Project Name Tanzania-Accountability, Transparency · link with such other public sector reforms,...
Transcript of Project Name Tanzania-Accountability, Transparency · link with such other public sector reforms,...
Report No. PID9647
Project Name Tanzania-Accountability, Transparency & ...
Integrity Project
Region Africa Regional Office
Sector Other Public Sector Management
Project ID TZPE70544
Borrower(s) UNITED REPUBLIC OF TANZANIA
Implementing Agency
Address OFFICE OF THE CHIEF SECRETARY/HEAD
OF PUBLIC SERVICEState House, P. 0. Box 9120, Dar es Salaam,
Tanzania
Contact Person: Mr. M. Y. C. Lumbanga,Chief Secretary, Head of Public
Service
Tel: (255-22) 2116679
Fax: (255-22) 2113425
Environment Category C
Date PID Prepared December 6, 2000
Projected Appraisal Date September 15, 2000
Projected Board Date January 31, 2001
1. Country and Sector Background
2.1 OverviewAs the Chief Secretary and Head of the Public Service statesin the foreword to the National Framework on Good Governance (NFGG): "The
Government of Tanzania has given governance issues the highest priority in
recent years as it is aware that the continuing development problems in
the country could be associated with difficulties of management in the
public sector that are reflected in financial mismanagement, corruption,
low level service provision, tax evasion and unnecessary bureaucratic
procedures". This perspective is underpinned by a broad view that: (i)
governance encompasses political, economic, administrative/managerial and
social dimensions, and (ii) a participatory approach is imperative
considering the close correlation between development and good governance.
As stated in Governance: The World Bank's Experience (1994), good
governance implies predictable, open policy making; a bureaucracy with
professional ethos; an executive arm of government accountable for its
actions; and a strong civil society participating in public affairs; and
all behaving under the rule of law. This partnership of the central
government, local governments, private sector and civil society is
illustrated in Figure 1 below contained in GOT's framework for good
governance. Figure 1: Partnership for Good GovernanceSource: GOT, The
National Framework on Good Governance, December 1999In this broad
perspective, the main sector issues, as elaborated in the following
paragraphs, generally fall under the following headings:inefficient and
ineffective public service delivery; corruption;weak legal and judicial
systems;gaps in procedures and controls for public expenditure management
and more broadly financial accountability;poor management of information
including records and data; andweak oversight and watchdog institutions.
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2.2.1 Inefficient/ineffective public service delivery and lack of
accountability of public service institutionsBy mid-1980s the capacity and
performance of the public service of Tanzania had declined to lowly
levels. There was serious shortage of personnel with professional skills.
Civil servants' morale, motivation and discipline were low because of a
downward spiral in real incomes over an extended period, political
interference and failure to observe merit principles in appointments, and
collapsing management systems and controls. In tandem, poor choice of
policies and development strategies had resulted in the deterioration of
the national economy, as characterized by negative or low economic growth,
large fiscal deficits and high rates of inflation. Consequently, delivery
of most public services (education, health, water, agricultural extension,
etc.) by early 1990s was below the standards achieved by early 1970s.
Following a series of structural adjustment programs in the past decade,
Tanzania has in the last few years achieved a comparatively impressive
level of macroeconomic stability and growth. The country has this year
qualified for multilateral debt relief under the Highly Indebted Poor
Country (HIPC) initiative. However, the quality of public services remains
extremely poor, and the capacity of public institutions is still very low.
Government, with support of the Bank and other development partners, is
addressing these problems through various projects for the development of
specific sectors (education, health, water, agriculture, roads, urban
infrastructure, etc.), and cross-cutting reform programs for public
service, public finance, decentralization and local government. The
development objective of the Public Service Reform Program (PSRP),
supported by an IDA credit (3300-TA) is to improve efficiency and
effectiveness of public service delivery of the Government's economic and
social programs on a continuous and sustainable basis through
institutional reforms and capacity building measures. The
decentralization and Local Government Reform Program (LGRP), launched in
1997 and supported by several development partners, is geared to enhance
efficiency, effectiveness, transparency and accountability in the delivery
of basic social services through devolution of planning and
decision-making authority, and resources from the central government to
local governments.2.2.2 CorruptionThe problem of corruption in Tanzania
was recognized as long ago as 1966 when Government established a Permanent
Commission of Enquiry (Ombudsman) to check abuse of power by public
officers. Furthermore, in 1971, Parliament enacted the Prevention of
Corruption Act, and on this basis the Prevention of Corruption Bureau
(PCB) was established in 1975. Still, as explicitly acknowledged in the
National Anti-Corruption Strategy and Action Plan (NASCAP - November 1999)
for Tanzania, corruption in the public and private sectors has reached
endemic proportions. The government further states that it views the
corruption scourge as public enemy number one. A 1996 Presidential
Commission of Enquiry on Corruption (Warioba Commission) determined that
the high level corruption is caused by several factors, including: (i)
greed and abuse of power; (ii) poor discipline; (iii)deficiencies in
management systems, procedures and controls; (iv) weak legal and judicial
systems; (v) weak oversight and watchdog institutions (among these, the
Permanent Commission of Enquiry, the Prevention of Corruption Bureau
(PCB), the Controller and Auditor General (CAG), Parliament, and the mass
media); (vi) political interference; and (vii) low public awareness. The
NASCAP is coherent and holistic. It is underpinned by the principles of
zero-tolerance, the commitment of political leaders, prevention, public
awareness, and institution building. Its seven priority areas are: (i) the
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rule of law and legal framework: This component of the strategy and action
plan aims to facilitate the review of sectoral laws and creation of
conditions necessary for restoration of confidence in the Judiciary and
law enforcement agencies;(ii) financial discipline and management: The
objectives include to curb misuse, waste and loss of Government
resources;(iii) procurement: The aim is to ensure strict adherence to
efficient and transparent administration of tendering and procuring goods
and services so that value for money is realized; (iv) public education,
awareness and sensitization of their rights: The strategy involves
development and implementation of information and education programs that
create awareness of how corruption harms the economy, and ultimately
undermines the fabric and values of society; (v) public service reform:
This will target the transformation of public service officers to
accountable" servants of the public;(vi) whistle blowers and witness
protection: The aim is to launch a campaign to encourage citizens to
volunteer information on corrupt practices to enforcement agencies and to
protect them from victimization by the corrupt; and(vii) the mass media:
The mass media will be encouraged and supported to report corruption
incidences and elements without fear or favor, and to publicize the harm
of corruption to the innocent, the poor and the weak in Tanzania.2.2.3
Weak legal and judicial systemUpholding the rule of law through efficient,
fair and transparent administration of justice is the bedrock for the
promotion and maintenance of social peace and stability of the state. It
is also crucial in ensuring an enabling environment for development and
prosperity of the nation (Chief Justice of Tanzania, October 1999).
However, the peace and stability that Tanzanians have enjoyed over the
years cannot be attributed to the efficacy of its legal and judicial
system. Neither is the system enabling for private sector development. The
quality of legal and judicial services remains of low standards, as
reflected by:(a) inordinate delays in resolving disputes and dispensing
justice;(b) very limited access to legal services for the majority of the
citizens;(c) corruption and other unethical conduct of officers in the
legal system;(d) the legal system is significantly outdated and not
responsive to either social, political, economic and technological
changes, or to increasing resource constraints over the years; and (e)
limited public trust in the legal and judicial system. The problems and
constraints underlying the weakness of the legal and judicial system
are:(i) the legal and regulatory framework is fragmented, excessively
bureaucratic and outdated.(ii) weak management and coordination of legal
sector institutions;(iii) low competence, morale and integrity of public
sector legal personnel;(iv) inadequate numbers of professionally-trained
legal personnel;(v) constrained administrative independence of the
Judiciary;(vi) ignorance and poverty of the majority of the citizens which
deny them access to legal and judicial services; and (vii) excessively
limited, poorly furnished and equipped, and poorly maintained work
environment in all public sector legal institutions.Government has over
the past year developed a comprehensive Legal Sector Reform Program
(LSRP). The seven components of this program are targeted at the problem
areas outlined in the previous paragraphs. The key features of the Medium
Term Strategy and Action Plan (2000-2005) for this program
include:Government's commitment to enhanced funding of the Judiciary and
other public legal sector institutions;emphasis on relatively low-cost and
early impact interventions;strong inter-agency collaboration as a crucial
element to the overall successful implementation of the program;strategic
planning by legal sector institutions; and a program that complement and
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link with such other public sector reforms, such as the PSRP, LGRP and the
NASCAP.2.2.4 Gaps in procedures and controls for public expenditure
management and more broadly for financial accountabilityGovernment has
over the past decade persistently endeavored to improve its systems and
practice of public expenditure management. However, the outcomes of these
efforts are mixed. With regard to budget management, the imposition of a
strict cash control regime has enabled the securing aggregate control over
total public expenditure, consistent with revenue raising capacity and
borrowing constraints. As a result, fiscal deficits have been within set
targets in recent years, and there is macroeconomic stability. At the
same time, budget reform through Public Expenditure Reviews (PER),
implementation of a Medium Term Expenditure Framework (MTEF) and
introduction of performance budgeting (linked to a public service
improvement strategy under the PSRP) are underway. These latter
initiatives aim at allocative and operational efficiencies of the
Government's expenditure programs.In accounting for public expenditures,
the central thrust of reform has been the implementation of a transparent
computerized integrated financial management system (IFMS). IFMS
(PLATINIUM-based system) has now been successfully installed in all
ministries, and is currently being rolled out to agencies, ministries and
districts. In this, Tanzania is a pace setter in the Sub-Saharan Africa
region.However, the procedures and controls for public expenditure
management are still conspicuously weak in three important areas: (i)
procrument; (ii) internal audit; and (iii) OCAG: (i) ProcurementThere
has been no comprehensive and authoritative set of public procurement
statutory controls, regulations and procedures over the years.
Consequently, as well elaborated in the report of the Presidential
Commission of Enquiry Against Corruption (1996), there has been rampant
corruption and waste in the procurement of goods and services by some
public officers. While there have been some public procurement reform
initiatives since mid-1990s, little, if any, real progress has been
attained.The NASCAP emphasizes the need for procurement reforms. As
result, a draft Public Procurement Bill and draft "Regulations for
Procurement of Goods and Works" have been completed. However, the Bill
has not yet been presented to Parliament for enactment. This can be
anticipated to happen after the new Parliament convenes in early 2001. In
any case, besides the finalization and implementation of the new statutory
and regulatory framework, improving public procurement on a sustainable
basis will require considerable and sustained efforts in capacity
building for this public service function. (ii) Internal AuditAn
effectively performing internal audit function supports and reinforces the
internal controls for safeguarding proper custody, use and accounting for
the resources of any organization. While the GOT has had an Internal Audit
Department in the Ministry of Finance (MOF) and other ministries, the
function has never been effectively carried out. Three main factors
explained this situation. First, the system and procedures for internal
audit are nowhere documented to guide the officers responsible. Second,
the function is poorly staffed in terms of both quality and numbers of
personnel. Thirdly, and probably the most important, there was limited, if
any, demand for regular internal audit reports by public service managers.
There are plans to strengthen the internal audit function under the
ongoing Government Accounts Development Project (GADP) which has for
several years been implemented with support from SIDA and DFID. (iii)
Mandate and Capacity of the Office of the Controller and Auditor General
The OCAG is established in the Constitution to promote and safeguard
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financial accountability in the custody and use of public resources. The
Exchequer and Audit Act of Parliament requires the CAG to certify that:
all revenues due are collected and deposited into a consolidated fund; all
monies are drawn out of the consolidated fund on the basis of specific
provisions in the Constitution or as appropriated by an Act of Parliament;
the monies disbursed have been applied to the purpose for which they were
appropriated; and there has been compliance with the prescribed financial
rules, procedures and regulations. In all these respects, the capacity and
performance of the OCAG have remarkably improved in recent years. This has
been made possible by the technical assistance received from a number of
development partners, and especially DFID. However, the performance of
the OCAG is still significantly constrained in three important respects.
Firstly, the mandate of the office has traditionally provided for the
restricted function of checking compliance and did not allow for value for
money audits, which considerably reduces the value of the function.
Secondly, while the CAG has been constitutionally empowered to make
independent decisions and report directly to Parliament, the office is
denied independence of operation because it wholly depends on the MOF (its
primary auditees) for funding and the Civil Service Department (CSD) for
staff appointments and compensation. Thirdly, in part as a consequence of
the second, the office has too limited a number of skilled personnel to
carry out its audits on an efficient, effective and timely basis.
Government has acknowledged the need to address these constraints. In the
National Framework on Good Governance (December 1999), it is stated that
to improve financial accountability as well as control of value for money
in government spending, there has to be an effective external audit
capacity. Also, Government has embarked on changing the Exchequer and
Audit Ordinance with a view to, inter alia, granting the OCAG operational
autonomy and giving the mandate to carry out value for money audits. There
are also indications that DFID and other development partners (SIDA?) are
willing to support capacity building in the OCAG. (iv) National Board of
Accountants and Auditors (Marius/Brian Falconer to add) (v) Poor
management of records, data and informationIn the 1999 Tanzania Assistance
Strategy (TAS) report, a five year policy and strategic framework for the
national development agenda, the GOT has well described the current
situation, constraints of the management of records, data, information and
communication and the implications of the poor performance in this area.
Records management systems are mostly obsolete and overwhelmed by the
newly emerging requirements for speed and consistency. Paper-based
systems have almost broken down and the gradual build up of redundant
paper is causing severe retrieval problems, with high costs in terms of
wasted office accommodation, equipment and staff time. Information cannot
be located when required; financial audits cannot be carried out
effectively; and the success or failure of development initiatives cannot
be fully evaluated for timely adjustments. Consequently decision-making
and effectiveness of public service managers at all levels are impaired by
lack of accurate, reliable and timely information. Furthermore, in absence
of information, accountability and transparency cannot be achieved, and
corrupt and unethical practices are difficult to unearth and follow up.On
the other hand, a lot of data and information is produced, analyzed and
disseminated by various agencies in the Government, the NGOs, the private
sector and donor community. However these efforts are not coordinated. As
a result, important information is not adequately analyzed and
disseminated, and has limited use. In 1995, with technical assistance of
DFID, Government started the implementation of a project to begin to
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address the problems of records management within the framework of the
PSRP. The pilot phase of this project has now come to an end, and a
second phase is under design with DFID support. All indications are,
however, that the task at hand, including the development of the necessary
infrastructure may exceed the resource envelop of a single development
partner. In the TAS, Government has defined a more comprehensive strategy
to address the issues of data and information quality, availability and
communication. Among the measures proposed are the following key
ones:strengthening key data collection, processing and analyzing
institutions. Targeted institutions would include the National Bureau of
Statistics (which has been relaunched as an autonomous agency), other
MDAs, Ministries, Departments and Agencies, NGOs and advocacy
agencies;continuing with the creation of new efficient and effective
paper-based record systems;developing of a national records center and
reinforcing the existing National Archives;modernizing information and
communications systems in government offices; andintroducing electronic
records systems and establishment of an appropriate framework for managing
public records. (TAS, pp. 23/24).2.2.5 Weak oversight and watchdog
institutions (OWIS)Historically, compared to other countries in Africa,
Tanzania has led the way in the establishment of oversight institutions
for good governance. In 1966, it was the first developing country to
legally establish the office of Ombudsman (Permanent Commission of
Enquiry, PCE) then following a Scandinavian approach. Also, Tanzania was
a pioneer in legislating the Prevention of Corruption Act in 1971, and
establishing a national anti-corruption squad (PCB) in 1975. Again in
l9XX, the country set an example in introducing a leadership code of
ethics, and establishing an Ethics Secretariat whose executive officer is
Judge of the High Court. These institutions were additional to the more
conventional ones, i.e., the Police, Criminal Investigations Department,
Director of Public Prosecutions (DPP), the CAG, and Parliament and its
Committees, etc. Yet, in spite of this multiplicity of institutions, the
country continues to face serious governance problems. Evidently, these
oversight institutions have been and remain weak. These weaknesses emanate
from the common maladies that have afflicted other public institutions,
including: underfunding of operations, inability to recruit and retain
well qualified and strongly motivated officers, overlapping mandates that
give rise to conflicts, absence of the necessary collaboration and
coordination of the institutions, etc. Hence, the Government's programs
for good governance, and particularly those for anti-corruption and legal
sector reform specifically target to rationalize the mandates and
functions of these institutions, strengthen their capacities and improve
coordination of their operations. Government has also recognized that in
pursuit of good governance, it is not enough to strengthen only public
sector institutions. In The National Framework for Good Governance,
Government states that civil society institutions (i.e. NGOs, CBOs,
religious societies, trade unions, charities, clubs, cultural groups,
sports associations, special interest groups, professional associations,
academic and research institutions, etc.) constitute a strong instrument
for the effective participation and involvement of the people in
decision-making, and social, political and economic development
activities. Also, civil society organizations have a crucial role in
informing and sensitizing the people, and thereby strengthening public
demand for accountability by leaders and services providers.In the same
document, it is recognized that civil society organizations in the country
have considerable capacity weaknesses, in areas of problem analysis,
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advocacy, outreach, networking, management, revenue raising,
accountability and responsiveness. A recent independent review concluded
that civil society organizations in Tanzania are very weak even as
compared to those in other East African countries [Joel Barkan,
2000].Professor Mukandala, in a paper presented in June 2000 [Stakeholders
Workshop on Accountability and Transparency], points out a key factor
that underlies weaknesses in the civil society organizations, and the
implications for accountability in the country. According to Mukandala
most of the past and ongoing reform programs have concentrated on the
supply side of the accountability equation, i.e., getting the state side
"to be accountable to the public". However, this approach can work only
as long as it continues to be reinforced by the (external) donors of the
accountability programs. Continued accountability of state institutions in
the long run will require strengthening of the institutions that represent
the demand side of the accountability equation, i.e., civil society
organizations, the mass media organizations and political parties.These
conclusions imply the need for more innovate and inclusive
donors-supported approaches to strengthening institutions for good
governance. Government has called for measures to promote civil society
organization's effectiveness for good governance (NFGG, p.13). However,
the challenge of designing and implementing an efficient and effective
program to strengthen the demand side institutions in the accountability
equation remain. 2.3 The Government Strategic FrameworkAs described in the
NFGG, the strategic framework for building good governance chosen by the
GOT is multi-point and comprehensive, focusing on the following:(a)
Participation of the people in decision-making for social, political and
economic development; (b) Legal and regulatory framework for private
sector development;(c) Constitutionalism, the rule of law, administration
of justice and protection of human rights;(d) Gender equity;(e)
Accountability, transparency, and integrity in management of public
affairs;(f) Electoral democracy; and(g) Greater public service
capabilities to deliver services efficiently and effectively. This
holistic approach reflects the understanding that attainment of good
governance at the national level entails a wide front of inclusive
strategic measures that cover central and local governments, the private
sector and the civil society. Furthermore, this comprehensive strategic
framework underscores the linkages among the various areas of focus. It
is, nonetheless, thereby feasible to formulate specific strategies and
action programs, such as has been done with the NASCAP and LSRP, without
loosing sight of the ultimate goal and the complementarity of the proposed
interventions.
2. Objectives
In recent years, the Government of Tanzania (GOT) has embarked on an
ambitious reform agenda: public service (PSRP), public finance (PFRP) and
local government (LGRP). In addition, it has just defined, in close
collaboration with its development partners (DPs), comprehensive
anti-corruption and legal sector reform (LSRP) programs. This holistic
strategic approach to improve its governance system is reflected in "The
National Framework on Good Governance" (GOT, December 1999). IDA would
like to support these efforts through a program that would complement the
assistance presently provided for ongoing reforms by other development
partners and by IDA itself. The proposed operation is designed as a
comprehensive program that assumes the participation of several
development partners (DPs). IDA is already informed of overall donor
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interest in supporting all the program's components described in the
present document. IDA will work closely with these DPs to define how best
to join forces to maximize the benefits for Tanzania's good governance
agenda.The primary objective of the Accountability, Transparency and
Integrity Program (ATIP) is to support the implementation of Tanzania's
strategic framework for good governance. ATIP aims at improving outcomes
and impacts of development programs on the poor by enhancing the quality
of governance. This will be done through: (i) strengthening the legal and
judicial systems; (ii) enhancing public financial accountability; (iii)
strengthening oversight and watchdog institutions (OWIs), particularly,
supporting the drive to combat corruption; and (iv) improving
coordination, management and monitoring and evaluation (M&E) of
Government's programs aimed at enhancing transparency and integrity for
greater accountability. The IDA project would support these four
components and would seek to complement other DPs' programs/projects in
these areas.
3. Rationale for Bank's Involvement
The Bank's support is important in the following manner:First, in February
1998, the Bank conducted a comprehensive anti-corruption mission in
Tanzania at the request of President Mkapa. The main findings of the
mission are taken into account in the implementation of the key ongoing
reforms such as the PSRP; other crucial elements of a program to enhance
transparency and accountability such as procurement would form part of the
proposed operation.Second, this support is more encompassing and therefore
preserve the comprehensiveness of the Government's good governance
initiative. Without this more comprehensive approach, it is highly
doubtful that there will be any appreciable and sustainable progress in
this area for the foreseeable future. While several developement partners
have either indicated or confirmed their support to the program, important
components and subcomponents of the program would remain unfunded without
Bank support. Third, Bank's participation in the Government's good
governance program could be expected to reinforce the commitment of the
other development partners: (i) the Bank's involvement will strengthen
dialogue with Government on the sector and program issues and will test
Government's commitment to institutional changes; and (ii) the prospects
of timely realization of the outcomes and impact of the project are
considerably raised by Bank's participation in support of the program
through the proposed project. It appears also that the Bank is the only
partner so far willing to put the major effort that will be required to
tackle public procurement reforms. It is hoped that by showing some
leadership in this area that other partners would join this effort.Fourth,
through the proposed project, Bank will advance and sustain the outcomes
realised through the FILMUP such as (i) work commenced on institutional
development in the legal sector and in the training and regulation of
accounting and finance professionals; (ii) legal sector reforms and
updating of important laws such as the Companies Ordinance that has yet to
be presented to Cabinet; and (iii) strategic plans for the regulatory
environment and the development of the accountancy profession.Fifth, the
areas to be addressed through the proposed project will address some of
the key issues identified as bottlenecks to enhanced growth of the
Tanzania economy, as reflected in the CAS and the recently concluded PSAC.
4. Description
The Project will have four main components, as follows: (a) Strengthening
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legal and judicial system (b) Enhancing public financial accountability
(c) Strengthening oversight and watchdog institutions (d) Program
management and coordinationStrengthening legal and judicial systemThe
project will support select components or sub-components of the
Government's medium term strategy and action plan for the LSRP in
collaboration with other DPs. Technical assistance, including
consultancies, training, computers and other office equipment and
vehicles, and publishing and disseminating materials contribute to
achieving the following key outputs:an updated and modernized legal and
regulatory framework; greater independence of the judiciary;strengthened
management and coordination of legal sector institutions;enhanced
competence, motivation and integrity of personnel;improved pre-service
training of legal professionals;better access to justice for the poor and
the disadvantaged; and improved work environment for legal and judicial
officers.In addition, the project will fund civil works/rehabilitation
costs for select high priority structures in the legal sector,
possibly:Chambers for the Court of Appeal judges;The Law School;
andPrimary and districts magistrates courts.Enhancing public financial
accountabilityThe project will support activities leading to five key
outputs contributing to greater financial accountability:An effectively
functioning transparent public procurement system. Major interventions to
be supported in this area will include: drafting new laws, regulations,
procedures and controls that will govern procurement by all public
agencies; facilitating local training institutions to develop a curriculum
and capacity to train a procurement cadre for the public service; and
other capacity building measures to establish procurement units in MDAs
and to contract out services.An effectively functioning internal audit
system. Development of the internal audit function now considerably lags
behind the milestone development that the country has made in other facets
of public financial accountability. The project will support the design
and implementation of a cost-effective internal audit system.
Interventions will include consultancies, training, computers and other
office equipment and vehicles. It is envisaged that work in this area
would be done in close collaboration with SIDA.An OCAG that is independent
for staffing and funding, and performs its functions with efficiency and
effectiveness. Attaining the independence of the OCAG is already leveraged
in the recently approved PSAC (?). The project will make available the
assistance needed to improve the capacity of the office through training
of staff in new and modern audit techniques (especially audit of computer
systems and value for money audits), equipping the OCAG's offices in the
districts, and procuring transport to facilitate travel to remote rural
service delivery centers for audit.Enhanced standards and effectiveness of
the accounting profession in the country. Under the just closed FILMUP
(IDA Cr. No. 2413-TA), the Bank provided support for strengthening and
consolidating the key institutions for development of the accounting
profession in Tanzania. In particular, technical assistance, training and
other capacity building measures, and investments in infrastructure were
provided to accountancy and finance training institutes, and the National
Board of Accountants and Auditors (NBAA) which has the statutory mandate
to develop and regulate the accounting profession in the country. Still,
the accounting profession needs to be further developed in Tanzania.
Furthermore, preliminary findings of the Implementation Completion Report
(ICR) of the FILMUP indicate the need for additional assistance,
especially for the NBAA, to sustain the outcomes realized under that
project. Studies carried out during FILMUP's extension also confirmed this
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need. The ATIP will make available this support to the NBAA and the
accounting profession in general.Effective records management and
information dissemination systems in MDAs. In the past four years, the
GOT has piloted a program for improving records management in MDAs through
two successive projects funded by DFID under the PSRP. However, the
scope and coverage of this project have been limited to registry systems
in some MDAs. Furthermore, while the evaluations of these DFID projects
have clearly identified the need for a National Records and Archives
Center in order to develop a sustainable public service records management
system, the funds to build this center have not yet been available. The
ATIP will provide: (i) on a demand-driven basis funds for the
implementation of MDAs' strategies and action plans for development of
their records management and information systems (this will be within the
same strategic framework for improving the MDA's service delivery
standards under the PSRP), and (ii) support to the construction and
equipping of the National Records and Archives Center.Strengthening
oversight and watchdog institutions (OWIS)This component aims at
strengthening the demand side of the accountability equation. In this
regard, at this stage of project development, it is clear that technical
assistance will be needed under the project to, as a priority, rationalize
the mandates, roles and functions of the plethora of public OWIs that have
been established over the years (see section B. 2.26).It is, nonetheless,
anticipated that among the public OWIs that will receive technical
assistance to build their capacity and improve their performance are: (i)
the Prevention of Corruption Bureau; (ii) the relevant Committees of the
Parliament (and Parliament?); and (iii) the MDAs will also be supported to
implement their anti-corruption and action plans on a demand-driven
basis, provided that the MDAs meet specific criteria. The project will
also provide technical assistance to develop and strengthen the operations
of civil society organizations that are active watchdogs on public
accountability. The plan is to deliver this support on a demand-driven
basis. In this context IDA would integrate in its approach lessons
learned from others presently involved in supporting IEC for civil
society, e.g., the Netherlands, UNDP, EU and others.Program Management and
CoordinationThis component has three sub-components:First, strengthening
program management and coordination. The project will provide the
technical assistance and means needed to ensure that the "Accountability,
Transparency and Integrity" coordination unit that Government has decided
to establish in the Office of the Chief Secretary/ Head of the Public
Service functions efficiently and effectively. Second, independent
Monitoring and Evaluation (M&E) of public accountability. The project will
fund contracts for developing and maintaining a cost-efficient system for
the M&E of public accountability by an independent agency. Third, a Fund
for Enhanced Accountability and Transparency (FEAT). The project will
establish and operate this fund as a vehicle through which all the various
demand-driven interventions will be supported under the project. Areas for
such interventions that have already been identified include support to:
(i) MDAs in developing their records management and information
dissemination systems, and implementing their anti-corruption action
plans, and (ii) develop and strengthen the watchdog functions of civil
society organizations.
Strengthening legal and judicial system
Enhancing public financial accountability
Strengthening oversight and watchdog institutions
Program coordination and management
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5. Financing
Total ( US$m)Total Project Cost 100
6. Implementation
The project will be implemented over a five year period. It is envisages
that capacity for financial management and procurement will need to be
built for the implementation of ATIP. The project will be overseen by the
coordination unit in the Office of the Chief Secretary. Specific
arrangements are as follows:4.1 A coordination unit under the Chief
Secretary/Head of the Public Service: The project's design places the
primary responsibility for implementation with the leadership and
management of the various institutions. Accordingly, the Chief Executives
and Permanent Secretaries of beneficiary institutions will be responsible
for the implementation in their respective organizations. However, the
office of the Chief Secretary will need to be strengthened to take on a
more active role in coordinating DP activities in the areas of good
governance including anti-corruption.4.2 A program management support unit
in the Ministry of Justice and Constitutional Affairs: The GOT launched
in December 1999 a comprehensive legal sector reform program. To give
impetus to the reform program, a legal sector reform steering committee
chaired by the Chief Justice was instituted; and inter-agency task forces
(ITTs) established to spearhead each of the key areas of the legal sector
reform program. In addition, it was decided to set up a Program
Management Support Unit in the Attorney General's Chambers. The unit
will: (i) provide technical, secretariat and other administrative support
to the Steering Committee and the ITTs, (ii) monitor and report on
progress in the implementation of legal sector reforms, and (iii)
publicize the activities and changes in the legal and regulatory
framework.4.3 Coordination with other reform programs through the IMTC and
the IMWG: The overall coordinating mechanism for the reforms (public
service, local government and sectors) is the responsibility of the
existing committee of all Permanent Secretaries (Inter-Ministerial
Technical Coordination--IMTC) chaired by the Chief Secretary/Head of
Public Service. An inter-ministerial working group chaired by the Director
Operations, PCB, provides technical coordination for the implementation of
the NACSAP.4.4 Monitoring and evaluation arrangements: The coordination
unit in the Chief Secretary's office will provide: (i) leadership for the
implementation of the GOT's good governance agenda; (ii) active monitoring
of various GOT and DP programs; and coordination with the ongoing reform
programs. Monitoring and evaluation will cover output and outcome
assessment responding to public expectations for accountability,
transparency and integrity. Through integrity and public service delivery
surveys improvements will be monitored. The results will be widely
disseminated to the public as part of the effort to empower citizens to
demand greater accountability from the public service. (Need to look at
overall M & E issue and capacity).4.5 A demand-driven flexible funding
mechanism: To operationalize the approach of predominantly demand-driven
interventions (see section B 3.2 above), a flexible fund for capacity
building will be put in place. The fund will have two windows: (i) support
ministries in the implementation of their action plans for
anti-corruption; and (ii) empower civil society to demand accountability,
transparency and integrity from Government. The window that supports
ministries will be closely linked to the performance improvement model
being implemented as part of the PSRP. The other window will provide
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access to funds for IEC (information, education and communication)
activities by civil society organizations aiming at educating the civil
society with respects to its rights and obligations to demand
accountability from public institutions. Clear guidelines to access these
funds will need to be developed. The latter window will have to be closely
coordinated with activities being undertaken by the Local Government
Reform Program.
7. Sustainability
Factors likely to be critical for the sustainability of project benefits
include:(a) Sustaining the political will and commitment of the top
leadership to attain good governance, and particularly persist with and
strengthen the fight against corruption;(b) Incentives for the public
service managers to implement this project, as well as other complementary
reform programs and projects;(c) Adequate Government funding of the public
legal and judicial institutions in line with the recent categorization of
the sector among the priorities under the MTEF.
8. Lessons learned from past operations in the country/sector
Among the key lessons learned and reflected in the proposed project design
are the following: [see FILMUP ICR](a) A comprehensive approach is more
efficient and has more sustainable outcomes. The excess of small,
disjointed interventions by several development partners has often
resulted in overlapping, waste, and overburden on GOT's capacity and
yielding limited sustainable outcomes. Therefore, the proposed project is
embedded in the Government's holistic framework for building good
governance.(b) Strengthening the demand side of the accountability
equation is crucial. To complete the accountability cycle, and therefore
achieve timely and sustainable outcomes, it is important to strengthen the
OWIs and civil society organizations that promote demand for public
accountability.(c) Mainstreaming implementation in the agencies
responsible for good governance. Evaluations of Bank projects have
confirmed that the enclave/ project implementation unit (PIU) is not
consistent with sustainable capacity building and sustainability of
project outcomes. Furthermore, with such enclave arrangements, it is
difficult to foster and sustain any strong commitment and support in the
leaders and managers of the good governance agencies. Therefore the
implementation roles and functions for the various components of the
proposed project will be the direct responsibilty of designated officers
within the agencies responsible for good governance. (d) The need for
effective M&E. Without an effective M&E system, there is a pitfall that
failure of project inputs to yield the expected outputs and outcomes will
go undetected. Also, in the abscence of the M&E key outputs and outcomes
indicators, there is no objective basis for proper accountability to the
project beneficiaries. (e) The value of effective information, education
and communication (IEC) interventions. Besides implementing the actions
that contribute directly to the project outputs, it is considered
benefitial for both accountability and sustainability of the project
outcomes to have regular communication with the beneficiaries to inform
and educate them on the objectives of the Government program and the
inputs and outputs in the project implementation.
9. Program of Targeted Intervention (PTI) N
10. Environment Aspects (including any public consultation)
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Issues None
11. Contact Point:
Task Manager
Denyse E. Morin
The World Bank
1818 H Street, NW
Washington D.C. 20433
12. For information on other project related documents contact:
The InfoShop
The World Bank
1818 H Street, NW
Washington, D.C. 20433
Telephone: (202) 458-5454Fax: (202) 522-1500
Web: http:// www.worldbank.org/infoshop
Note: This is information on an evolving project. Certain components may
not be necessarily included in the final project.
This PID processed by the InfoShop during the week ending December 8, 2000.
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