To ward Country-led Development A Multi-Partner Evaluation of the Comprehensive Development Framework Findings from Six Country Case Studies BOLIVIA BURKINA FASO GHANA ROMANIA UGANDA VIETNAM © 2003 The International Bank for Reconstruction and Development / The World Bank 1818 H Street, NW Washington, DC 20433 Telephone 202-473-1000 Internet www.worldbank.org E-mail [email protected] All rights reserved. 1 2 3 4 05 04 03 The findings, interpretations, and conclusions expressed herein are those of the author(s) and do not necessarily reflect the views of the organizations or institutions they represent, or of the Board of Executive Directors of the World Bank or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. 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All other queries on rights and licenses, including subsidiary rights, should be addressed to the Office of the Publisher, World Bank, 1818 H Street NW, Washington, DC 20433, USA, fax 202-522-2422, e-mail [email protected]. ISBN: 0-8213-5669-0 e-ISBN: 0-8213-5670-4 Library of Congress Cataloging-in-Publication Data has been applied for. Contents iii Country Case Study Teams vii Abbreviations and Acronyms ix 1. Introduction 1 The Broad Development Context for the CDF Evaluation 1 Purpose of This Volume 1 Selection of Country Case Studies 2 Country Study Methodology 2 Main Messages from Country Case Studies 2 CDF Principles—Working Definitions 3 2. Bolivia 7 Methodology 7 Bolivia and the CDF: A Glass Half Full—Or Half Empty 7 Unique Country Characteristics 7 Long-Term, Holistic Development Framework 10 Country Ownership 12 Country-led Partnership 14 Results Orientation 17 Central Issues 19 3. Burkina Faso 21 Methodology 21 Burkina Faso: A Proud Development History—and Daunting Challenges 21 Long-Term, Holistic Development Framework 25 Country Ownership 26 Country-led Partnership 28 Results Orientation 30 The Way Forward 32 4. Ghana 35 Methodology 35 Background 35 Long-Term, Holistic Development Framework 38 Country Ownership 40 Country-led Partnership 40 Results Orientation 43 Conclusions 44 iv 5. Romania 47 Methodology 47 Romania: A Long and Rocky Transition 47 Long-Term, Holistic Development Framework 49 Country Ownership 50 Country-led Partnership 54 Results Orientation 55 CDF Interrelationships 57 A Proposal 57 6. Uganda 61 Methodology 61 Uganda: Rising from the Ashes 62 Long-Term, Holistic Development Framework 64 Country Ownership 65 Country-led Partnership 67 Results Orientation 70 Sequences and Reinforcing Relationships among CDF Principles 72 Budget Support, Aid Quality, and Fiduciary Assurance 72 7. Vietnam 75 Methodology 75 Vietnam and the CDF: Progress, Yes, but Challenges Remain 75 Long-Term, Holistic Development Framework 77 Country Ownership 78 Country-led Partnership 80 Results Orientation 83 Tensions 84 Annex: Evaluation Methodology 87 Endnotes 91 Boxes Box 2.1: Bolivia at a Glance 8 Box 2.2: Customs Service Reform: Tough Government Decisions, with 13 Help from International Agreements Box 2.3: Basket Funding Lessons from the Ombudsman’s Office: 15 It Takes Time and Money to Reap the Benefits Box 2.4: The World Bank and “Planet Bolivia” 17 Box 3.1: Burkina Faso at a Glance 23 Box 3.2: Donors to World Bank: “Know Thyself” 29 Box 3.3: Achieving the Millennium Development Goals: 32 A Probability Scorecard Box 4.1: Ghana at a Glance 36 Box 4.2: The First Health SWAp 41 Box 4.3: A Country with Real Potential 45 Box 5.1: Romania at a Glance 49 v Box 5.2: Romania’s Shared Vision—The 1999 CDF Consultations 51 Box 5.3: Jiu Valley Development: A Regional CDF Model 52 Box 6.1: Uganda at a Glance 63 Box 6.2: An Essential Element: The Joint Sector Review 68 Box 6.3: Grassroots Monitoring of Poverty-Reduction Progress 71 Box 7.1: Vietnam at a Glance 76 Box 7.2: The MDGs: Proof of Ownership 79 Box 7.3: Lessons from the Poverty Working Group 81 Box 7.4: Consultative Group Meetings: The CDF in Microcosm 82 Country Case Study Teams vii Bolivia Team Ghana Te a m Romania Team Nils Boesen Nils Boesen John Eriksson Laura Kullenberg Anthony Killick B. Lynn Salinger Jose Antonio Peres A. Laura Kullenberg Dumitru Sandu Juan Carlos Requena Mirafe Marcos Abena Oduro Vietnam Team Burkina Faso Team Alf Morten Jerve Dominique Lallement Uganda Team Laura Kullenberg Kyran O’Sullivan John Eriksson Ray Mallon Patrick Plane Mirafe Marcos Keiko Nishino Kimseyinga Savadogo David Pedley Han Manh Tien Della McMillan Rosern Rwampororo Editorial Team Laura Kullenberg Linda Peterson Julia Ooro Yezena Yimer Abbreviations and Acronyms ix ADB Asian Development Bank GNI Gross National Income BEAP Business Environment Action Plan GPRS Ghanaian Poverty Reduction (Romania) Strategy (Ghana) BPRS Bolivia Poverty Reduction Strategy GTZ Deutsche Gesellschaft fur (Bolivia) Technische Zusammenarbeit CDF Comprehensive Development HIPC Heavily Indebted Poor Countries Framework HIV Human Immunodeficiency Virus CEM Country Economic Memorandum IDA International Development CG Consultative Group Association CIDA Canadian International IMF International Monetary Fund Development Agency IRP Institutional Reform Program CPRGS Comprehensive Poverty Reduction (Bolivia) and Growth Strategy (Vietnam) JBIC Japan Bank for International CSLP Cadre Stratégique de Lutte Contre Cooperation La Pauvreté (Burkina Faso) JSR Joint Staff Review CSO Civil Society Organization (Ghana) LIPDHD Letter d’Intention de Politique de (Uganda) Developpement Humain Durable Danida Danish International Development (Burkina Faso) Agency (Denmark) MDBS Multi-Donor Budget Support DFID Department for International (Ghana) Development (UK) MDGs Millennium Development Goals EBRD European Bank for Reconstruction MFPED Ministry of Finance, Planning and and Development Economic Development (Uganda) EU European Union MOFA Ministry of Foreign Affairs ESMAP Energy Sector Management MP Member of Parliament Assistance Program (World Bank) MTEF Medium-Term Expenditure FAO Food and Agricultural Organization Framework FOIA Freedom of Information Act MTES Medium-Term Economic Strategy (Romania) (Romania) GDP Gross Domestic Product NATO North Atlantic Treaty Organization x NDC National Democratic Congress PNDC Provisional National Defense (Ghana) Council (Ghana) NDPC National Development Planning PNGT Programme National de Gestion des Commission (Ghana) Terroirs (Burkina Faso) NGO Nongovernmental Organization PPL Popular Participation Law (Bolivia) Norad Norwegian Agency for Development PRSC Poverty Reduction Support Credit Cooperation PRSP Poverty Reduction Strategy Paper NPP New Patriotic Party (Ghana) PWG Poverty Working Group OED Operations Evaluation Department Sida Swedish International Development (World Bank) Authority OMS/ Organisation Mondial de Santé SWAp Sectorwide Approach WHO SWG Sector Working Group PAF Poverty Action Fund (Uganda) UK United Kingdom PAR Public Administration Reform (Vietnam) UN United Nations PEAP Poverty Eradication Action Plan UNDP United Nations Development (Uganda) Programme PEP Pre-Accession Economic Plan UNICEF United Nations Children’s Fund (Romania) US United States PIU Project Implementation Unit USAID United States Agency for PMES Poverty Monitoring and Evaluation International Development Strategy (Burkina Faso) WHO/ World Health Organization OMS Introduction 1 The Broad Development Operations Evaluation Department (OED) to evaluate how the CDF approach was being Context for the CDF implemented. This resulted in a two-and-a-half- Evaluation year multi-partner evaluation effort. A broad array of stakeholders—representing donor and In early 1999, World Bank President James recipient countries, multilateral agencies, and Wolfensohn launched the Comprehensive civil society and private sector organizations— Development Framework (CDF)—a new joined in designing and funding the evaluation. framework for how the World Bank should do The work was overseen and the findings were business with recipient countries and other endorsed by a 30-member Steering Committee development partners. Two basic ideas are at and a 5-member Management Group. The main the heart of the CDF: one, that poverty reduc- source of evidence for the evaluation comes from tion should be the fundamental goal of interna- six countries selected for in-depth case studies— tional aid and, two, that the way aid is Bolivia, Burkina Faso, Ghana, Romania, delivered, not just its content, has an important Uganda, and Vietnam. influence on its effectiveness. The CDF promotes four principles, each of Purpose of This Volume which responds to past development assistance Collectively, the six country case studies pro- shortcomings and presents an approach for vide an unusually rich source of material on the improvement. First, development efforts should local dynamics of the aid business