[1]

AIDE MEMOIRE

(Ghana)

Implementation Support Mission for

(Statistical Development Project) (TF 097577)

(January 9-20, 2012)

1. INTRODUCTION AND ACKNOWLEDGEMENTS

1. The overall objectives of the Multi-donor Trust Fund (MDTF) Implementation

Supervision Mission (ISM) were: (i) to review progress in the implementation of project

activities (ii) progress on individual project components; (iii) identify any bottlenecks/delays

and agree on solutions to rectify these; and (iv) revise plans (work plan, procurement plan) as

needed based on (i), (ii) and (iii) above.

2. Mission members included: John Ngwafon (Task Team Leader, DECDG), Lynne

Henderson (Senior Statistician, DECDG, Accra), Anders Jensen (AFTDE, Accra), Smile

Kwawukume (Senior Public Sector Specialist, AFTPR), Robert Degraft-Hanson (Financial

Management Specialist, AFTFM), Charles John Aryee Ashong, (Procurement Specialist -

Consultant, AFTPC) and Lydia Sam (Procurement Assistant, AFCW1). Alain Gaugris,

(Statistician, DECDG) in-country donor funded statistician Nigeria joined the mission in the

second week. DFID and EU, the MDTF contributing donors, also joined the mission.

3. The World Bank team expresses its sincere appreciation for the support and

cooperation extended to it by the officials of the Ghana Statistical Service (GSS), in

particular the Program Development and Management Group (PDMG) and to the Post

Enumeration Survey team who allowed us to observe the PES-Census matching in Winneba.

A full list of persons met is given at Annex 1.

4. The team also expresses gratitude to Dante Ariel Mossi Reyes (Sr. Country Officer,

AFCW1) for management support and direction given to the team during the mission. The

team acknowledges the involvement of Development Partners in mission meetings,

particularly Kim Bradford Smith (Senior Statistics Adviser) and Lucy Booth (Results and

Evaluation Manager), Department for International Development and Valeria Okai (Program

Officer), Delegation of the European Union (EU) to Ghana.

2. CONTEXT

5. The Project Development Objective (PDO) is to prepare the Ghana Statistical Service

(GSS) for institutional reform and to ensure timely and extensive analysis and dissemination

of census data.

6. The project components are:

(i) Legal and institutional reform – financing legal and institutional reform at the

GSS to promote statistical production and coordination across the National

Statistical System (NSS);

(ii) GSS capacity building – finance strengthening of the capacity of GSS requiring

both long term technical assistance and training and the adoption of new

information and communication technology;

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[2]

(iii) Improve the quality and dissemination of statistical products and harmonizing

standards and methods according to international standards across NSS; and

(iv) Supporting the 2010 Census post enumeration activities including the analysis and

dissemination of the census data results and the implementation of the Post

Enumeration Survey.

3. KEY FINDINGS/PROGRESS OF IMPLEMENTATION

Overview

7. The MDTF is a two year $7m project closing end December 2012. At the project’s

inception, the project’s two donors (EU and DFID) contributed $3.5m in financing and

committed to make an additional $3.5m available as the project progressed.

8. There has been little evidence of progress on the project during its first year and only

$1m of project funding has been disbursed. As a result, both DFID and EU were concerned

about performance to date and GSS’ ability to spend the entire $7m in available funding

within the project’s timeframe.

9. The mission team raised their concerns regarding the lack of performance, and the

potential inability for the GSS to effectively spend the full amount committed to the project

with Ghana’s Government Statistician at the outset of the mission. Shortly thereafter, four

specific options that could guide the project’s evolution were discussed with the other

members of GSS’s senior management. Throughout the course of the mission, project’s

progress to date was assessed with the objective of discussing with GSS’s management and

Board which option seemed the most sensible course of action. The four options were:

(i) Evidence suggests progress - continue the project as before;

(ii) Evidence suggests no/slow progress - Introduce a time-bound action plan for short

period with a small number of triggers to be met and review progress at end of this

period;

(iii) Evidence suggests no/slow progress - DFID/EU would not make the second $3.5m

installment available to the MDTF. EU indicated that rather, it would redeploy its

contribution to other development projects in Ghana. However, DFID was not clear

as to what would happen with the funds. The project’s funding balance ($2.44m)

plus investment income of US$30,670, would continue to support the MDTF; and

(iv) Evidence suggests no/slow progress - DFID/EU would not make the second $3.5m

available and request the unspent funds to be returned. This amount of US$5.98

million would then probably be redeployed to other development projects in Ghana.

10. At the end of the mission, the team agreed to discuss pursuing option three with GSS.

The team had planned to de-brief the Deputy Government Statisticians (the Government

Statistician was absent due to an international commitment) on the 18th

January 2012 and the

GSS Board on the 31st January 2012. Given the mission findings and the likely option to be

pursued, the GSS Board were invited to attend the de-brief on the 18th

January 2012. On

Wednesday January 18 2012, the team presented the mission’s findings which provided the

evidence and rationale for pursuing option three. The Board and the mission team then

discussed what steps/ evidence would be required, and what key issues would need to be

addressed, to complete the project under the second option to ensure the original amount of

$7m would remain available. The meeting concluded by agreeing to give GSS two weeks to

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propose actions to respond to the key issues before making a final decision. Should the

proposed actions fall short, option three would be pursued.

Achievement towards the Project Development Objective (PDO)

11. The likelihood of achieving the PDO is moderately satisfactory. Since effectiveness,

7th

February 2011, there has been some progress against the overall PDO. GSS has

developed a strategy for institutional reform with identified key activities and a timeline for

implementation. Discussions with the Ministry of Local Government and Rural

Development (MLGRD) on inclusion of statisticians in the decentralization programme are

advanced. The new organogram for GSS has been disseminated and a timetable in place for

allocating current personnel to positions in the organogram with aim to complete by end

March 2012. This is however far behind the schedule outlined in the Government’s strategy

paper for reform. Any delay by the GSS in making clear decisions about retrenchment and

the numbers affected will have implications for timely completion of the process in an

election year.

12. Specifically on legal reform, a draft Statistics Bill has been prepared with the

assistance of a legal drafter. The draft Act is being circulated for comments and a cabinet

memo is under preparation.

13. Post enumeration activities of the 2010 Population and Housing Census are

continuing, though slower than initially envisaged. The Post-Enumeration Survey data

collection was completed in April 2011 about 4 months later than international guidelines

advocate. Data matching (PES and census) is nearing completion and reconciliation,

validation and analysis are planned for February and March 2012. Main census forms have

been checked, coded and edited prior to scanning. Scanning only started in July 2011, with

22% scanned by the time of mission in January 2012. Provisional results of the census have

been released, but there are concerns about the release of the full census results as scheduled,

with implications for the PDO.

14. During the July 2011 ISM there was evidence of good progress on 2011 project

milestones. However, progress has now stalled with direct implications for achievement of

the Project Development Objective.

Implementation progress

15. The overall implementation progress is rated unsatisfactory. While there has been

some progress in a few key areas, there has been very limited project expenditure, and

procurement for planned activities is extremely slow (see paras. 46 & 49). The ISM in July

2011 noted serious concerns about overall coordination between the top management,

technical leads, procurement and project management, which was impacting upon

procurement and disbursement. Steps were taken then to address what were considered

process issues. However, there has been no improvement in progress or speed of

implementation.

16. There has been notable progress in some areas (legal reform, institutional reform)

without project inputs. This is to be commended as it promotes internal ownership and

commitment. However, this has not been communicated to the Bank team and the allocated

resources not been programmed. Strategic forward planning needs to be strengthened to

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ensure actions take place as planned and are completed as scheduled. There is little evidence

of active monitoring of progress on project milestones.

17. The mission identified other issues which seem to have impeded project execution.

These include: (i) the need to foster, across the organization, a culture of taking responsibility

and following up on actions; (ii) improving the effectiveness and engagement of Directors

leading MDTF areas; (iii) further developing a culture of delegating decision-making

responsibility to relevant staff to accelerate project execution; (iv) fostering the culture of

innovation and creativity to quickly address execution bottlenecks.

18. Underpinning many of these issues appears to be a concentration of decision-making

authority which affects the speed of project execution across a range of activities: for

example, drafting and finalizing terms of reference resulting in delays in procurement and

clearance procedures requiring the head of agency.

Project management

19. The overall project management is rated as unsatisfactory.

20. There is a team with clear responsibility for project coordination - Program

Development and Management Group (PDMG), who have continued to provide timely

monthly and quarterly progress reports. PDMG have developed a strong working

relationship with the Bank and demonstrate commitment to successful delivery of the project.

21. However, there has been very slow overall progress on the 2011 work plan. While a

number of key activities have been started, and there is evidence of progress under each

component, there is a lot less progress than would have been expected at the halfway stage of

the project. There continues to be a risk where procurement is required that other planned

activities will not commence on time, jeopardizing completion of project activities by end

2012. The issue on project management seems to be related to the issues outlined in para. 17

above – staff are unmotivated or uncommitted and still do not clearly understand their roles

and responsibilities, lack of follow up by technical teams once Terms of reference etc. are

submitted, all underpinned by a slow approval process driven by centralized management.

22. Since the project is in the middle of its lifespan, it is imperative that these bottlenecks

are urgently addressed. There is the pressing need to consider existing internal

implementation structures to see if they can be made more efficient and effective and to

ensure appropriate delegation, accountability and responsibility among the different parties.

Component one: Legal and institutional reform

23. This component is rated moderately unsatisfactory. In July 2011, this was rated

moderately satisfactory with evidence of progress, particularly on institutional reform. The

foundational and orientation training were held in the last quarter of 2011, Personal History

Forms (PHF) have been completed by all staff, and discussions with MLGRD on integrating

statisticians within the MMDAs are advanced with a cabinet memo being prepared.

Management are in the process of assigning people to the directors positions in the new

organogram, a process expected to be completed and presented to the GSS Board on January

31st, 2012. The Directors will then assist management to assess and place staff in their

respective directorates, with aim to complete this process by end of March 2012.

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24. However the government timeline for implementing the reform is off-track with key

activities due to be completed by end December 2011 unlikely to be so until at least May

2012. GSS have continued to do much of the work themselves which builds internal

ownership and commitment. However, there still seems to be indecision on which

consultants are needed, when and for how long. Many of these, for example the change

management consultant, should have been in place to advise on the reform process and

communication with staff but terms of reference are still subject to revision.

25. On legal reform, GSS did much of the groundwork. They constituted a small team to

review existing laws in Ghana that refer to statistics, to review laws from a range of other

countries (e.g. Mexico, Canada, South Africa and Uganda) and to propose content of the new

law. A legal drafter was then recruited to assist GSS in translating their draft into a draft

Statistics Bill. This is near completion. The draft Bill has been circulated for comments and a

cabinet memo is under preparation.

Component two: Strengthening the capacity of GSS

26. This component is rated moderately unsatisfactory. No progress has been made on

this component since the last mission in July 2011. Some Technical specifications and Terms

of References (TORs) have been drafted but this component is far behind schedule on

implementation.

27. The training included under this component has not progressed, with consultants not

yet recruited. There are plans to develop training programs to meet the needs of different

groups of staff (e.g. below HND level) and on both statistical and non-statistical issues.

However, this is without the comprehensive training needs assessment being completed

(consultant not even recruited). It feels that there are a number of separate training activities

being planned without an overall training strategy or plan and appropriate sequencing. Recent

discussions have led to a review of the training consultancies and further revisions have been

made, with, for example, proposals to separate IT training from the non-statistical training.

Unless final decisions are made soon there will be will further delay to the procurement and

completion of activities.

28. The upgrading of IT (including local and wide area networks) was planned for 2011

to benefit from MOFEP plans to upgrade the IT infrastructure in GSS. However the

procurement process initially planned for August 2011 has yet to start and there remains a

lack of clarity on the different ICT elements and ensuring appropriate sequencing of

activities.

29. There has been no progress since July 2011 on upgrading Geographic Information

System (GIS) with either equipment or staff. Any steps taken were thwarted by demands of

the census for office space and staff time. Equipment deemed urgent in July 2011, and to be

procured through shopping are still not in place and there has been little additional progress

on digitizing the regions, with only four and a half regions now digitized compared with three

and a half in July 2011.

30. This component of the project accounts for about 23% of the overall budget (US$1.36

million). If procurement advanced quickly this has real potential to provide quick turnaround

in terms of project implementation and disbursement.

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Component three: Improving the quality and dissemination of statistical products

31. This component is rated moderately unsatisfactory. A key element of this component

– the production of manuals in ten subject areas was always scheduled for 2012, but steps to

procure the consultant are behind schedule and there are notable delays to the work plan for

this activity. The lead Director for this work has convened a team and work has begun on

compiling definitions and concepts and identifying the ten areas for the manuals. Working

groups have been identified for each of the ten areas but have not yet met. Terms of

reference for a consultant are not yet finalized.

32. The review of publications and assessment of quality and scope of products and

services, scheduled for 2011, is now planned to begin in February 2012. The initial plan was

to procure a consultant to lead this work, with procurement scheduled to start in August 2011

and final report due November 2011. It was decided more recently to undertake this work

through a peer review process – with representatives from other national statistical offices

coming to Ghana to work with GSS on this. However, there did not yet seem to be a clear

rationale for which agencies should be invited and what their individual comparative

advantage is. The TOR for the workshop is still under development. The team was advised to

undertake background research on the potential countries: Ethiopia, Kenya, Nigeria and

South Africa and their comparative advantages to ensure they meet the needs of GSS. The

team was also advised to consider timing of the event and prepare a budget given change in

approach from previous budget for this activity.

Component four: Supporting the 2010 Census post enumeration activities

33. This component is rated moderately unsatisfactory. This component accounts for

US$2.4 million or 40% of the total budget. The Post Enumeration Survey was undertaken in

April 2011 – later than the three to four months advocated in international guidelines. The

matching of the PES with the main census is nearing completion (expected 28th

January

2012) and reconciliation is scheduled to start on 30 January 2012. This is however almost 18

months after the main census data collection and 9 months after the PES was undertaken. It is

expected that the PES report will be completed by March 15, 2012. A consultant is being

recruited to facilitate with the PES report.

34. Provisional census results were released February 2011. There have however been

substantial delays on census data processing, implying a delay in the release of the full census

results (due 31 March 2012). In addition, none of the 50 staff to be trained in census data

analysis1, 15 staff to be trained in data processing, and 30 staff to be trained in data

dissemination were trained, and there is no concrete plan for when this training will take

place.

35. The support to other post enumeration activities – publication of final results and

drafting of analytical and thematic reports is scheduled for later in 2012. However these

activities will be delayed and their completion within the lifetime of the project threatened if

the data processing is not completed on time. Additional resources have been provided from

Government to ensure release of the full census results by March 31, 2011. At the time of the

1 UNDP funded training in data analysis in 2011 including 29 GSS staff, 2 of whom were funded from the

MDTF. This training was more general than the proposed census data analysis training included in the MDTF

and which GSS consider still relevant.

[7]

mission only 22% of the scanning had been completed. Calculations by the mission team,

based on figures given to the team in meetings and the proposal sent to the Minister of

Finance, suggest that scanning cannot currently be completed by end February 2012 as

planned to ensure March 2012 release of data.

Legal covenants

36. Progress in this area is satisfactory. All dated legal covenants required to be met

within six months of project effectiveness have now been met, although not within six

months of effectiveness. The last covenant, recruitment of external auditors, was only

recently met, some 11 months after effectiveness.

Fiduciary Performance

37. Overall the Financial Management (FM) arrangement of the project is rated as being

satisfactory and there has been no adverse change in the arrangements as documented in the

PAD. There are adequate systems including competent staff within the Accounts department

who has proved their competence in providing reliable and credible financial data together

with adequate supporting documentation.

38. Disbursement: The project was declared effective in February 2011 but the initial

withdrawal application only submitted in May 2011 for an amount of US$1,000,000. A

second withdrawal application for US$805,314.72 was submitted during the mission (total

funds in the project are $6,007,417).

39. During the mission the team reviewed expenditure incurred by GSS and paid for

using GoG funds and assisted the Project Accountant to prepare an SOE to claim

reimbursement. Total amount of expenditure eligible for reimbursement (using GoG funding)

is approximately US$250,000 whilst expenditure paid directly from the designated account is

US$597,000. The review noted that generally all expenditure had been duly authorized and

approved in line with the various guidelines as per the PIM and Government of Ghana

procedures. A sample test of transactions noted that all the expenditures are eligible and in

line with the objectives of the project.

40. Financial Management (FM): Most of the issues arising from the financial

management assessment appear to be management related and do not have a direct bearing on

financial management capacity.

41. As part of the FM team’s routine supervision to assess the adequacy of systems, the

Bank conducted a review of the financial management systems/arrangement at the Ghana

Statistical Service. The review noted:

Need to automate the accounting function - the current accounting function is based

on manual system and ledgers and this does not ensure efficiency in terms of resource

allocation, time management and the turnaround time for preparing reports. The

current system is an outdated version of Topaz and is not reliable and so not being

used. In view of this, the recommendation is for the GSS to engage a consultant to

review, design and install a suitable accounting package for the GSS and its regional

offices;

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Lack of firm commitments – concern that GSS could not provide substantial

commitment schedule for first quarter 2012. It is recommended that monthly project

monitoring review sessions are held between the Bank and GSS top management to

help track implementation; and

Poor Coordination - The issues of slow disbursement could be due to ineffective

coordination within GSS to support implementation and possible administrative

challenges limiting the effectiveness of the Project Coordinator.

42. The FM Risk rating is assessed to be Moderate and has not changed as documented in

the project Appraisal Document (PAD). Based on the review the FM team concludes that the

existing arrangements for the continuing adequacy and reliance of the financial management

systems for the project as reviewed are adequate and meet the minimum requirement for

financial management under OP/BP 10.02.

43. No issues of fraud or misappropriation or corruption came to our attention and a

review of the internal control procedures including the different levels of authorization and

approvals should minimize any such risk.

44. It appears that the challenges in implementation are not a consequence of financial

management or procurement but mostly administrative and bureaucratic. Until this issue is

resolved the project risks being evaluated as unsuccessful.

Procurement:

45. The overall procurement performance of the project is rated as Moderately

Satisfactory. Though several procurements have been initiated, these are behind schedule.

Out of the 14 items under Goods procurement, in the most recent revised procurement plan

made available during mission, 9 are yet to start; 4 on-going but behind schedule, and 1

completed. Similarly out of 29 items under Consultancy, 15 are yet to start with 4 behind

planned schedule; 2 on-going and 5 just started but behind planned schedule; 3 not planned

for; and only 2 completed.

46. Procurement Capacity: The procurement unit is staffed with four (4) permanent staff,

two temporary staff on short contract basis, and a recently recruited Procurement Advisor (a

seasoned procurement specialist) who assumed office on 15 November 2011. The head of

the Procurement Unit is an M. Sc degree holder, while two of his assistants have B.Sc and the

third a higher national Diploma (HND). Together they carry out procurement of Goods,

Consulting and Non-consulting services. Two of the officers attended the GIMPA-run

procurement workshops on Goods, Works and Services organized in October, 2011 while the

other had attended a similar workshop earlier in 2010.

47. The Procurement Advisor will lead, advise, participate, follow-up, monitor, review,

etc. procurement under the project in accordance with the stipulates of the legal agreement,

PAD and Project Implementation Manual (PIM) as well as provide support, training and

mentoring of the Ghana Statistical Service (GSS) staff of the Procurement Unit.

48. Review of Procurement Plan. The latest procurement plan obtained during the

mission when compared with the previous approved Procurement Plan (September 2011)

shows a shift of the scheduled planned activities. This is attributed to little procurement

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activities since the last ISM in July 2011. Furthermore this review has shifted a lot of

procurement activities forward giving a semblance of procurement on-course. However over

50% of such procurement on the project are yet to start, while almost over 80% are to be

implemented this year. Indeed by the earlier procurement plan almost all consultancy and

goods procurements should have been started by end Dec 2011. This indicates that the total

planned procurement on the project has been significantly delayed. Changing dates in the

procurement plan does not necessarily mean that systems are now in place to ensure that

these dates are adhered to. No further delays can be entertained if all the procurements

planned are to be completed before the project closure of 31 December 2012. GSS

procurement has been advised to take a zero tolerance approach to missed deadlines (for

example, in submitting TORs), with technical teams made aware they may lose that goods/

consultancy.

49. The mission discussed and agreed that the Procurement Plans must be revised and

continuously updated (with actual dates) to ensure that planned contracts will be completed

before project closure and to reflect procurement status accurately. A revised and updated

procurement plan should be submitted to the Bank for review and no objection by end

January 2012.

50. Furthermore the Procurement Advisor with the procurement unit should draw up

individual Action Plans for all the outstanding procurements and accordingly distribute to all

responsible personnel who are to take action at certain stages of the procurement.

51. Since no slippage in the planned activities can be tolerated at this stage of project

implementation, the mission is holding the team to the planned schedule dates as presented in

the current procurement plan made available during the mission.

52. Procurement Processes pending issues - Single Source Selection. The coordinating

team drew the mission’s attention to the proposed sole source selection to engage Information

Technology (IT) services providers to design and implement statistics analysis system, email,

and messaging and Intranet system for GSS. Although this procurement was to be done

originally under Consultant’s Qualification Selection (CQS) the coordinating team is

considering harnessing experience at Ministry of Finance and Economic Planning (MOFEP)

system and ensuring GSS implement a coordinated system with MOFEP. The mission

advises the coordinating team to be mindful of paragraphs 3.8 and 3.9 on Single Source

Selection of Consultants2 in the Banks Guidelines dated January 2011.

53. Given the explanation provided during the mission for the sole source selection, the

coordinating team is advised to stick to the original plan of using CQS method, and the

consultant who undertook the MOFEP work is welcome and advised to compete as well.

2 . [3.8 Single-source selection of consultants does not provide the benefits of competition in regard to quality

and cost, lacks transparency in selection, and could encourage unacceptable practices. Therefore, single-source

selection shall be used only in exceptional cases. The justification for single-source selection shall be examined

in the context of the overall interests of the client and the project, and the Bank’s responsibility to ensure

economy and efficiency and provide equal opportunity to all qualified consultants. 3.9 Single-source selection

may be appropriate in the following cases, and only if it presents a clear advantage over competition: (a) for

tasks that represent a natural continuation of previous work carried out by the firm (see next paragraph); (b) in

exceptional cases, such as, but not limited to, in response to natural disasters and for emergency situations both

declared by the Borrower and recognized by the Bank; (c) for very small assignments; or (d) when only one firm

is qualified or has experience of exceptional worth for the assignment.]

[10]

Please refer to paragraph 3.7 on Selection based on CQS in the Bank’s Guidelines on

selection and employment of Consultant3, January 2011.

54. Post Procurement Review (PPR). The mission informed the Project Coordinating

Team (PCT) that a PPR of the project procurement activities will be carried out after the

mission in early February 2012. The report will be shared with GoG and PCT. Informal

discussions will be held with the PCT to explain the PPR findings and recommendations as

well as solicit the PCT comments on pertinent procurement issues arising from the PPR.

55. Use of Procurement Tracking System (PROCYS). The mission scheduled PROCYS

training for GSS project staff and this took place on Monday 23 January 2012, to ensure that

the project staff can process their request through PROCYS-WB e-procurement system-

which is mandatory. Following the training GSS have been tasked to process their prior

review procurements to the WB through PROCYS.

56. Procurement Risk Rating. The mission recommends the current procurement risk

rating to be the same as previous; that is, MEDIUM-LOW (M-L). Although the project has

recruited a Procurement Advisor, his impact is only just beginning to have an effect on

procurement. If by the next mission, it is ascertained that procurement is back on track; and

as scheduled, effectively and efficiently, then the rating will be changed to Low.

Monitoring and Evaluation

57. Overall, monitoring and evaluation is rated as moderately unsatisfactory. During a

mission in April/May 2011 it was agreed that PDMG would provide monthly progress reports

to the Bank. Monthly progress reports have been received and within a few days of the end

of the month and report progress against activities. However, there is little evidence of

forward work planning that would identify key tasks to be undertaken and when and

resources required and on which subsequent progress could be assessed. In addition, there

does not seem to be an active mechanism in place for monitoring progress on the MDTF

annual milestones.

58. Monitoring of the MDTF was discussed with GSS. Agreement was reached for the

Bank to work with the Monitoring and Reporting team within PDMG on this. In addition,

monthly meetings will be held between the Bank and GSS top management to discuss the

monthly progress reports, review progress and agree activities for the next month.

59. The Results Framework was reviewed and progress on 2011 milestones updated.

3 [3.7 This method may be used for small

45assignments or emergency situations declared by the Borrower and

recognized by the Bank for which the need for issuing an RFP, and preparing and evaluating competitive

proposals is not justified. In such cases, the Borrower shall prepare the TOR and obtain expressions of interest

that include information on their experience and qualifications, eventually through an REOI as may be needed,

from as many firms as possible, and at least three qualified firms with relevant experience. Firms having the

required experience and competence relevant to the assignment shall be assessed and compared, and the best

qualified and experienced firm shall be selected. Only the selected firm shall be asked to submit a combined

technical and financial proposal and, if such proposal is responsive and acceptable, be invited to negotiate a

contract. Both technical and financial aspects of the proposal may be negotiated. If the negotiations fail with the

selected firm, the provisions of paragraph 2.30 apply. The minutes of negotiations shall be prepared and signed

by both parties. Awards of contract shall be published as per paragraph 7 of Appendix 1]

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4. AGREEMENTS REACHED AND PENDING ACTIONS/NEXT STEPS

60. In order to speed up project implementation, the key actions given in the following

table were agreed. Additional detailed actions are given in Annex 2.

Action Description Timeframe Component Responsible

Entity/Official

General

1 GSS consider internal management and

implementation arrangements to ensure effective and

efficient delegation and approval processed

January 2012 All GSS

2 Update work plan, budget and procurement plan in

line with review comments and discussions.

End January 2012 All GSS/ PDMG,

Procurement Unit,

Technical teams

3 GSS consider need for Project management Training

and skills within GSS, particularly PDMG and Senior

Management from Director and above

Jan/Feb 2012 All GSS/ PDMG

4 GSS identify census lead, a single person whose sole

responsibility is to coordinate all census activities

January 2012 Four GSS

5 PDMG to review the Results Framework and the

Annual Milestones and report on them

January 2012

All GSS/ PDMG

6 Monthly progress meetings established to discuss

MDTF monthly progress report

From beg Feb 2012 All GSS/ PDMG/ World

Bank

Procurement

7 Items in the Procurement Plan marked as Shopping

should be procured immediately

January 2012 All GSS/ PDMG,

Procurement Unit,

Technical teams

8 Bank Post Procurement Review (PPR) of the project

procurement activities will be carried out after the

mission.

February, 2012 All World Bank

procurement Team.

9 PROCYS training for GSS project staff –

COMPLETED

23 January 2012 All GSS – Procurement

unit

10 Speed up procurement of all consultants and goods

(particularly those required for other activities to

commence) and ensure zero tolerance of missed

deadlines.

January- February

2012

All GSS/ PDMG,

Procurement Unit,

Technical teams

Financial management

11 GSS to prepare and submit to the Bank a commitment

schedule for the next 3 months

Project Coordinator January 31st

2012

GSS PDMG / project

accountant

12 Director Of Finance to ensure that the audit

engagement is signed not later than January 31st 2012

Director of Finance January 31st

2012

GSS Dir of Finance

5. DISCLOSURE

63. The World Bank team and the Ghana Statistical Service confirm their understanding

and agreement to publicly disclose this aide-mémoire. The disclosure of this Aide Memoire

was discussed and agreed to with Ministry counterparts, led by the Acting Government

Statistician, Dr Philomena Nyarko.

[12]

Annex 1: List of Persons Met During the Mission.

Name of person met Designation/ Unit Dr. Grace Bediako GSS, Government Statistician Mr. Opoku Manu-Asare GSS, Deputy Government Statistician (Technical Support) Dr. Philomena Nyarko GSS, Deputy Government Statistician (Operations) Prof. Francis Dodoo GSS Board Chairman

Prof. Osborne Jackson GSS Board Member

Mr. Alex Frimpong GSS Board Member Mr. Kwabena Oku-Afari GSS Board Member Mr. Emmanuel A. Cobbinah GSS, Head Procurement Unit Mr. Mabruk Fuseini GSS, Procurement Unit Mr. Awal Mohammed GSS, Procurement Unit Mr. James Amissah GSS, Procurement Unit (consultant procurement specialist) Mr. Timothy Afful GSS, Acting Director of Finance Mr. William Antiaye Addy GSS, Head Accounts Section Mr. Gideon Abbey GSS, Finance Section Mr. Sylvester Gyamfi GSS, Head Programme Development and Management Group (PDMG) Mrs. Angela Otchi GSS, PDMG Mr. Martin K. Poku GSS, PDMG Mr. Ben S. Gadzekpo GSS, PDMG Mr. Isaac Odoom GSS, PDMG Mrs. Marian Tagoe GSS, PDMG Mrs. Comfort Ashitey GSS, PDMG Mr. Stephen Amoah GSS, PDMG Mr. Anthony Amuzu Pharin GSS, Survey Organisation Unit Mr. John Foster Agyaho GSS, Survey Organisation Unit Mr. Anthony Amuzu GSS, Head Data Management and Analysis Group Mrs. Jacqueline Anum GSS, Head Data Analysis Unit Mr. KB Danso-Manu GSS, Head IT/ Data Processing Mr. Eric Nyarko-Aboagye GSS, IT Advisor Mr. Kofi Agyeman-Duah GSS, Head Cartography Unit Mr. Adjei Robertson GSS, Cartography Unit Rev. Brenda Osei Kofi GSS, Acting Director of Administration/Human Resources Ms. Ruby Mensah GSS, Procurement Unit Ms. Alberta Dodoo GSS, Procurement Unit Mr. Owusu Bridget Yeboah GSS, Procurement Unit Mr. Henry Nii Odai GSS, Head Social and Demographic Statistics Division Mr. Baah Wadieh GSS, Head Statistical Coordination and Capacity Building Division Rebecca Ninson GSS Mr. Magnus Ebo Duncan GSS, Head Economic and Industrial Statistics Division Mr. Charles Cartey GSS, Head Public Information and Dissemination Mr. Ernest Enyan GSS, Member Census Data Processing Team Mrs. Abena Osei-Akoto GSS, Member Census Data Processing Team Mrs. Sarah Woode GSS Mrs. Samilia Mintah GSS, Member Census Data Processing Team Mr. Yaw Misefa GSS, Member Census Data Processing Team Mrs. Araba Forson GSS, Leader Coordinating Team of the 2010 PHC Aurelia Hator GSS Mr. Johnson Owusu Kagya GSS, Post Enumeration Survey Mr. Peter Takyi Peprah GSS, Post Enumeration Survey Mrs. Edith Mote GSS, Head, Survey Organization and Census Data Processing

[13]

Mr. Odei Gyebi GSS Mr. Emmanuel Boateng GSS Mr. Michael Beckoe GSS Mrs. Estelle Appiah Legal Consultant Mr. Ortwin Klebsch Economic Advisor Ruth Asare World Bank Unit, MOFEP Dr. Ismail Sulaiman UNFPA, Census Technical Advisor Mr. Bernard Coquelin UNFPA, Resident Representative

[14]

Annex 2: Matrix of agreed actions/ deliverables

Action Description Timeframe Component Responsible Entity/Official

Procurement

1 Review and revise procurement plan to reflect the following:

Review contract value in line with revised end dates

Prepare a Procurement Plan for Activities that can Realistically be done within

the time frame of the project which closes in December 2012;

Hardware and Goods should be priority Review date submission final report in

line with date contract signed (e.g. if long term consultancy add quarterly draft

reports)

Where procurement activities are underway/ completed add the actual dates,

amounts etc

Clearer and more informative titling of procurement activities

Week 9th

January 2012

All

components

GSS Procurement unit

2 Focus on preparing all necessary ToRs for procurement activities and submit to the

Bank

Jan/Feb/Mar

2012

All

components

GSS Procurement unit with technical inputs from leads

4 Review previously developed ToRs and resubmit to Bank for no objection. Items in

the Procurement Plan under shopping should be fast tracked.

Jan 2012 All

components

GSS Procurement unit with technical inputs from leads

5 Develop system for early notification to lead teams to provide procurement request

memo/ technical inputs etc

Jan 2012 All

components

GSS Procurement unit

6 PROCYS training for GSS procurement staff – COMPLETED Jan. 2012 All

components

WB Procurement specialists

7 Procurement unit send justification for sole sourcing on IT to Bank for review and

advice

Jan, 2012 Component

two

GSS procurement unit/ ICT adviser

Finance and Administration

8 GSS to prepare and submit to the Bank a commitment schedule for the next 3 months January 31st

2012

All

components

Presently the project could not provide details of any

commitment and this is an indication of slow

implementation. So such a report will help in monitoring

9 GSS to submit regular withdrawal applications to Bank to ensure turnover of

replenishments (every time $100,000 spent) and reduce delays

From Jan 2012 All

components

GSS project accountant with PDMG budget team

10 GSS instigate quarterly reviews of MDTF budget From end first

quarter 2012

All

components

GS project accountant/ PDMG/ Bank

11 The Dir. Of Finance to ensure that the audit engagement is signed not later than

January 31st 2012

January 31st

2012

All

components

This is to ensure that the project can meet the financial

covenant submission deadline date of June 30, 2012.

Project management (including budget, work plan)

12 Review and revise work plan and budget and ensure in line with revised procurement

plan

Jan 2012 All

components

PDMG with GSS Procurement unit

13 Add actual expenditures to budget to identify over and underspend versus budget as

basis for planning other activities.

Jan 2012 All

components

PDMG with project accountant

[15]

14 Review budget in line with savings from activities not undertaken, consultancies not

required, shorter consultancies etc and reprogramme to other activities.

Jan 2012 All

components

PDMG

15 Increase frequency of Director meetings from monthly to fortnightly Jan 2012 All

components

GSS

16 Project management Training and Skills within GSS, particularly the PDMG

and Senior Management

Jan/Feb 2012 All

components

PDMG to lead

17 World Bank to work with technical teams to advise on drafting of terms of reference/

technical specifications

From Jan 2012 All

components

WB statistician/ procurement unit & GSS

18 GSS to send draft ToR for steering and technical committees for GSDP (and as for

follow on SRF/IDA project)

Jan 2012 PDMG

19 GSS to ensure PAD for SRF/IDA project is distributed to Dir in GSS and to

participating MDAs.

Jan 2012 PDMG

Project components

20 An identified census lead in GSS, with sole responsibility to coordinate all

census activities

Jan 2012 Component

four

GSS top management

21 Review work plan and timetable for staff rationalization Mar/Apr 2012 Component

one

GSS Change management team

22 GSS sent draft retrenchment manual to Bank for comment and review Jan 2012 Component

one

GSS institutional reform team

23 GSS request extension to contract for legal drafter on Statistics Bill Jan 2012 Component

one

GSS legal reform team

24 GSS to send draft Statistics Bill to mission team for review and comment Jan 2012 Component

one

GSS legal reform team

25 GSS to review timeline for completion of Statistics Bill and send to Bank (e.g.

including external stakeholder workshops)

Jan 2012 Component

one

GSS legal reform team

26 GSS to consider need for functional review (in procurement plan & budget) and clear

on objectives of this and provide ToR to Bank

Jan 2012 Component

one

GSS institutional reform team (David Kombat)

27 GSS to raise with Board requirements for orientation and when this will occur to

ensure appropriately planned within project period

Jan 2012 Component

one

PDMG/ Board secretariat

28 GSS to send timeline for all ICT activities/ procurements to be clear on sequencing

and dependencies

Week 16th

Jan

2012

Component

two

GSS ICT adviser and team

29 GIS unit to follow up on procurement of GIS equipment Jan 2012 Component

two

GSS GIS unit

30 GIS unit to provide justification and document for GIS training in South Africa Jan 2012 Component

two

GSS GIS unit

31 Revised Terms of Reference on comprehensive training programme/ needs

assessment to be sent to Bank

16 Jan 2012 Component

two

GSS Director leading (Nii Odai)

[16]

32 Review of statistical products – agree format for this – peer review vs consultancy,

and if peer review identify key areas of need, complete background research on

different national statistical offices to ensure they have comparative advantage in

areas of need

Jan/Feb 2012 Component

three

GSS/PDMG, Quality review team

32 PES team to review requirements for external validation of PES report and liaise with

PDMG and procurement as appropriate

Jan 2012 Component

four

PES lead

33 PES team to submit request for extension of PES matching Jan 2012 Component

four

PES lead

34 Review budget in line with savings from consultancies that have been dropped Jan 2012 Component

four

PDMG with inputs from CTA, data processing and

analysis teams

35 GSS to prepare procurement plan with timelines for the Census Analysis Strategy

(entirety rather than just MDTF funded elements)

Jan/Feb 2012 Component

four

GSS CDART team with procurement unit.

36 Establish monthly meetings to discuss monthly progress report and agree activities for

next month

Monthly from

Jan, 2012

Component

five

PDMG with inputs from relevant teams

[17]

Annex 3: MDTF Intermediate indicators and 2011 milestones – Progress summary

Indicator 2011 Milestone Progress

PDO Intermediate indicators

Institutional reform road map being

implemented on track

Statistics Law drafted Milestone met. Statistics law drafted. Cabinet memo drafted.

Financial Management System in

place

Milestone not met. Consultant not yet recruited.

Restructuring strategy agreed Milestone met. Staff rationalization paper developed and presented to Board. Directors asked to

express interest and are being assigned to posts by January 31st after which staff assignment will follow.

Comprehensive training program

developed

Milestone not met. Terms of reference cleared by Bank but recent decision to amend and recruit two

consultants.

Availability of provisional results of the

census

Provisional results released Milestone met. Provisional results of the 2010 Population and Housing Census were released February

3rd

2011.

Component one: Legal and institutional reform – Intermediate indicators

Legal framework for the NSS with clear

roles, responsibilities, reporting lines and

functions developed

Draft NSS Law presented to

Attorney General

Milestone not met. Law has been drafted but not yet presented to Attorney general.

Institutional framework for the GSS for

implementation of the GSDP developed

Strategy for restructuring

approved by the Board

Milestone met. Board have completed functional review and developed new functional organogram for

GSS. Strategy for staff rationalization developed with sequenced activities and timeline. Teams

convened to lead on particular aspects e.g. change management.

Milestone not met. Organizational Structure for Implementation of the GSDP not yet in place.

Organizational structure in place

for implementation of GSDP

(functional review approved)

Component two: GSS capacity building – Intermediate indicators

Number of staff with competences in core

areas: 1. Managerial, 2. Technical

Training program designed based

on needs assessment in GSS and

MDAs

Milestone not met. Terms of reference drafted but behind schedule on implementation.

All professional staff at GSS HQ have

access to internet based information

technology and GSS networks

Internet and email systems

extended to all offices at GSS

Head Office

Milestone not met. Some technical specifications/ terms of reference prepared but behind schedule.

Bidding Documents for WAN and LAN sent to the Bank for comment. Floor plan for laying of cables

submitted to the Bank for information. TOR for Enterprise Architecture cleared by the Bank and post

advertised.

GIS used to improve the design,

implementation and dissemination of

surveys

GIS unit equipped and trained to

do mapping and dissemination

activities

Milestone not met. GIS unit not equipped and staff not trained. Work at GIS secretariat stalled because

of priority given to census data processing. No further progress on digitizing regions.

GIS used in GLSS 6 Milestone not met. GLSS6 postponed to 2012. GIS unit assure GIS can be used in GLSS6.

Component three: Improving the quality and dissemination of statistical products – Intermediate indicators

The use of concepts, definitions and

methodologies across NSS standardized in

at least 10 subject areas

0 manuals Activity planned for 2012. Some preparatory work has been undertaken in advance of consultancy, but

Terms of Reference not yet completed which will delay procurement of consultant.

Quality enhanced and the number of Assessment of the quality of Milestone not met. Procurement of consultant was planned to start August 2011 but not yet

[18]

statistical products increased statistical products and action

plan developed and approved

commenced. Now considering peer review rather than consultant, but terms of reference not finalized

nor budgeted.

Component four: Supporting the 2010 Census Post Enumeration Activities

National and district population data (and

reports) released in a timely manner

GSS to have released provisional

results of the 2010 Population and

Housing Census

Milestone met. Provisional results released February 2011.

Quality measurement for the 2010 census

data determined and information provided

to data users (Post Enumeration Survey

(PES) carried out in timely manner)

Post Census Enumeration Survey

conducted (within 3 months after

main enumeration)

Milestone partially met. PES conducted in April 2011, some 6 months after main enumeration.

The matching team has nearly completed the matching process. Reconciliation to start end January.

PES report to be available towards end March.

Staff trained in i) data analysis, ii) data

processing, iii) data dissemination, iv)

database management, and v) scanning and

archiving technology

50 staff trained in data analysis. Milestone not met. Training originally scheduled for September 2011 but did not happen and no

concrete plan for when training will take place. 15 staff trained in data processing

30 staff trained in data

dissemination

Component five: Project Management – Intermediate indicators

Time lag of quarterly Project

Implementation Progress reports

6 weeks Milestone met. PDMG providing monthly progress reports. Quarterly progress reports have been

submitted within 6 weeks.

Dissemination of annual project reports Presented to the Board, the M&E

sector working group and

available on the GSS website

Milestone in progress. Annual progress report received but need additional information before

presenting to Board, M&E SWG and publishing on website.

[19]

Annex 5: Updated Results Framework

Target Values Data collection and reporting

Program (GSDP), Performance

Indicators

Baseline 2011 2012 Freq & Reports Data Collection

Instruments

Responsible for Data Collection

Program (GSDP) Development

Objectives4

Modernize and streamline the Ghana National Statistical System to ensure that it is sufficiently equipped in terms of human resources, essential

tools and infrastructure to produce and disseminate reliable and timely statistics in a cost effective manner, in accordance with international

standards and in response to user needs

Proportion of GSS staff with

professional qualifications

SCI quality score of GSS

Overall Methodology

Source data

Periodicity & Timeliness

Level of user satisfaction with

statistical products and services

of the NSS (baseline survey in

2010; next survey in 2012)

Proportion of publications

(including press releases)

publically available according to

release calendar by GSS (PPI,

CPI, Quarterly Digest of

Statistics, Ghana in Figures,

Economic Survey, National

Accounts, household surveys,

prime building cost)

Full and timely implementation

39% as at 2009

59%

40%

50%

87%

None

40%

(2 out of 5

publications5)

33%

44%

64%

55%

55%

92%

Baseline

survey

56%

(5 out of 9

publications)

50%

64%

55%

55%

92%

Annual survey shows

improvement on

baseline (target

determined after

baseline survey)

78%

(7 out of 9

publications)

100% of those

Yearly

Yearly

Every 2 years

starting in Y1

Annual

Annual

GSS MIS/Staff Records

WB SCI Score

User satisfaction Survey

Release calendar

Schedule of census &

survey program

HR Team/ M&R Team/

WB

M&R Team in PDMG overall

responsibilities/ Survey Group will

implement

PDMG of GSS

PDMG of GSS

4 The project is not responsible for delivering program targets but will contribute to achieving them.

5 The denominator of this indicator will change from year to year. This is because not all publications will be released on an annual basis (e.g. household surveys) and GSS aims to produce a

greater number of publications over time (e.g. resume production and publication of the Quarterly Digest of Statistics).

[20]

Target Values Data collection and reporting

Program (GSDP), Performance

Indicators

Baseline 2011 2012 Freq & Reports Data Collection

Instruments

Responsible for Data Collection

of census and surveys program

by GSS (GLSS, PHC,

Agricultural Census, MICS,

DHS, CWIQ)

Number of thematic areas where

internationally accepted common

concepts are adopted and used

by MDAs and GSS

0

0

0

planned by 2012

(GLSS, MICS, PHC,

Agricultural Census)

10

Annual

Workshop minutes

MDA reports

PDMG of GSS

MDTF Project Development

Objective The objective of the project is to prepare GSS for institutional reform and to ensure timely and extensive analysis and

dissemination of census data.

PDO Intermediate Indicators

Institutional reform road map

being implemented on track

Availability of provisional results

of the census.

Institutional

reform road

map submitted

to VP

2010 PHC

census

Statistics Law

drafted

Financial

Management

System in

place

Functional

review

completed

Restructuring

Strategy agreed

Comprehensive

training

program

developed

Provisional

results released

Performance

Management System

fully operational

Annual

One off report

Consultancy reports and

workshop reports.

Performance appraisal

reports.

Statistics law

Training reports

PHC project

document/provisional

results

Media reports

PDMG and Finance and

Administration of GSS

PDMG of GSS/Census Group

Intermediate Indicators: Component one - Legal and Institutional Reform

[21]

Target Values Data collection and reporting

Program (GSDP), Performance

Indicators

Baseline 2011 2012 Freq & Reports Data Collection

Instruments

Responsible for Data Collection

Legal framework for the NSS

with clear roles, responsibilities,

reporting lines and functions

developed

Institutional framework for the

GSS for implementation of the

GSDP developed.

Old GSS Law

Current

organizational

structure and

staff numbers

Draft NSS Law

presented to

Attorney

General

Strategy for

restructuring

approved by

the Board

Organizational

structure in

place for

implementation

of GSDP

(functional

review

approved)

NSS Law amended

by parliament

NSS Law receives

presidential ascent

New staff structure in

place

Half yearly

Half yearly

Consultant reports and

new law

Management meeting

minutes

Consultancy reports

PDMG of GSS

PDMG and FAD of GSS

Intermediate Indicators: Component two - GSS Capacity Building

Number of staff with

competencies in core areas: 1.

Managerial, 2. Technical6

All professional staff at GSS

HQ’s have access to internet-

based information technology

and GSS networks

GIS used to improve the design,

implementation and

dissemination of surveys

2008 statistics

training

program

50% connected

GIS unit

partially

operational

Training

program

designed based

on needs

assessment in

GSS and

MDAs

Internet and

email systems

extended to all

Senior Management

training for GSS

ICT training for GSS

Intranet operational

to all offices at GSS

head office

Annual

Annual

Annual

Training program

document

Training Evaluations

Staff Evaluations (from

Annual staff

management survey)

IT reports

PDMG, HR and CCG of GSS

IT/PDMG

IT/PDMG

GIS unit/PDMG

6Numbers of staff with managerial and technical competencies will be determined in the baseline survey. Based on this information targets will be derived.

[22]

Target Values Data collection and reporting

Program (GSDP), Performance

Indicators

Baseline 2011 2012 Freq & Reports Data Collection

Instruments

Responsible for Data Collection

( currently used

only for map

coordinates)

offices at GSS

Head office

GIS unit

equipped and

trained to

undertake

mapping and

dissemination

activities.

GIS used in Agric.

Census and in GLSS

6

MDAs have access to

GIS in GSS

Half-yearly

Requests for GIS

information

Half yearly GIS reports

Intermediate Indicators: Component three - Improving the Quality and Dissemination of Statistical Products

The use of concepts, definitions

and methodologies across NSS

standardized in at least 10

subject areas.

Quality enhanced and the

number of statistical products

increased.

None

No assessment

available

0 manuals

Assessment of

the quality of

statistical

products and

action plan

developed and

approved.

Comprehensive

manual on standards

and methods 10

subject matters

developed and

disseminated across

the NSS.

Implementation of

the action plan

according to

timetable.

Quarterly

Annual

Workshop minutes and

MDA statistical reports

User satisfaction survey

PDMG

GSS PDMG and Survey

Organization and Data Processing

Unit

Intermediate Indicators: Component four – Supporting the 2010 Census Post Enumeration Activities

National and district population

data (and reports) released in a

timely manner.

None GSS to have

released

provisional

results of the

2010

Population and

Housing

Census.

GSS to have released

final results of the

2010 Population and

Housing Census.

Release of analytical

reports on thematic

areas and Regional

Reports of the 2010

Population and

Housing Census.

One-off reports

2010 Population and

Housing Census main,

regional and thematic

reports

GSS PDMG and Survey

Organization and Data Processing

Unit/Census Group

[23]

Target Values Data collection and reporting

Program (GSDP), Performance

Indicators

Baseline 2011 2012 Freq & Reports Data Collection

Instruments

Responsible for Data Collection

Quality measurement of the 2010

census data determined and

information provided to data

users (Post Enumeration Survey

(PES) carried out in timely

manner)

None Post Census

Enumeration

Survey

Conducted

(within 3

Months after

main

enumeration)

Census results

validated, reconciled

and disseminated

One –off report PES questionnaires and

reports

GSS PDMG and Survey

Organization and Data Processing

Unit/Census Group

Staff trained in i) data analysis,

ii) data processing, iii) data

dissemination, iv) database

management, and v) scanning

and archiving technology

0 50 staff trained

in data analysis

15 staff trained

in data

processing

30 staff trained

in data

dissemination

2 staff each trained in

database

management and

scanning and

archiving/imaging

technology

respectively

One-off Report

Training completion

report

GSS PDMG and Census Group

Intermediate Indicators: Component five – Project Management

Time lag of quarterly Project

Implementation Progress

Reports

None 6 weeks 4 weeks Quarterly

reports

Progress reports GSS PDMG

Dissemination of annual project

reports

None Presented to

the Board, the

M&E sector

working group

and available

on the GSS

website

Presented to the

Board, the M&E

sector working group

and available on the

GSS website

Annual reports Minutes of M&E sector

working group and

reports from Board

meetings, GSS website

GSS PDMG

Aide Memoire: MDTF Ghana Statistical Development Project ISM January, 2012

[24]