programme will strive to translate income opportunities created under the Peace building Project into longer-term gains and durable solutions, especially for youth and women, to contribute to some of the issues addressed in local
30 development plans and sectorial strategies, in particular with regard to sustainable employment creation, enhanced capacity for service delivery and local economic development leveraging the unrealized economic potential and comparative advantage of the Eastern Provinces in agriculture.
Special attentions will be given to develop innovative economic opportunities and enhance the alternative livelihoods especially environmentally sustainable ones which would combat and mitigate the effects of climate change, e.g. agri-business, notably through the adoption of water efficient irrigation technologies, and transfer of know-how in the energy sector (mainly through the production of bio-gas, invest in solar and wind energy etc.) and training of technicians, have great potential in Guinea Bissau to provide employment and generate sustainable income.
An online data base will be developed to facilitate and centralize the collection of project data. The system will be used to measure impact and facilitate the information sharing not only between the field offices in country, but can also make project information available to donors, supporting overall project transparency.
Activity result 3.1: Enhanced local economic development through support to capacity development and MSME creation.
A Local Economic Opportunity Assessment will be conducted and include a mapping on local economic actors, which will also include an identification of private sector actors in the target regions that can play a key role in the development of the local economy, with focus on those working in the agricultural sector and on the delivery of basic services. A capacity assessment of selected local economic actors working in the target areas will also be conducted.
The local market needs assessment will guide the development of MSMEs under this activity. MSME creation will thus be demand driven and respond to market demands in order to ensure resilience and sustainability. The programme will adopt durable solutions strategies while promoting entrepreneurial culture, providing financial and business services, professional and decent work, developing value chains and public-private-partnerships (PPPs) and enhancing the private sector’s role in contributing to local development and employment creation with the due consideration of gender and diversity sensitivity.
Beneficiaries will undergo business development training in complement to their income-generating activities. Based on the business training, beneficiaries will initiate a business plan, either individually or in groups in joint ventures, for the implementation of an economic activity. The programme will also support the formulation and promotion of groups including association and cooperatives (women and youth in particular). A feasibility study, conducted in cooperation with business advisors, will confirm if a proposed project idea is economically viable and access to a local market is ensured. If the business idea is feasible, micro grants will be disbursed for the start-up of the activity.
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A mentorship-programme of 6 month is provided to the new entrepreneurs in order to support the kick- start, viability and expansion of their businesses. Guidance and referrals will help achieve business success for the target groups. The training, guidance, business counseling and mentorship will be provided (to the extent possible) by a local experienced MFI. If the target group (majority women) is illiterate, literacy training will be provided as needed.
Activity result 3.2: Improved delivery of gender sensitive basic social services
A basic social service need assessment will be conducted in the regions of Gabu, Cacheu and Quinara. This assessment will allow identifying and build upon the needs of the population of the regions to propose suitable gender sensitive basic social services.
Based on this basic social services need assessment, a road map will be developed toward the strengthening of the pre-communes capacities to launch suitable gender sensitive basic social services. Relevant pre-commune structures will thus be established and their staff will be trained toward the delivery of such services.
Once an acceptable level of capacity will be reached, investment will be made toward the provision of suitably identified gender sensitive basic social services at the pre-commune level. The project team will offer assistance and coaching will be offered to the pre-communes throughout the provision of such services to ensure an effective and efficient delivery of such services. The offer of services will then be regularly reviewed and refined to best fit the changing needs of the Gabu, Cacheu and Quinara population.
Activity result 3.3: Value chains developed for specific prioritized commodities including public investments
Value chain analysis on priority commodities, identified as part of a participatory consultation platform and in line with the Local Economic Opportunity Assessment and Local Development Plans, will be undertaken. Priority will be given to value chain that have strong component of climate change mitigation and strong potential to cover the hunger gap and to create sustainable income streams for households.
The programme will support local authorities and government in establishing an effective coordination mechanism for value chains within and across the states through the creation of a value chain facility. The Facility will also constitute a pot of money contributed to by government, donors and the private sector to support the financing of specific aspects of the value chain development.
The programme will then support public investment in value chains, as part of the operationalization of the DENARP II. This will include capacity-building on what it means for the public to invest resources in value chains and appropriate allocation of funds in the national and state budgets towards development of value chains and related expenditure at the local levels.
Output 4: The programme is successfully implemented and managed
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Activity result 4.1: Efficiently supported programme management
This output and activity refers to the successful management, coordination and implementation of the joint programme.
5. PARTNERSHIP STRATEGY
The primary National partners to the Programme are the Secretary of State for Planning and Regional Integration / Ministry of Economy and Finance and the Secretary of State for Planning and Territorial Administration / Ministry of Internal Affairs. More over the Regional Governors and the Sector Administrations, and the CRD/CRS in the Regions of Gabu, Cacheu and Quinara will be the local partners.
Brazil, as the chair of the Peace Building Committee for Guinea Bissau will be invited as a key partner and donor to the Triangular South-South partnership with Guinea Bissau to support building capacities of ENA and local administration and improve investments related to Local Economic recovery, increasing basic social services in the post conflict context in target areas. Brazil is currently supporting small and micro entrepreneurs through SEBRAE (Brazilian Service of Support for Micro and Small Enterprises) which is a private nonprofit organization and operates regionally. This project will explore linkages with SEBRAE.
Furthermore EU was keen to support decentralization in the new evolving context. EU will support the set-up of pre-municipalities in prelude of effective decentralization in GB
The African Development Bank is a key donor that currently funds the rehabilitation of the ENA as well as curriculum development. AfDB also invests in public services including, goods, social and financial services. They will be invited as partner to support new capacity and curriculum development in participatory and inclusive planning, gender sensitive budgeting, monitoring and evaluation of local administrations performance and quality of delivery of services. Furthermore AfDB will be part of the Financer of the TABS and LDF to strengthen social basic services and LED by promoting inclusive finance and income generating activities.
5.1 UNDP and UNCDF This programme will respond to the demand in the strategic plan and the Policy Committee Decision 2013/8 on the Update on UN Assistance in Public Administration in Post-conflict Situations that commits the UN to seek how it can better mobilize resources (human and financial) to deliver on local governance and core government functions. This programme builds on technical expertise from UNCDF and UNDP for restoring local governance functions and options for sustainable livelihoods.
UNDP comparative advantages:
UNDP is well known as knowledge based organization and is well positioned to bring expertise and experience from the offices spread over the world, as well as access and share knowledge products generated across the world. UNDP has also a track record in capacities development and policy
33 formulation support and as a trusted Government partner. These aspects are the basis for UNDP comparative advantage in:
The mobilization of stakeholders, promoting dialogue and the establishment of coordination mechanism for development at all levels (alignment with the DENRP II, MDGs, sectorial policies) ; Supporting policy dialogue with the government to accelerate a process of decentralization, which is oriented towards national targets for the reduction of poverty and achievement of the MDGs and the implementation of a mechanism for transfer funds to sub-national entities. Supporting the planning and development of LED strategies contributing to the achievement of the MDGs. Integration of other areas of interventions on Governance (administrative, democratic and local) and related environmental and cross-cutting issues
Comparative advantages of UNCDF
The added value of the UNCDF is their support to medium to long term capacity development and investments to local administration/communities, to capacitate them to own their recovery process and accelerate service delivery and local economic development in a post crises context when it is most needed.
UNCDF has developed an approach and tools for local development that respond effectively in a context of post- conflict and political instability. Participatory planning mechanisms (CDS and CDR) contribute to create social consensus through the process of identifying and selection of priority investments with an eye on balancing discrepancies between municipalities. LDF facilitates the delivery of needed services and contribute to visualize the role of the state as a service provider in the eyes of the population. This approach helps to create a climate of trust between the administration (government and political representatives) and the citizen and provides and incentive for the population to reengage in the affairs of the state. The LDF is a flexible tool and relevant to post- conflict situations because it helps finance investments that can contribute to the improvement of social consensus and accelerate income and return to normal life. In this context, structural investments are preferred, as it’s provokes a consensus among populations to improve the coverage of services through the territory, which can have a multiplier effects on the local economy.
The approach and tools allow social, economic and environmental development of local communities and helps reduce poverty. This approach is based on a central assumption: the use of capital investment through targeted and applied, in the form of Local Development Fund (LDF), through the Public Expenditure Management System in line with budget support principles alignment and ownership, improve governance and institutional capacity development. This improvement favors the efficiency and effectiveness of the provision of infrastructure and services. This approach test institutional mechanisms for consultation, support planning and capacity building of local authorities to finance projects to respond to challenges to basic services delivery to the population, such as support to food security and local economic development.
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6. IMPLEMENTATION MODALITY
The project will be implemented by the CRD and CSD through a NIM modality, to ensure self-management and sustainability of the investments with close oversight from the Project Support Team and the Technical Working Groups imbedded within the Regional administration. Technical Advisory will be placed at the national level, located at the Secretary of State for Planning and Regional Integration to help with decentralization and governance policy reform. In addition, the technical advisor will ensure project oversight and manage the project implementation on the ground at Gabu, Cacheu and Quinara.
6.1 Management Procedures of the TABS / LDF The Local Development Funding scheme will be managed by UNCDF and funds will be made available to support service delivery as per LDP each year for each of the 11 sectors in Gabu, Cacheu and Quinara. The LDF funding mechanism will be set up and explained in the LDF Operation Manual. Technical experts will be embedded in the regional office in Gabu, Cacheu and Quinara for quality assurance and capacity building/mentoring.
Three cycles of financing are planned for investments of projects. To facilitate disbursement and based on lessons learned from PADDL, the contribution for infrastructure and investments in the development of basic services to the population (MDG) will follow rules and regulations in place but could also be reviewed after consultation with stakeholders.
Management procedures of the LDF will be based on the rules and procedures developed under the PADRL. Approval Committee will be established with representatives from the CRD/CSD and must include decentralized technical services, private sector and civil society organizations. 75% of the LDP will go towards direct investment of the LDP and the remaining 25% towards LED and to top up collective or individual savings of small businesses that meets the set criterias.
The performance bonus (10%) is maintained for year 2 and 3. Performance criteria will be established based on a common understanding between stakeholders. An M&E system that identifies performance criteria will be established and validated by UNDP / UNCDF and partners.
6.2 Division of roles and responsibilities The Government will contribute to the implementation of the Program by (i) ensuring that financial contributions to the treasury are made available, (ii) informing UNCDF and UNDP of any changes to the policy of decentralization and the fight against poverty; (iii) facilitating the coordination between sectorial services covered by the program ; (iv) capitalizing on procedures and instruments to support development made available by this programme (v), ensure timely implementation of investments according to own rule and regulations.
UNCDF is committed to UNDP , to: (i) finance a portion of the investments; (ii) provide technical and operational supervision of the PCU ; ( iii ) to provide expertise and experience in the management of the LDF , decentralization , food security and monitoring experience; (iv) coordinate its activities with UNDP and other potential partners to ensure the complementarity of other sources of financing of the project; (v) organize annually a joint technical review of the program to improve the efficiency of program delivery;
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UNDP engages with UNCDF to: (i) contribute to capacity building activities (ii) facilitate the operation and activities of staff in the field offices; (iii) Contribute to the financing of workshops; (iv) facilitate the participation of other development partners in the process decentralization local governance and local development; (v) Manage the South-South triangular capacity building scheme. The visiting professors from the South-South Cooperation scheme are responsible for the services provided to the ENA in Bissau as per Letter of Agreement. UNDP facilitation travel and DSA in relation to the South-South Cooperation for the 10 selected Professors.
Regional authorities will; (i) facilitate the work of the Project Management Unit in their localities ; (ii) operationalize the Committee for Regional Development to facilitate planning and coordination of interventions aimed at improving service delivery and economic development of the region, monitoring local investment and exercise leadership role in the CRD ; (iii) Call regular meetings with the CRD for planning, coordination and M&E purposes; (iv) contribute directly to finance project (electricity , rent, etc. . ) .
Local Authorities will: (i) support and promote, through public consultation, implementation of the strategy to mobilize internal revenue to improve the sustainability of rehabilitated infrastructures and developed services to populations; (ii) mobilize people in their community to participate financially in the maintenance and operation of public services and utilities ; (iii) define the terms of management of equipment taking into account the costs of operation and maintenance following the formulas that will ensure the sustainability of these investments.
Civil society and women’s associations will; (i) support and promote the social contract through regular participation in the CRD/CSD; (ii) mobilize people and conduct civic education campaigns, (iii) monitor the implementation of the development plans and hold local state officials to account, (iv) use media actively to promote transparency, accountability in the development process and share information
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7. PROJECT ORGANISATION STRUCTURE (TENTATIVE)
Project Steering Committee (PSC)
Senior Beneficiary Executive Senior Supplier Secretary of State for Planning and Regional Integration UNDP UNCDF
Project Assurance Joint Project Support Team
Governance Advisor and Bissau UNDP /UNCDF Committee of Regional Planning CTA- Technical Specialist (Local Focal Point Governance and Development Specialist based at the Ministry) National Coordinator NO-Admin/Finance/Procurement M&E Officer
Cacheu Technical Working Group in Quinara Technical working group in Committee Cacheu Committee Quinara of Regional Regional Focal Point of Regional Regional Focal Point Planning planning
Gabu Technical working group in Committee Gabu of Regional Regional Focal Point planning
Project Management: day-to-day management of the project rests with by the Committee of Regional Planning in the Regions with support by the Technical working groups with Regional Focal Point in each target region with the Coordination in Bissau (JPST).
The Joint Project Support Team (JPST): UNCDF and UNDP will set up a joint unit to coordinate and support the implementation of the project (JPSU) to oversee the planning and implementation of all project activities covering all sectors within the region of Gabu, Cacheu and Quinara. The CTA will be allocated within Secretary of State for Planning and Regional Integration / Ministry of Economy and Finance to support policy development and assist the ministry to fulfill their objectives on local governance for local development. The CTA is the programme specialist and he/she will assist the join programme close to the
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Project National Coordinator in the first three years of the project. The Project National Coordinator is who will coordinate the JPST. The JPST is responsible for managing the contributions of UNDP, UNCDF and mobilize expertise to provide the supports (identified in this document) to local authorities, partners and headquarters. The coordination unit will provide the link between the local / regional level and the national level. The JPST reports to UNDP and UNCDF.
This team is responsible for the daily management, business planning, organizational M&E and reporting. It ensures the interface between project coordination, working with local communities and civil society, and participating CBOs. JPST will explore synergies and complementarities with projects and programs operating in the region including those of UN agencies and others.
The Annual Work Plan including the budget is prepared by the JPST, under the supervision of the Project National Coordinator and in close in consultation with local partners and other stakeholders and submitted to the CTC and the COP for approval.
Project Steering Committee (PSC) co-chaired by the Government, UNDP, UNCDF and other donors contributing to the project. The PSC will provide overall direction and strategic guidance and agrees to counter measures/management actions to address specific risks raised by the project manager, approve project geographical coverage, review and adopt the project’s implementation modality and annual workplans, and co-opt as member any stakeholder/donor on need basis. The PSC shall be convened twice a year or as required.
The project assurance functions rests with the Committee of Regional Planning in Bissau to follow up on management actions, keeping track of progress benchmarks, perform regular monitoring activities.
Communication: development of viable communication strategy that will give full acknowledgement and visibility of the deliverables, design targeted messages to manage expectations, support monitoring and ensure transparency and accountability
Procurement of goods and services and the recruitment of personnel shall be provided in accordance with UNDP guidelines, procedures and regulations.
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8. RESULTS AND RESOURCES FRAMEWORK
Source of financing* Output Indicative activities Total UNDP BCPR UNCDF Gap 1.1.1 Train pre-commune administrative managers 1.1.2 Use lesson learned from pre-commune 1.1 Established functionality to 150,000 50,000 500,000 700,000 technical, institutional decentralization policy and financial capacities 1.1.3 National workshop to of pre-commune 1. Capacity of local start decentralization structures in Gabu, administrations and dialogue and policy Cacheu and Quinara civil society (especially and promoted 1.1.4 Elaborate/develop women’s associations) decentralization policy. Local Development Plans strengthened in the 1.1.5 Strengthen pre- delivery of equitable 50,000 450,000 500,000 commune project basic services around ownership and contracting the values of gender capacities equality, climate 1.2 Citizen are 1.2.1 Set up civic change and capacitated in education campaigns transparency negotiating through radio and development priorities community meetings in their community, 1.2.2 Raise awareness on 200,000 200,000 promoting accountability, transparency and transparency and the holding the state National gender policy accountable (especially among the communities women’s associations)
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1.3.1 Conduct comprehensive audits to evaluates the economic, fiscal, and organizational functioning of the pre- communes 1.3 Reinforced 1.3.2 Set-up local functionality and fiscal conference to validate the autonomy of Gabu, 50,000 100,000 150,000 audit and to identify the Cacheu and Quinara way forward region 1.3.3 Prepare and follow- up the progress made toward the implementation of the pacts for local development Sub-total output 1 150,000 200,000 150,000 1,050,000 1,550,000 2. The structure for 2.1.1 Train governor and 50,000 50,000 coordination, financing civil administration 2.1 Strengthened and development 2.1.2 Provide operational regional and local planning at the and logistical support to planning in coherence National, Regional and the regional office in Gabu, Local levels is in place with national sectorial Cacheu and Quinara 180,000 50,000 230,000 and operational to priorities for 2.1.3 Strengthen vertical ensure coordination of development coordination, integration all interventions in the and accountability region of Gabu, Cacheu and Quinara, 2.2.1 Map the priority consistency with 2.2 Strengthened needs of the population national sector CRD/CRS capacities to strategies, accelerate lead on inclusive 70,000 100,000 170,000 on the MDGs and planning and identify 2.2.2 Strengthen CRD/CRS boosting economic development priorities capacities potential (DEL).
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Sub-total output 2 0 300,000 0 150,000 450,000 3.1.1 Conduct baseline 3.1 Enhanced local survey on LED economic opportunities 25,000 150,000 175,000 development through 3.1.2 Train selected capacity development individuals/groups and support to MSME 3.1.3 Provide grants to creation selected 1,500,000 1,500,000 individuals/groups 3.2.1 Conduct basic social services need assessment 3. Local Development 3.2.2 Train and assist pre- 25,000 150,000 175,000 3.2 Improved delivery Plans are funded and communes toward the of Gender sensitive investments made are provision of basic social basic social services gender sensitive and services promote the provision 3.2.3 Invest toward the of basic social services, delivery of basic social 3,000,000 3,000,000 Food and Nutritional services Security (FNS) and 3.3.1 Undertake value Local Economic chain analysis Development (LED) 3.3.2 Establish an effective 50,000 100,000 150,000 3.3 Value chains coordination mechanism developed for specific for value chain prioritized improvements commodities toward 3.3.3 Support to financing enhanced food security of value chain and nutrition (FSN) and improvement initiatives Local Economic 3,000,000 3,000,000 Development (LED)
Sub-total output 3 0 0 100,000 7,900,000 8,000,000
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4.1.1 Programme support 300,000 1,200,000 1,500,000 costs 4.1.2 Operation 20,000 430,000 450,000
4. The programme is 4.1.3 Programme launch 50,000 50,000 4.1 Efficiently successfully supported programme implemented and management 4.1.4. Mid-term project managed evaluation by international 35,000 35,000 and national consultant
4.1.5. Final project evaluation by international 35,000 35,000 and national consultant Sub-total output 4 370,000 0 0 1,700,000 2,070,000 TOTAL 520,000 500,000 250,000 10,800,000 12,070,000 * indicative figures
Fund USD Year UNDP 520,000 2015-2017 BCPR 500,000 2015 UNCDF 250,000 GAP 10,800,000
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9. RISK MATRIX
Description Type Impact/probability Mitigation Response
Lack of political Political I3/P2 Regular meeting -UNDP and UN will will with the newly put decentralisation elected and local government development on the agenda of key stakeholders
Limited Institutional I2/P2 -The project will - UNDP will work capacities of provide capacity with public local development to institutions to implementing ensure appropriate enhance local institutions project and governance financial - Lack of clarity - The project will management, on division of transparent engage a wide range responsibilities implementation, of local project as well as partners and monitoring and different stakeholders to reporting agenda amongst facilitate and enable stakeholders. - The programme the project will follow a implementation and participatory ensure the project consultative ownership by the approach to assist communities/target national groups counterparts in reaching a consensus and agreement on division of labour
Limited Socio-economic I3/P2 The project will Downscale activities economic provide budget for service market, support in the provisions to those corruption and Regions to jump that can be fully stagnation start the process funded and focus on with a strict M&E 1-2 services, and framework capacity building.
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Funding Financial A resource Downscale activities shortfalls and mobilisation in case of serious delays. strategy would shortfall of financial have to be resources developed
Funding Political and I2/I2 A constant A traditional shortfalls and Financial dialogue with the capacity building lack of Brazilian embassy through workshops commitment to is essential to and training sessions engage on generate interest by South –South and to build on consultants/partners Partnership to existing will replace the role support ENA engagements in of ENA and local South-South capacity cooperation. building
Negative High I 3 Stronger focus on Communication perception of expectations communicating strategy segments of the P3 results and working public regarding with communities project due to limited - In critical information of locations UNDP the programme focuses on rapid delivery of highly activities and un-managed visible support to expectation communities - Joint analysis and mitigation of “public perception” risks is strengthened
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10. MONITORING FRAMEWORK AND EVALUATION
In accordance with the programming policies and procedures outlined in the UNDP User Guide, the project will be monitored through the following:
Within the annual cycle
On a quarterly basis, a quality assessment shall record progress towards the completion of key results, based on quality criteria and methods captured in the Quality Management table below. An Issue Log shall be activated in Atlas and updated by the Project Manager to facilitate tracking and resolution of potential problems or requests for change. Based on the initial risk analysis submitted (see annex 1), a risk log shall be activated in Atlas and regularly updated by reviewing the external environment that may affect the project implementation. Based on the above information recorded in Atlas, a Project Progress Reports (PPR) shall be submitted by the Project Manager to the Project Board through Project Assurance, using the standard report format available in the Executive Snapshot. a project Lesson-learned log shall be activated and regularly updated to ensure on-going learning and adaptation within the organization, and to facilitate the preparation of the Lessons-learned Report at the end of the project a Monitoring Schedule Plan shall be activated in Atlas and updated to track key management actions/events
Annually
Annual Review Report. An Annual Review Report shall be prepared by the Project Manager and shared with the Project Board and the Outcome Board. As minimum requirement, the Annual Review Report shall consist of the Atlas standard format for the QPR covering the whole year with updated information for each above element of the QPR as well as a summary of results achieved against pre-defined annual targets at the output level. Annual Project Review. Based on the above report, an annual project review shall be conducted during the fourth quarter of the year or soon after, to assess the performance of the project and appraise the Annual Work Plan (AWP) for the following year. In the last year, this review will be a final assessment. This review is driven by the Project Board and may involve other stakeholders as required. It shall focus on the extent to which progress is being made towards outputs, and that these remain aligned to appropriate outcomes.
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11. LEGAL CONTEXT
Where the country has not signed the Standard Basic Assistance Agreement (SBAA) and the Implementing Partner is UNDP (DEX), the UN, a fund/programme of the UN, or a UN agency:
The project document shall be the instrument envisaged and defined in the Supplemental Provisions to the Project Document, attached hereto and forming an integral part hereof, as the “Project Document”.
UNDP as the Implementing Partner shall comply with the policies, procedures and practices of the United Nations safety and security management system.
UNDP agrees to undertake all reasonable efforts to ensure that none of the [project funds]16 [UNDP funds received pursuant to the Project Document]17 are used to provide support to individuals or entities associated with terrorism and that the recipients of any amounts provided by UNDP hereunder do not appear on the list maintained by the Security Council Committee established pursuant to resolution 1267 (1999). The list can be accessed via http://www.un.org/Docs/sc/committees/1267/1267ListEng.htm. This provision must be included in all sub-contracts or sub-agreements entered into under this Project Document.
16 To be used where UNDP is the Implementing Partner 17 To be used where the UN, a UN fund/programme or a specialized agency is the Implementing Partner
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