Strengthening PRS Monitoring (SPRSM) project constitutes United Nations Development Programme’s (UNDP) support to the Ministry of Finance (MoF) for instituting a comprehensive mechanism for monitoring the targets set out in the PRSP-II framework. The project is being implemented under a cost sharing agreement with the MoF. The project is costed to the tune of US$ 6.487 Million , UNDP, MoF, Swiss Agency for Development and Co-operation (SDC), Australian Government Overseas Aid Program (AusAID), and the Dutch Government are the donors to the programme. At present the project has an unfunded budget to the tune of US$ 2,810,000.
Until December 2009, the project secretariats had been operationalized at the federal level in MoF and in three provinces including Punjab, Khyber-Pukhtunkhwa and Balochistan in their respective P&D departments. The process of operationalizing the project secretariat in Sindh is underway, and is expected to be completed in the current calendar year.
The previous monitoring system being used for the PRSP-I framework was based on district-wise quarterly pro-poor expenditure tracking reported by the Controller General of Accounts, and tracking of outcomes using social indicators reported on by the Federal Bureau of Statistics. In order to get a better grip on the utilization of funds allocated under the PRSP-II framework, MoF decided to scale-up the previous system by enhancing its results monitoring to include provincial level reporting on socio-economic indicators. The SPRSM secretariats report quarterly progress of poverty reduction expenditures and annual progress of pro-poor results, strengthen data collection and reporting processes and provide analysis support. Overall, the operationalized secretariats are contributing towards strengthening the development planning and monitoring capacities of the government.
US$ 641,000 is being funded by MoF, US$ 750,000 by UNDP, while US$ 1.5 million have been committed by SDC. Under the Umbrella of ONE UN Joint Programming, the project has received additional funding of approximately US$ 786,500 to date with a contribution of US$30,500 by AusAID and US$ 756,000 by the Dutch Government.
Furthermore, based on its recognition of the disaggregated impact of expenditure on men and women, MoF has continued to mainstream gender concerns within the MoF budgetary processes. For this reason Gender Responsive Budgeting (GRB) has been incorporated in SPRSM as a dedicated output for reviewing and analyzing public spending and allocations in pro-poor sectors through a gender lens to better understand the needs of men and women. The Institutional Assessment (IA) of the PRS Monitoring Process will serve as a mid-term review of the UNDP-MoF-EAD project framework.
2. Objectives of the IA:
There are three broad objectives of the review:
a. A progress review of the Poverty monitoring process within MoF, including a review of achievements against targets.
b. To review the progress of the implementation of PRSP – II framework and provide recommendations on realignment for further institutionalization of PRS monitoring processes, pro-poor policy planning and engendering the budgetary processes in the MoF.
c. Based on the analysis, recommend realignments/adjustments in the MoF’s poverty reduction strategies monitoring processes and programmatic framework.
3. Key IA Activities
The Institutional Assessment will use the following assessment parameters to review, examine and analyse the performance PRSP Secretariat and the role of SPRSM project in strengthening its capacities. These assessment parameters are as follows:
ï‚§ Evaluate the relevance of poverty reduction strategy monitoring for the MoF especially in light of informing the budget process and formulating the medium term investment frameworks including the PRSPs.
ï‚§ Gauge the relevance and advantage of PRSP in the environment of foreseen portfolio realignments between federal, provincial governments and local governments, due to the enforcement of the 18th Constitutional Amendment and the new/upcoming provincial Local Government laws.
ï‚§ Review the relevance of Gender Responsive Budgeting in its impact on the budgetary processes in the Government departments.
ï‚§ Analyse the goals and objectives of the PRSP secretariats. Review whether the support of the SPRSM in terms of its outcomes and outputs can help PRSP secretariat achieve their objectives.
ï‚§ Assess the overall performance of the MoF in implementing the PRS monitoring framework. This will require a review of comparing targets (with regard to desired outputs, objectives, institutional reform, expected impact and resources) against actual implementation results.
ï‚§ Review the management structure and technical capacities of the Federal and Provincial SPRSM secretariats in terms of project management, policy inputs, implementation coordination and skill-set; Examine how the current federal/provincial institutional anchorages are contributing towards achieving results?
ï‚§ Assess the effectiveness of SPRSM project in strengthening the capacity of PRSP secretariat in MoF. In the same light, assess the effectiveness of provincial SPRSM secretariats in strengthening the capacities of provincial poverty reduction strategies monitoring, development planning and budgeting.
ï‚§ The IA will analyse how the monitoring of the poverty expenditures by the PRS Secretariat contributed to an efficient pro-poor budget allocation at the federal and provincial levels. In this regard, determine whether the SPRSM budget expenditure supports the effort towards approved pro-poor allocations.
ï‚§ Review the Monitoring and Evaluation systems of the PRS Secretariat. Is the SPRSM project coordination and reporting systems offering strategic guidance, facilitation and synergizing to the PRS Secretariat and the Federal and Provincial levels?
ï‚§ Review if the implementation of SPRSM project has resulted in efficiency gains in the performance of relevant Wings in the MoF.
ï‚§ Evaluate the existing platforms which are available to MoF for performing the function of Poverty Reduction Strategies monitoring and the institutional adjustments which may be required for mainstreaming of poverty reduction strategies monitoring within the Government’s core systems.
ï‚§ Evaluate the competency gains amongst government officials and department/s in the area of policy planning, monitoring, implementation, and gender budgeting, since the start of the SPRSM project.
ï‚§ Assess the institutional commitments made by the Federal and the Provincial governments towards resourcing PRS monitoring / PRSP secretariats.
ï‚§ In the context of the 18th Amendment which has transferred the Federal Government’s responsibilities as per the concurrent list, back to the provinces, assess the required resource commitments by the government for capacitating the increased planning and monitoring of poverty reduction strategies.
ï‚§ Assess the expected impact of the programme at the policy and institutional level(s) with particular focus on Education, Health and Population Welfare.
Conclusions and Recommendations
ï‚§ Highlight key conclusions w.r.t relevance, effectiveness, efficiency, sustainability, and expected impact.
ï‚§ Provide recommendations on implementing necessary institutional prerequisites for ensuring that poverty reduction strategies monitoring and analysis is part of the federal and provincial planning systems.
ï‚§ From the perspective of institutionalizing PRS monitoring and analysis, propose clear realignment/adjustment for the UNDP technical assistance. Based on the lessons and conclusions drawn from MoF’s performance on PRS formulation and monitoring, table recommendations in terms of the Technical Assistance focus, distribution of roles between federal and provincial units, scope, staffing, management systems, linkages, positioning and resources. Special attention will be given to the upcoming institutional changes due to the 18th amendment and the provincial LG Laws.
ï‚§ Make recommendations for adjustments to enable capacitating of core Government resources on PRS monitoring.
There will be two outputs:
4.1. An aide memoir containing the main findings, conclusions and recommendations of the review
4.2. A detailed review report addressing all the assessment parameters including revised PRS monitoring related government framework(s).
5. Team Composition
The evaluation team will be composed of two members:
5.1. An Institutional Expert (with expertise in monitoring and evaluation, institutional reform)
5.2. A Senior Economist (with expertise in Public Finance, Economic Development and Policy Planning)
6. Duties and Responsibilities
The Institutional Specialist will be responsible for the following tasks:
• Analyze whether the SPRSM project was able to achieve its target activities, outputs and outcomes as proposed in the project document. The specialist will also analyze its role in providing quality data/information and in refined form for the PRSP II, MDGs, MTBF, MTDF and other Government policy documents etc.
• Contact and co-ordinate with all relevant organizations/ministries/departments/institutions at the Federal and Provincial level in order to review their role in implementation of the Results-based Monitoring and Evaluation (M&E) Framework of PRSP II in particular, and other Poverty Reduction Strategies in general.
• Conduct meetings with key stakeholders in order to determine whether due roles and activities proposed in the SPRSM Project document were carried out.
• Review the institutions/organizations responsible for providing inputs, outputs and outcome and impact level data for analysis. Analyze the efficiency of the responsible organizations in the provision of required data and the possible reasons for the lapses/delays in provision of relevant data.
• Review the role of key institutions/organizations in the coordination and support systems, processes and networks for strengthening Results Based M&E framework of PRSP II.
• Provide inputs to review government expenditure tracking systems and output, outcome monitoring mechanisms. In this light, the institutional specialist would recommend, where appropriate, to embed good practices and future recommendations.
• Guide and co-ordinate the review of the SPRSMP project Log frame throughout the project cycle and provide advice on the following:
i. Provision of technical advice for the revision of performance indicators, if required;
ii. Ensure realistic intermediate and end-of-project targets are defined;
iii. Ensure all critical risks are identified;
iv. Identify sources of data and collection methods and the frequency needed for this exercise;
• Provide analysis of SPRSM Projects overall contribution to the overall development and implementation of results based monitoring and evaluation systems and GRB Initiatives and its overall link with Government policy making.
The methodology is expected to involve:
7.1. Meetings with stakeholders (e.g. MoF, Provincial P&D departments, District Governments, Planning & Development Division, and Provincial Finance Departments, Provincial Bureaux of Statistics), and review of project documentation.
7.2. Meetings with international development partners supporting gender equality efforts. (UN agencies, and bilateral donors including SDC, DFID, etc.)
7.3. Literature review and analysis of secondary data; this will include reviewing of SPRSM annual reports, monitoring reports, financial /expenditure reports etc.
7.4. Visits to relevant federal and provincial government and ministries/departments and projects.
7.5. Draft report sharing workshop to discuss recommendations with stakeholders.
8. Timeframe and Inputs required
The timeframe for the evaluation will be as follows:
1.1. Finalisation of TORs – 25th May 2011
1.2. Fielding of mission – 26th June 2011
1.3. Aide Memoire – 16th July 2011
1.4. Final Report + Revised Programme Framework – 1st August 2011
1.5. Complete/final IA Report shared with UNDP, SDC, MoF, Provincial P&DDs, EAD – 20th August 2011.
The review team will be administered and coordinated by UNDP. Facilitation support will be extended by the federal and provincial SPRSM cells upon the request of the mission.
The costs of the review will be borne by the SPRSM Project.
11. Background Material
• Project Document SPRSM
• Time Use Survey (2007)
• Research studies conducted on TUS:
ï‚§ Infrastructure Development and its Effect on Allocation of Time in Pakistan
ï‚§ Time Allocation and Governance
ï‚§ Occupational Class, Income Level and Time Poverty among Employed individuals in Pakistan
ï‚§ Learning Versus Working
ï‚§ Female Employment
ï‚§ Information Sector and Social Protection
• Gender Aware Policy Appraisal – Health
• Gender Aware Policy Appraisal – Education
• Gender Budget Statement
• PRSP Annual Progress Reports and Quarterly Reports
• Medium Term Budgetary Framework
• Gender Aware Beneficiary Assessment Education Services (Jacobabad District)
• Gender Aware Policy Appraisal Education Sector Sindh
“Equally Qualified Women Will Be Given Preference”