Mongolia ADS Design - Home - Department of Foreign …dfat.gov.au/about-us/publications/Documents/masp-design... · Web view1.2 Design team and method ……….…………….…………………….....…

Mongolia Australia Development Cooperation Program

Australian Scholarships

Program Design Document

21 January 2008

Mongol ia- Austral ian Scholarships Program – Design Document

Table of Contents

Map of Mongolia ………… …………………….…………………………………………... v

Abbreviations and Acronyms ………………………………………..…..……….……... vi

Executive Summary ………… ……………………………………………………….……. viii

1 Preparation Steps 1.1 Background ………. ……………………………………..………..…....................….. 1

1.2 Design team and method ……….…………….……………………...................….. 1

2 Analysis

2.1 Development context …….…………………………….……………….………….…. 2

2.1.1 Country setting………………………………………………..……………………... 2

2.1.2 Government of Mongolia human resource development priorities………... 2

2.1.3 AusAID’s development assistance program……………..…….….……………. 3

2.1.4 The Aid Policy Framework…………………………………………………………. 4

2.1.5 Key features of Australian Scholarships………………………….……………...

4

2.1.5.1 Australian Leadership Awards…………………………………….…….. 4

2.1.5.2 Australian Development Scholarships………………………….…….… 5

2.1.5.3 Endeavour Awards……………………………………………...……….. 5

2.1.5.4 Other Australian Scholarships………………………………….…….…. 5

2.2 Problem Analysis…………………………………………..…..…..………………...... 6

2.2.1 Building institutional capacity…………………….…………………………….... 6

2.2.1.1 Targeting specific public sector institutions……………………….….… 6

2.2.1.2 Demand for more technical skills…………………………………..…… 7

2.2.2 Extending scholarships beyond the public sector ……………………….…… 8

2.2.3 English language ……………………………………………………………….…… 9

2.2.4 Harmonisation and alignment………… …………………..……………………… 10

3 Implementation Strategy Selection and Options considered 3.1 Targeting strategies …………………………………………………………………… 11

3.1.1 Targeting both institutions and specific fields of study..…………………… 11

3.1.2 Selection of target institutions………… …………………..…………………… 12

3.1.3 Assistance in HRD and ‘provisional’ targeting………… …………………….… 14

3.1.4 Associated agencies………… ……………………..…………………………….… 14

3.1.5 Selection of priority fields of study for applicants outside targeted institutions……………………………… ……………………..…………

14

3.1.6 Targeting categories of civil servants and other employees……………….… 15

3.2 Pre-departure preparation including English language training…………….… 16

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3.3 Strategic planning………………………………….………..…….…………………... 16

3.4 Program transition………………………….…………………………………….….... 17

3.4.1 The scholarship cycle………….………………………………………………….… 17

3.4.2 Maintaining effective processes and relationships..……………..................…

17

3.4.3 Monitoring and evaluation..……………………………………….……………… 18

3.5 Program duration and phasing……………………………………….……………... 18

3.6 Flexible delivery …………………………….…………………………………………. 18

3.7 Contracting strategy …………………………….………………………………….… 20

3.8 Australian potential to contribute through scholarships ……………………… 20

3.9 Lessons learned ……………………………………………………………………….. 21

4 Program Description 4.1 Program characteristics………………………………………………………….…. 23

4.1.1 Program focus and targeting principles……………………………………….… 23

4.1.2 Target agencies.……… ……………………………………………………………... 24

4.1.3 Targeted fields of study.……… ……………………………….………………..…. 24

4.1.4 Levels of study.……… ……………………………..…………………..……….….. 25

4.1.5 Scholarship numbers.……… ………………………..…………………………….. 25

4.1.5.1 Number of scholarships available from 2010…………………………… 25

4.1.5.2 Number of scholarships in the transition years ………………………… 26

4.1.6 English Language and academic preparation…….………………………..…... 27

4.1.7 Selection process……………………………………………………..……………… 28

4.1.7.1 Selection process for ADS Category 1……………………………….… 29

4.1.7.2 Selection process for ADS Category 2……………………..………...… 30

4.1.7.3 Action planning ……………………………………………….………...… 32

4.1.8 Eligibility and selection criteria………………………………….….……………... 32

4.2 Purpose and objectives……………………………………………………………...... 34

4.3 Component structure and outputs……………………………..…………….……… 35

4.4 Resources and costs…………………………………………………..………….…… 42

4.4.1 Managing Contractor …..……………………………………………...………….... 42

4.4.2 Other scholarship costs and budget management …………….....…………... 43

4.4.3 Government of Mongolia……..………………………………………………….…. 44

5 Monitoring and Management Strategies 5.1 Governance arrangements…………………………………………………….……… 45

5.2 Management arrangements………….………………………………..…………….… 47

5.3 Reporting requirements………………………………………………………….….... 47

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5.4 Monitoring and evaluation…………………………….……………………………… 48

5.4.1 Main features of the Mongolia Australia Scholarships M & E Framework…. 48

5.4.2 M&E Strategy for the overall Australian Scholarships program……….……..

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5.4.3 Major responsibilities and implications for the Contractor…………….…..….

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5.4.4 Monitoring contractor performance……..………………………..………………. 55

5.4.5 Post award evaluation…….…………………………………………………………. 55

5.5 Alumni………….………………………………..……………………………………...… 59

5.6 Risks and risk management……………………………………………………….…. 59

6 Feasibility, Gender Equity and Sustainability

6.1 Manageability of the program ………………………….……………………….…... 60

6.2 Gender implications…………………… ………………….………..….………..…... 60

6.3 Sustainability ………………………………………………………………………..…. 61

Appendices

Appendix 1 Terms of reference ……………………….……….…….……………….….. 62

Appendix 2 Design timetable and agencies/persons consulted........................... 72

Appendix 3 Aide Memoire …………………….………………….…………….…………. 76

Appendix 4 Mongolian ADS student statistics …................................................… 81

Appendix 5 Guidelines for Annual Strategic Review.............................................. 86

Appendix 6 Risk Matrix…......................................................................................... 88

Appendix 7 Stakeholder Roles and Responsibilities Matrix................................... 95

Appendix 8 Templates/documents for the next phase of the scholarships program.................................................................................................

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Appendix 9 Indicative personnel roles & terms of reference for specialist advisers....................................................................................................

102

Appendix 10 Contractor performance monitoring questionnaire ………..… 107

Appendix 11SEPARATE FILE [DIAGRAM]

M&E Framework outline

Appendix 12SEPARATE FILE [EXCEL]

Implementation schedule

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SEPARATE DOCUMENTATION:

EXCEL FILE : WORKSHEETS LINKED BY FORMULAS

Cost Assumptions Schedule. Resources Schedule Cost Schedule

WORD FILESchedule 1: Scope of Services Schedule 2: Basis of Payment

EXCEL FILE : WITH FORMULAS

Mongolia ADS – Financial Modelling Tool: Table 1: ADS Scholarships Funded by Intake 2008-2013 Table 2: Financial Year Estimates for ADS 2007/08 – 2012/13 Table 3: impact on Total Mongolian Program 2007/08 – 2012/13 Table 4: Total ADS Costs under Key Options 2007/08 – 2012/13 Table 5: Total Mongolia Costs under Key Options 2007/08 – 2012/13

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Map of Mongolia

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Abbreviations and acronyms

ACM Academy of Management

ACOM Arts Council of Mongolia

AP Action Plan

APPU Annual Program Performance Update

ADS Australian Development Scholarships

ALA Australian Leadership Awards

ALAS Australian Leadership Awards Scholarships

ASG Australian Scholarships Group

AusAID Australian Agency for International Development

AYAD Australian Youth Ambassadors for Development

BOM Bank of Mongolia (Central Bank)

CaBSAF Targeted Capacity Building & Small Activity Facility

CabSec Cabinet Secretariat of the Prime Minister's Department

CMU Carnegie Mellon University

DAC Development Assistance Committee (of the OECD)

DE Distance Education

DEMO Democracy Education Center

DPM Deputy Program Manager

DEEWR Department of Education, Employment and Workplace Relations

DIAC Department of Immigration and Citizenship

EAP English for Academic Purposes

ELT English Language Training

EOI Expression of Interest

ESPF English for Special Purposes Foundation

FCC Facility Coordinating Committee

GOM Government of Mongolia

GSC Government Service Council

HRIC Human Rights Information Center

IAP Introductory Academic Program

IDC Interdepartmental Committee

IMF International Monetary Fund

IELTS International English Language Test System

MECS Ministry of Education, Culture and Science

MGAs Mongolian Government Agencies

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MOFA Ministry of Food and Agriculture

MOFE Ministry of Fuel and Energy

MOH Ministry of Health

MOIT Ministry of Industry and Trade

MOJHA Ministry of Justice and Home Affairs

MONE Ministry of Nature and Environment

MOP Manual of Procedures

MOSWL Ministry of Social Welfare and Labour

MC Managing Contractor

M & E Monitoring & Evaluation

MFA Ministry of Foreign Affairs

MOF Ministry of Finance

MOH Ministry of Health

MWGs Ministry Working Groups

MWGF Ministry Working Group Forum

MTR Mid-Term Review

MWFA Mongolian Women Farmer’s Association

NCOCI National Chamber of Commerce and Industry

NGO Non Government Organisation

ORM Ongghi River Movement

PCR Program Completion Report

PDT Pre-Departure Training

PSLP Public Sector Linkages Program

RFT Request for Tender

SAS Small Activity Scheme

SDC Swiss Agency for Development and Cooperation

SIMON Student Information Management System

TBD To Be Determined

TOR Terms of Reference

UH University of Humanities

UNDP UN Development Program

UOW/CTCP University of Wollongong/Centre for Transnational Crime Prevention

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Executive summary

Background and development context

CaBSAF has allocated 14 ADS awards annually and has placed 49 ADS scholars in Australian universities since August 2003. 23 graduates have returned to their Ministries and there have been no failures. Two Mongolian candidates obtained ALA scholarships in 2006.

Stakeholders consulted by the design team expressed strong support for the continuation and expansion of the scholarships program. The Australian Government’s Aid Policy Framework emphasises the value of well-targeted scholarships with proper gender balance as a highly effective form of aid that empowers people from developing countries to drive their own national development and reform agendas based on an informed understanding of a developed economy.

The Mongolian Government’s development priorities highlight the need to strengthen the capacity, as well as the accountability, of public service institutions and civil servants. A longer-term National Development Strategy is currently being developed, which will reinforce this priority and emphasise the sustainable development of specific sectors, such as mining and agriculture, and the important role of the private sector.

During his visit the Minister for Foreign Affairs announced that the number of scholarships will double by 2010 and will reflect the increasing emphasis given by the GOM to these sectors. Australia has strong comparative advantages in these fields and an interest in cooperation through the private sector to complement assistance to the public sector.

Scholarship numbers

During the next 5-year phase of the Scholarships program a total of 28 ADS will be awarded annually by 2010. Support will also be provided for Mongolia’s participation in ALA scholarships and fellowships under the Australian Scholarships banner.

Targeting

The expanded ADS component of the new Australian Scholarships program will retain an emphasis on targeting public sector institutions, and extend the range of sectors covered by scholarships in line with the above-mentioned priorities.

Award categories

There will be two categories of ADS scholarships, both of which will be targeted:Category 1, targeted on priority public sector institutions, with the fields of study identified by Ministry Working Groups based on HRD plans (around two thirds of ADS awards annually);Category 2, targeted on priority fields of study and open to eligible employees in government agencies and Mongolian private firms, NGOs and universities (around one third of ADS awards annually).

Sectors

Most of the Mongolian stakeholders consulted by the team highlighted the need to develop expertise in sectors such as mining and agriculture, where the private sector plays

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a major role, and many identified specific areas where high-level technical expertise is missing particularly in Mongolian firms. The significant expansion in the number of scholarships provides an opportunity to extend eligibility to the private sector and, where relevant to NGOs in specified fields of study. The number going to the public sector will increase.

Universities

The new program will also provide opportunities for teaching staff in public and private universities to compete for scholarships in the specified fields of study. Especially in new fields where many graduates are needed, upgrading or establishing new Mongolian university programs can be a cost effective means of building capacity in the medium term.

New targeted ministries

Under Category 1, scholarships will continue to be available (for the time being) to the existing 8 targeted institutions and associated agencies, subject to annual review. These remain priority areas for the Mongolian Government and these organisations have been successful in selecting and reintegrating graduates. Category 1 will also include four ‘provisional’ members – the Ministry of Food and Agriculture, Ministry of Industry and Trade, Ministry of Fuel and Energy and the Ministry of Health (as well as their associated agencies).

The list of Category 1 institutions will be reviewed annually: (a) to consider whether the ‘provisional’ organisations have developed adequate HRD planning processes (with some assistance); (b) to consider emerging priorities; (c) to review the continuing priority for scholarships for existing targeted ministries (some have already benefited from a significant number of scholarships); and (d) to keep the number in the 10-12 range.

Fields of study

Category 2 scholarships will be restricted to specified fields of study, which will also be reviewed and specified each year as part of a Strategic Review. The specified fields of study will initially include mining engineering, resource economics, environmental studies, renewable energy, coal technology, biotechnology, agricultural economics, infectious plant diseases, actuarial studies, epidemiology and teaching methodologies for English language.

Scholars under Category 2 will be selected by a single panel on a competitive basis across these fields of study, and will be required to enter into agreements to return to their current employment. Employer support will be an essential criterion and employers (including universities and private firms) will be required to sign agreements to re-employ graduates in relevant positions for a minimum of 2 years.

Program characteristics

Levels of study

ADS awards will be for study in Australia at Masters level. Flexible delivery modes such as distance education where offered by Australian tertiary institutions under approved ADS guidelines will be considered. Study at PhD level will be addressed through the ALA program.

English language training

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Up to 9 months of in-country English Language Training (ELT) will continue to be provided in Mongolia to those ADS awardees who do not when selected have the required level of English language skills needed to gain direct entry to courses at Australian tertiary institutions. The ELT will be provided by a sub-contractor selected through a competitive tender process.

Transitional arrangements

Transitional budgeting and management arrangements will ensure a smooth transition from CaBSAF to the new program. Overall management of the new program by a MC will be tendered based on this design.

Purpose and objectives

The design brings all the various scholarship schemes under one in-country management framework. The key aims of Australian Scholarships are to strengthen partnerships and links between Australia and other countries in the Asia-Pacific Region and to target leaders – those that can either promote or influence reform.

The strategic vision for the Mongolia Australia Scholarships Program addresses broader corporate developments in relation to scholarships while at the same time reflecting the Mongolia-specific elements of the ADS program. The purpose and objectives of the new Mongolia Scholarships program are:

Program Purpose: To contribute to enhanced capacity in priority Mongolian Government Agencies and priority economic sectors through expanded access to higher education and training and relevant professional linkages in Australia.

Program Objective 1:To help address the human resource needs of targeted Mongolian Government Agencies and priority economic sectors through increasing the number of graduates with high level technical and professional Australian qualifications.

Program Objective 2: To enhance opportunities for knowledge-sharing and institutional linkages between Australia and Mongolia.

Strategic review

The design provides for an Annual Strategic Review meeting involving AusAID, key GOM counterparts and other Australian agencies to help define and adjust as necessary the strategic directions for the Program including targeting. This will facilitate effective responses to emerging GOM priorities and broader AusAID corporate initiatives.

Selection process

Current joint AusAID/GOM ADS selection processes are effective and transparent, involve strong GOM agency ownership through Ministry Working Groups and will continue to apply in the new program phase. The enhanced ADS targeting approach is designed to maintain this transparency.

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Governance arrangements and strategic planning

The new program will have governance and coordination arrangements enabling both governments to deal systematically with broader policy and management issues. A Program Coordination Committee will replace the Facility Coordination Committee but have a similar role and membership. An Annual Strategic Review will be conducted by the designated coordinating authorities. The Ministry Working Group Forum including the head of each Ministry Working Group will continue to play an important role.

Monitoring and evaluation

The Aid Policy Framework gives prominence to the need to strengthen the performance orientation of the Australian aid program. Monitoring and evaluation approaches build on the comprehensive ADS M&E framework and strategies developed by CaBSAF and align with the overarching Australian Scholarships M&E Framework.

Resources

The Contractor managing the new program will provide a notional mix of 3 staff including a part-time international Program Manager and a full time Deputy Program Manager located in a suitably equipped office in Ulaanbaatar to deliver a broad level and range of services to support AusAID with the management in-country of ADS and ALA scholarships and several other Australian scholarship programs. Short term expertise in areas such as M&E and human resource planning for newly targeted agencies may be sub-contracted locally or overseas.

Sustainability

Sustainability will be addressed through good practice selection approaches involving strong GOM ownership. The continuation of the current effective measures involving formal agreements with employers and scholars and the use of action plans will give graduates the opportunity and incentive to apply their knowledge and skills. Targeting of scholarships to key agencies and fields of study will also promote sustainability by ensuring a better ‘fit’ with the comprehensive development agenda of the GOM.

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Mongol ia-Austral ian Scholarships Program – Design Document

1 Preparation steps

1.1 Background

The Australia’s Aid Policy Framework emphasises the value of well-targeted scholarships with proper gender balance as a highly effective form of aid that empower people from developing countries to drive their own national development and reform agendas based on an informed understanding of a developed economy. A new scholarships program under the Australian Scholarships banner provides for a new category of awards known as Australian Leadership Awards (ALAs) and also incorporates Australian Development Scholarships (ADS) and Endeavour Awards.

In addition to ADS, ALA and Endeavour Awards, Mongolia is eligible to receive awards under other sponsored scholarship arrangements offered by: the Australian Centre for International Agricultural Research (ACIAR); the Centre for Transnational Crime Prevention at the University of Wollongong (UOW/CTCP); Carnegie Mellon University (CMU) in Adelaide; and the Australia-IMF Scholarship Program for Asia. Mongolia is a targeted beneficiary under the latter program. These various arrangements cover whole-of-government interests while providing Mongolia with more choices and greater flexibility in enhancing its human resource capacity.

1.2 Design team and method

A four person design team conducted an 11 day field mission from 19 to 29 June to develop design documentation for the next phase of the Mongolia Australia Scholarships program. Details are in the terms of reference at Appendix 1.

The team met with a range of stakeholders including AusAID staff in Canberra and Beijing; Mongolian government and non-government agencies; other scholarship donors; ADS alumni; and staff of the Mongolia-Australia Targeted Capacity Building & Small Activity Facility (CaBSAF). The team’s work was informed by the directions set in the on Australian aid; announcements by the Australian Minister for Foreign Affairs and Trade during his April 2007 visit to Mongolia; a range of other ADS program studies and designs; AusAID corporate initiatives in relation to the Australian Leadership Awards (ALAs) and the outcomes of a mid-term review of CaBSAF in 2006. The design timetable and the agencies and persons consulted are at Appendix 2.

The design team was asked to describe actions required by CaBSAF in its final year to ensure continuity between the two programs. This is addressed in Section 3.4. Additionally, given that some ADS costs for the first intake under the new Program will be covered under the CaBSAF budget, the team was asked to provide the essential budget calculations as well as projections based on current and anticipated CaBSAF commitments designed to enable an intake of 28 new ADS scholars by 2010. The phasing of future ADS scholarship intake numbers based on these calculations is shown in Section 4.1.5. The underlying cost calculations and projections have been submitted separately to AusAID in the form of a Financial Modelling Tool.

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2 Analysis

2.1 Development context

2.1.1 Country setting

Mongolia has made very substantial progress in developing effective democratic institutions and a market-based economy under its 1992 Constitution. Since then there have been a number of changes in political leadership resulting from free elections and decisions by elected representatives. Key legal and institutional reforms have been undertaken, including the enactment of the Public Sector Management and Finance Law in 2002 and the approval of a Civil Service Reform Strategy by the Great Khural (Parliament) in 2004. Substantial progress has also been made in developing sector strategies, for example the Health Master Plan, with the assistance of a range of foreign donors.

Economically, the private sector has expanded dramatically since 1989, now accounting for more than 75% of GDP. The last 5 years have seen significant real growth rates, for example GDP increased by 8.4% in 2006. Last year’s 44% growth in exports exceeded a 26% increase in imports, leading to a trade surplus of 1.4% of GDP and a current account surplus at the end of 2006. Government finances are also healthy, with a fiscal surplus for the second consecutive year, equal to 9% of GDP last financial year. Government expenditure increased by 37%, but revenue increased even faster as a result of the growth in exports and other components of GDP.

However, these favourable results mask some fragility in the economy. Much of the increases in GDP and exports resulted from factors that may not be sustainable, including: (a) good weather conditions, which led to a 14% increase in livestock production and a 63% increase in crop production last year; (b) high world prices for gold and copper, Mongolia’s principal mining exports; and (c) increased tourism attracted by the 800th anniversary of Chinggis Khan’s empire. The Government has emphasised the need to diversify the economy to reduce its vulnerability, especially to commodity prices and extreme winters (dzuds).

Mongolia still has significant poverty. As recently as 2004, an estimated 36% of the population lived below the poverty line. Even with the economic growth over the last few years, the proportion of Mongolians living in extreme poverty is still higher than Indonesia, for example. Despite the GDP increases in recent years, Mongolia’s GDP per capita was only $US 1,037 at the end of 2006. On a purchasing power parity basis (which takes into account the relatively high cost of living in Mongolia given many imported goods), it is only just above Bangladesh and Laos, and significantly below countries like Pakistan and Cambodia (based on latest available IMF data).

While boosting the economy, market forces have increased the disparity between the living standards of rural and urban populations, and there is a widening income gap between haves and have-nots. Access to key public services such as health and education is often very limited for those living in the countryside. With the lowest population density of any nation – 2.6m people in an area almost the size of Queensland – the country faces a major challenge in providing access to services in remote areas.

2.1.2 Government of Mongolia human resource development priorities

The Mongolian Government’s development priorities highlight the need to strengthen the capacity, as well as the accountability, of public service institutions and civil servants. At the end of June the Government presented to the Parliament a draft National Development Strategy,

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focused on the longer term, which reinforces this priority and emphasises the development of the private sector. The draft Strategy lists 10 priorities including: developing a skilled workforce that can meet the demands of the labour market; supporting regional and rural development, increasing the use of renewal energy; implementing hydro power projects, road construction and agricultural development; appropriate use of natural resources and mitigating environmental degradation; and bringing the mining sector up to an internationally competitive level, to facilitate sustainable growth through consistent mutually beneficial investment policies.

The last of these is important given the growing potential of the mining sector, especially with development of the world’s largest undeveloped gold and copper deposits at Oyu Tolgoi in the Gobi desert. The priority now being given to the mining and energy sectors is also reflected in the establishment of the Mongolia–Australia Working Group on Mining and Energy Cooperation in April 2007.

The draft National Development Strategy continues a high priority for human development, including improving the accessibility, quality and competitiveness of education, alleviating poverty and optimizing wealth distribution. Issues such as the migration from rural areas to Ulaanbaatar remain significant.

Mongolia still has significant poverty. As recently as 2004, an estimated 36% of the population lived below the poverty line. Even with the economic growth over the last few years, the proportion of Mongolians living in extreme poverty is still higher than Indonesia, for example. Despite the GDP increases in recent years, Mongolia’s GDP per capita was only $US 1,037 at the end of 2006. On a purchasing power parity basis (which takes into account the relatively high cost of living in Mongolia given many imported goods), it is only just above Bangladesh and Laos, and significantly below countries like Pakistan and Cambodia (based on latest available IMF data).

2.1.3 AusAID’s development assistance program

Total Australian Official Development Assistance (ODA) was valued at around $3.9 million in 2006-2007 – approximately 1.5% of Mongolia’s total ODA. This includes Australia’s bilateral aid program, as well as the Australian Youth Ambassadors for Development (AYAD) Program, funding a Human Rights Small Grants Scheme, and emergency assistance.

Australia’s bilateral aid program to Mongolia is around $2.2 million. Its centrepiece is the Mongolia-Australia Targeted Capacity Building and Small Activity Facility (CABSAF). Up to $6.6 million will have been contributed to the Facility over five years from August 2003 to August 2008. Approximately an additional $1 million is spent each year on Australian Development Scholarships.

The goal of the Facility is to contribute to poverty alleviation by strengthening the human resource capacity of Mongolian Government Agencies to implement their Government's Action Program in priority areas of good governance reform and by supporting community development activities.

The Facility provides:

Targeted Australian Development Scholarships (ADS)

Capacity building in support of Mongolian Government Agencies' human resource development programs

Funding for small-scale community and good governance activities, incorporating the Small Activity Scheme (SAS) for Mongolia for registered Mongolian non-government organizations

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Each year up to 20 ADS candidates receive English Language Training (ELT) in Mongolia for up to 9 months. CaBSAF manages its activities with three full-time national staff based in Ulaanbaatar, a part-time Facility Director and a part-time Project Coordinator, based in Canberra.

Australia also responds to appeals for emergency assistance to help vulnerable families affected by severe climatic conditions. Since April 2000, Australia has provided $550,000 in emergency assistance to Mongolia. The AYAD has placed more than 60 skilled young Australians on short-term assignments as Youth Ambassadors in Mongolia.

Overall, ODA to Mongolia is relatively high, estimated at around 10% of GDP (or $US100 per capita). The five major donors are Japan, the Asian Development Bank, the World Bank, Germany and the USA. China is also emerging as a major donor to Mongolia in loans and grants. Despite high levels of ODA, implementation and donor coordination remains weak.

2.1.4 Australia’s Aid Policy Framework

Australia’s Aid Policy Framework emphasises the value of well-targeted scholarships with proper gender balance as a highly effective form of aid that empower people from developing countries to drive their own national development and reform agendas based on an informed understanding of a developed economy. The value of scholarships is also seen as a means for investing in nation building by supporting the development of future leaders as well as fostering relationships between Australia and people from the region.

The Aid Policy Framework regards strengthening selectivity, addressing skill shortages and helping achieve a critical mass of Australian-trained scholars in key developing institutions as essential in improving the effectiveness and impact of scholarships. The Aid Policy Framework also requires the strengthening of plans for monitoring and evaluating the performance of scholarships.

The approaches highlighted in the Aid Policy Framework have informed the design of Australian Scholarships management in Mongolia.

2.1.5 Key features of Australian Scholarships

2.1.5.1 Austral ian Leadership Awards

Australian Leadership Award Scholarships (ALAS) and Australian Leadership Award Fellowships (ALAF) are recently introduced regional scholarships programs for which Mongolia is eligible. ALAS and ALAF aim to develop leadership, build partnerships and linkages within the Asia-Pacific. ALAs are academically elite awards intended for those who are already leaders or have the potential to assume leadership roles that can influence social and economic policy reform and development outcomes. Mongolian applicants compete with other high achievers from the Asia-Pacific region for a limited number of scholarships.

2.1.5.2 Austral ian Development Scholarships

Australian Development Scholarships (ADS) is a long-standing bilateral scholarships program that is targeted at agreed priority human resource and development needs of Mongolia. ADS promotes equal opportunity for men and women to gain the skills and knowledge to drive change and influence the development outcomes of Mongolia through obtaining tertiary qualifications at participating Australian higher education institutions and technical colleges. The annual number of ADS scholarships for Mongolia will double from 14 to 28 by 2010.

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The ADS Program is highly regarded by the Government of Mongolia and is proving to be an effective capacity building instrument for key Ministries. 49 scholars have been placed in Australian universities since the start of CaBSAF in August 2003, with 23 returned graduates and no failures. All graduates have returned to their Ministries and some have subsequently succeeded in improving their career opportunities through gaining employment elsewhere. Policy formulation and analytical contributions by returned graduates to their Ministries is becoming evident with some scholars being promoted and others involved in policy paper preparation.

2.1.5.3 Endeavour Awards

Endeavour Awards, funded and managed by the Department of Education, Employment and Workplace Relations (DEEWR), are available under four broad categories1 to students from Europe and the Americas as well as the Asia-Pacific region, including Mongolia. The goal is to bring high achieving scholars, researchers and professionals from around the world to Australia to undertake short/long-term study, research and professional development in a broad range of disciplines. The focus is on excellence in education and research rather than development goals. There is no insistence for scholars to return to their home country.

Currently no Mongolians have received an Endeavour Award and promotion of the awards has been limited to the Internet. The development of a Promotional Plan for the Mongolia Australia Scholarships will provide an opportunity to engage DEEWR in exploring ways to encourage greater engagement in Mongolia and increasing Mongolian access to these awards, particularly for technical and vocational education placement and to satisfy Mongolian demand for study at the PhD level.

2.1.5.4 Other Austral ian Scholarships

AusAID also funds scholarships under individual separate agreements with the University of Wollongong and Carnegie Mellon University (CMU) in Adelaide.

AusAID will fund in the last year of the current agreement with the University of Wollongong up to 20 scholarships in 2008 for Master level courses in Transnational Crime Prevention, Laws (Prosecutions) and Forensic Accounting courses offered by the Centre for Transnational Crime Prevention (CTCP).

At CMU scholars can undertake either of two courses – Master of Science in Public Policy and Management or Master of Science in Information Technology (Management Track). The last intake will be in 2009 under CMU’s current agreement with AusAID.

These institutions are responsible for promotion, advertising and the initial selection of candidates. Candidates securing placement at the host universities must subsequently meet ADS criteria to be eligible for the AusAID funded scholarship.

In addition, AusAID funds the Australia-IMF Scholarship Program for Asia, first introduced in 1997. The Program is wholly administered by the IMF and conducted at the Australian National University in Canberra. It seeks to train the future macroeconomic managers of nine Asian countries, including Mongolia. Study for twelve months is at Graduate Diploma or Masters level. Mongolia obtained two awards last year.

1 Postgraduate and Postdoctoral, Vocational and Technical Education, Executive and Student Exchanges

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2.2 Problem analysis

2.2.1 Building institutional capacity

2.2.1.1 Targeting specif ic publ ic sector insti tut ions

A threshold question about the shape of the Australian Scholarships program in Mongolia is whether the ADS component should continue to focus on targeted institutions. The alternative would be to invite applications from any individual civil servant and select on the basis of academic merit having regard to broad development priorities, such as those discussed in Section 2.1.2 above. The latter approach would be consistent with the selection for ALA Awards.

As already noted in Section 2.1.4, the Aid Policy Framework emphasised the value of ‘well-targeted’ scholarships. It specifically argues that strengthening selectivity, addressing skill shortages and helping achieve a critical mass of Australian-trained scholars in key developing institutions can improve the effectiveness and impact of scholarships.

Targeting a scholarships program on organisations can maximise its impact on institutional capacity, well beyond the individual scholar. By selecting individual scholars and fields of study based on the capacity building priorities of the organisation, rather than simply on individual needs and interests, there is greater likelihood that the training will be effectively utilised on return and that there are wider benefits. And just as importantly, targeting organisations provides an institutional framework on return that helps to maximise the impact of the program. The graduate is not just assured of a job on return; the Mongolian experience over recent years demonstrates that organisations are also more likely to be committed to utilising the training effectively if they have been actively involved from the outset.

There are strong reasons for sticking with the successful targeting of institutions in Mongolia over the last 4 years under the ADS component of the CaBSAF program. Firstly, public sector institutions still need strengthening. As the World Bank’s current Country Assistance Strategy highlighted, capacities for public sector management and service delivery are still not fully aligned with the country’s development goals. By continuing to target specific institutions, Australia’s Scholarship Program has the potential to complement the continuing capacity building support being provided to specific government agencies by the Bank and other donors, which does not generally include scholarships for post-graduate study.

Secondly, the Ministry Working Groups (MWGs) established in target organisations under the CaBSAF program have generally been effective in determining priorities within their agencies on the basis of their HRD plans. While the National Development Strategy, once approved by the Parliament, will identify broad priorities that could be used to prioritise individual applications, it is often only at a more detailed level within sectors that the needs for specific areas of expertise can be determined. With their detailed understanding of their sector, the Mongolian MWGs are better placed than a central selection committee would be to assess the areas where the organisation most needs expertise, taking into account the availability of comparable courses in Mongolian universities and other capacity building assistance provided to the sector by other donors.

By focusing most scholarships on targeted institutions, it has also been possible to ensure alignment between the motivations of individual students and the skill needs of their employers. This has been achieved not only by giving the MWGs the key role in selecting candidates from within their organisations, but also through the development of action plans and agreements to clarify expectations and expectations. Not only has the Mongolian ADS scheme had no academic failures, but almost all graduates have returned to their previous employers and remained for the

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required 2 years utilising their acquired skills. And the recent mid-term review shows that they are starting to have an impact in their organisations.

In large part the success of the program reflects the targeting approach and the role played by MWGs. The success of ADS in retaining graduates in their organisations is in marked contrast to experience with some other scholarship programs in Mongolia, including the Government’s own scholarships, where agreements to remain with the previous employer for a minimum period are often breached. The transparency associated with the current ADS selection processes in Mongolia has been frequently praised by participants and other stakeholders. Largely devolving responsibility for selection to targeted agencies does not seem to have compromised the transparency of the process, thus removing a possible argument for a more open, centralised selection process more in line with that adopted by the ALA Awards. The current transparency partly reflects the involvement of CaBSAF personnel, and this has been taken into account in the level of resourcing of the Managing Contractor and the availability of additional support for HRD processes in new targeted institutions (Section 4 below).

Finally, there is some evidence in the Mongolian context that providing a number of scholarships to an individual organisation over a period is helping to build a ‘critical mass’ of graduates able to have more influence on the organisation’s culture and procedures. Graduates say they often actively support each other within their organisations, and the promotion rate of graduates may also signal that the approach is having a broader institutional impact.

Section 3.1 below discusses which institutions should be targeted.

2.2.1.2 Demand for more technical ski l ls

Discussions with many stakeholders currently involved in the ADS scholarships has revealed a noticeable shift in capacity building needs, towards developing high-level technical skills in areas such as engineering and sector economics. Over more than a decade the Mongolian public sector has received significant assistance in management and strategic planning to help the transition to a market-based economy. The focus is now shifting, with a number of Ministries wanting to deepen technical expertise in their sectors.

For example, many officials consulted during the design process highlighted the need to develop expertise in the mining and agricultural sectors, emphasising not only the greater priority being given to these sectors by the Government, but also Australia’s comparative advantages in these fields. The mining sector is now the major contributor to Mongolia’s export earnings (more that 50%), and the last 5 years have seen a rapid increase in mineral exploration with the promise of further growth.

The Government’s role is changing from being predominantly an owner and operator of mines to being a manager and regulator. This transformation not only requires developing an appropriate regulatory framework to ensure sustainable growth of the sector, but is also demanding new skills in both the public and private sectors as Mongolia engages with international players in the market.

There are major new areas of expertise required, such as understanding the economic and commercial constraints on international mining companies, drafting of international contracts and agreements for the Government and for other local partners, and development of environmental regulations. At present Mongolia is relying heavily on international experts to provide technical advice in these areas. Developing its own expertise in these fields will have an impact on strategic decisions it will be taking in future on how to develop its substantial natural resources in a way that maximises the benefits for current and future generations of Mongolians.

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Other emerging demands for new technical expertise are discussed in Section 3.1 below.

The shift to more technical skills is consistent with wider experience and research. The development literature shows a clear and indisputable link between a country’s capacity in science (both hard and soft sciences) and technology and in generating innovation through research and development and the economic and social development of the country. Countries that are producers, rather than only consumers of innovation, with a well-educated population that helps attract private investment, tend to be advantaged developmentally, while those that do not have these characteristics tend to lag behind. Developing countries that are emerging as leaders have very clear strategies for building and improving these characteristics.

Beyond their more immediate capacity building objectives, scholarship programs can be catalysts for stimulating development of higher education institutions and in producing the types of individuals needed for research and development, including those who can carry out practical research on policy and practice in their home country to assist government in making prudent choices. A scholarships program can be a catalyst, with relatively low effort and cost, for enhancing these national capacities by ensuring that study and research undertaken while on award is grounded in the home context.

The expanded scholarship program is an ideal mechanism for supporting Mongolian public agencies to deepen technical skills over the medium term.

2.2.2 Extending scholarships beyond the public sector

ADS scholarships in Mongolia have, until now, been limited to public sector employees. However, as mentioned already, the new National Development Strategy will place greater emphasis on development of the private sector, and will also focus specifically on the agriculture, energy and mining sectors. These are all sectors where the private sector has a central role to play in Mongolia’s development.

While the development of public sector institutions remains a major priority, a number of government officials took a broader perspective, pointing to skill gaps in their sector as a whole, including the private sector. In areas like mining there is an overall sector-wide shortage of expertise in key areas, in part because of the departure of Russian expertise and also because of technological developments. Many stakeholders identified specific areas where high-level technical expertise is missing, particularly in Mongolian firms.

The doubling of the number of ADS scholarships by 2010 provides a unique opportunity to extend eligibility to employees in the private sector to develop high-level technical skills in priority fields of study. This would still allow a significant increase in the number of ADS going to public sector institutions.

The new, expanded Australian Scholarship Program also provides an opportunity to extend eligibility to relevant teaching staff in public and private universities. Specific public universities (especially the National University of Mongolia) have been previously eligible for ADS scholarships in English language and distance education. Extending eligibility to all universities, allowing them to compete for scholarships in priority fields of study, would provide longer term benefits in enhancing Mongolia’s capacity to train future professionals itself. Especially in new fields where many graduates are needed, upgrading or establishing new Mongolian university programs can be a cost effective means of building capacity in the medium and long term.

Opening up eligibility would also allow the NGO sector to compete. Although the sector is still in its infancy in Mongolia, and for the foreseeable future there would be no more than a handful of potential NGO candidates for post-graduate training in Australia, there are longer term benefits in

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building the professionalism and specialist skills in the sector. Allowing the sector to compete for scholarships in specific fields (as well as eligibility for ALA awards) would complement the shorter term capacity building being provided to the sector by other donors.

AusAID’s Education Policy published in May 2007, highlights that Australian Development Scholarships ‘… aim to … strengthen human resource capacity by addressing skills shortages and achieving a critical mass of Australian trained scholars in priority sectors in partner countries’.

2.2.3 English language

Requirements

Scholarship applicants must meet an acceptable level of proficiency in English as one of the ADS and ALA eligibility criteria. Australian institutions generally require a minimum IELTS score of 6.5 for post-graduate placement but some courses only require a score of 6.0. For the latter around 10 weeks of Pre-course English language training (PCE) in Australia is usually built into the award.

In the case of ALAs, the level is set at an IELTS score of 6.5, giving direct access to an Australian university. For ADS scholars who have an IELTS score of 6.5 or more, fast-tracked entry is currently feasible for applicants in the targeted Ministry category but not for those in the general category.

Special arrangements may currently be made for high priority Ministry candidates that score 6.0 IELTS. They may resit the IELTS (at their expense) or attempts have occasionally been made to seek a placement at 6.0 but with PCE in Australia.

Current arrangements

Nine months of English language training is provided in Mongolia for approved candidates with an IELTS score of 5.0 or 5.5. Those with 6.0 IELTS complete 6 months of training.

CaBSAF has sub-contracted the provision of ELT to the University of Humanities following a competitive tender process. There are alternative ELT providers in Mongolia and ELT was previously provided by the English for Special Purposes Foundation (ESPF).

The University provides both English language testing services and English language training and IELTS Preparation. The current contract is for two years, September 2006 to August 2008.

The University conducts a three-course training program for one group of (up to 20) participants, that comprises three sequential 3-month courses, designated as:

Course 1: Advanced General English (three months part-time);

Course 2: English for Academic Purposes (EAP) (three months part-time); and

Course 3: EAP/ IELTS Preparation (three months full-time).

The University provides course reports and the quality of ELT is monitored by CaBSAF using its Academic Adviser. The program aims to achieve an overall IELTS score of 6.5 or better, with no band less than 6.0 for 80% of the annual intake. This is an ambitious target. The latest CaBSAF Annual Report shows that the previous provider achieved a success rate over the three years from 2004-06 of between 30 – 60% for an IELTS target of 6.5 or better and between 60-90% for an IELTS target of 6.0 or better.

Constraints

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A constraint is the release of Mongolian officials for the training. Nine months full-time English language training is ideally needed to raise the IELTS level from 5.0 to 6.5. Mongolian law allows a maximum of only three months full-time release for officials to attend training. CaBSAF was able to negotiate two three-month part-time courses and one three-month full-time course over a nine month period. Previously all of the training was part-time.

Some of the ELT students are said to be experiencing difficulties due to competing demands of ELT and their work back in Ministries and agencies. This was highlighted in the Mid-term Review. These difficulties need to be traded off against the advantages of participating in ADS with Australian scholarships in high demand.

2.2.4 Harmonisation and alignment

Ideally, in line with the policy directions of the Aid Policy Framework, the Australian Scholarships program in Mongolia should aim to reduce fragmentation and the transaction costs on GOM partners and increase the strategic positioning of scholarships in meeting the country’s training needs by promoting donor harmonisation when and where possible. In practice, donor harmonisation in the area of scholarships is notoriously difficult to achieve.

There is usually a significant degree of variation in objectives and approaches and inevitably a degree of competition between donors for the best candidates. Commercial issues come into play because official scholarship programs help tertiary institutions to reach out to the private student market. Nevertheless, by sharing lessons learned, the effectiveness of aid through scholarships may be enhanced overall.

Key central agencies being targeted by the program also receive support from other bilateral donors and multilateral agencies although not generally through the provision of targeted scholarships. As noted by the Mid-term review, the program’s approach to capacity building in general is to empower the target agencies to take responsibility for identifying activities/personnel to be supported. In the longer term, this will encourage these agencies to manage the assistance provided by various donors to help ensure it supports their own HRD priorities. The design team accepts that this is an appropriate approach, and one which builds capacity within government to manage ODA, rather than have funding decisions made externally.

In the next phase of the Scholarships program AusAID Beijing will continue to exchange views with other donors informally, particularly in the context of periodic joint Government – donor meetings. The objective would be to reflect on other donors’ programs in Mongolia as part of the Annual Strategic Review. (Section 3.3 below).

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3 Implementation strategy and options considered

This design document covers a totally new scholarships program where the in-country management arrangements will cover not only the full ADS cycle (promotion, selection, mobilisation, variations and post-award monitoring) but where other schemes that fall under the Australian Scholarship banner will also be supported based on the specific requirements of each program. The commitment to double ADS and the expectation following the Foreign Minister’s visit to Mongolia that support will be targeted to a wider range of sectors reflecting emerging GOM priorities provides additional challenges. The options considered and implementation strategies selected reflect the new scholarship program arrangements and shift in priorities.

3.1 Targeting strategies

3.1.1 Targeting both institutions and specific fields of studyFor the reasons outlined in Section 2.2.2, the expanded ADS component of the new Australian Scholarships program will retain an emphasis on targeting public sector institutions, but also extend eligibility beyond the public sector.

The success of the current ADS program in Mongolia, as highlighted in Section 2, suggests that the targeting of public sector institutions continue on the basis of the current approach and processes, including the use of Ministry Working Groups to identify HRD priorities and to prioritise individual applicants.

There are a number of ways that eligibility could be extended beyond the public sector:

(i) One option sector would be to simply broaden the current ‘general’ category, under which candidates from non-targeted government agencies are currently allowed to compete for a limited number of scholarships in any field. However, this option would be inconsistent with the emphasis on targeting and selectivity in the Aid Policy Framework. It would also risk the program being swamped by applications from private sector employees looking for training in business management and other fields more appropriately developed through Mongolian universities or shorter term training. The primary reason for broadening eligibility for ADS scholarships, especially to the private sector, is based on the emerging priorities in the National Development Strategy and the critical need for high-level expertise in the private sector.

(ii) A second option – restricting eligibility to specific sectors such as mining and energy – would help to focus the scholarships on national priority areas. However, there would still be a risk of attracting large numbers of applications for generalist MBA degrees from these sectors, which would no doubt benefit the individual participants by maximising their options on return, but would not necessarily focus the scholarships on specialised fields that are critical to national medium term development goals and on training that Mongolian tertiary education institutions are unable to provide. Avoiding this by allowing the selection panel to exercise more discretion in choosing between candidates could reduce the transparency of the selection process, which has been such a valued feature to date.

(iii) The third, and favoured, option is to target specific fields of study that are critical to the national development goals and take advantage of Australia’s comparative strengths. This would maximise transparency and objectivity in the selection process. In order to allow for fine tuning over the life of the program and to accommodate emerging

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priorities, the list of targeted fields of study will be reviewed on an annual basis and adjusted as required.

This results in a two category targeting strategy:

Category 1: Targeting specific priority public sector institutions, with the fields of study identified by Ministry Working Groups based on HRD plans.

Category 2: Targeting priority fields of study, with eligible employees in other government agencies, Mongolian private firms, NGOs and universities able to apply.

3.1.2 Selection of target institutions Various stakeholders proposed additions to the list of public sector institutions that are targeted for ADS scholarships. These proposed additions have been reviewed on the basis of:

Their expected role in Mongolia’s medium/long term national development, as reflected in the draft National Development Strategy and in discussions with a range of national stakeholders.

Australia’s comparative advantages in providing post-graduate training that is at the cutting edge internationally, as well as the relevance of its own policies and practices to Mongolia’s circumstances.

The institutions’ potential to identify HRD priorities.

On this basis, four additional ministries will be targeted under the first category: the Ministry of Food and Agriculture; the Ministry of Industry and Trade; the Ministry of Fuel and Energy; and the Ministry of Health.

The Ministry of Food and Agriculture is responsible for production of Mongolia’s significant exports in animal products (eg cashmere) as well as expansion of food crops for domestic consumption. Specific priority human resource needs already identified by the Ministry include biotechnology, marketing and agricultural economics, infectious diseases of plants (eg vegetables and wheat) and pasture management. Mongolia currently lacks expertise in a number of these fields. The Ministry has a relatively stable staffing structure, which will facilitate the identification of medium priorities and the integration of graduates.

The Ministry of Industry and Trade is responsible for much of the mining sector (except coal mines) as well as the processing of animal products such as wool and leather, which are major exports for Mongolia. Many of the Ministry’s professional staff already have management degrees, but it lacks up-to-date technical skills in fields such as mining engineering. With an established strategic plan, the Ministry is well placed to develop a comprehensive HRD plan that targets strategic gaps in its expertise. At present the Ministry draws on expensive international experts for work on legal agreements and regulations, as well as economic analysis of the mining sector. Given the critical importance of the mining sector to Mongolia’s exports and to broader national development, there is a need to develop such expertise in-house. The need for appropriate regulatory and taxation regimes for the mining sector is well illustrated by the debate about new mining legislation during the past year, especially in the context of the massive Oyu Tolgoi copper and gold deposits.

The Ministry of Fuel and Energy was only established in 2004, with responsibility for Mongolia’s large coal reserves as well as the generation of power. It has a relatively young workforce with no overseas-trained Masters graduates. Last year it established two new divisions to develop coal technology and renewable energy, both critical areas where the Ministry needs to develop technical expertise. Specific priorities include coal liquifaction,

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given the country’s high dependence on imported oil, and the availability of renewable energy for scattered rural communities. The Ministry already has an HRD plan, although it requires further development.

The Ministry of Health faces a major challenge in implementing the Health Master Plan, which identifies human resource planning as a major priority. A January 2007 World Bank report described the health system as being in ‘disarray’, not through lack of funding or of strategic plans, but as a result of the Soviet legacy in health policy, especially an excessive reliance on hospitals. The Master Plan acknowledges that the current human resource management system in the sector is irrational, short-term and not based on modern practices. The result has been an over-production of doctors and excessive specialisation, combined with shortages of medical staff in remote districts (soums). The Ministry has identified health financing, public health (including epidemiology) and monitoring and evaluation as priorities for deepening its expertise. Other donors such as the ADB and WHO are supporting shorter term capacity building and human resource management to implement the Master Plan, which will be complemented by a series of post-graduate scholarships to Australia.

Consideration was also given to including the central bank, Mongol Bank, as a targeted institution. However, this agency has not been included as a target institution at this time given its access to IMF scholarships funded by AusAID.

The design team has also reviewed whether all of the existing ADS targeted agencies should continue to be specifically targeted under the new Australian Scholarships program. These are the Ministry of Finance, the Ministry of Social Welfare and Labour, the Ministry of Justice and Home Affairs, the Ministry of Education, Culture and Science, the Ministry of Foreign Affairs, the Ministry of Nature and Environment, the Government Service Council and the Cabinet Secretariat.

Some of these Ministries have already received significant numbers of scholarships and there have been suggestions from other agencies (currently competing for targeted scholarships) that they may be approaching saturation levels. However, there does not seem to be a discernable reduction in the availability of suitable candidates in these agencies with the necessary background to undertake Masters-level study in Australia. At this stage, all eight have been included as targeted institutions in the new program because they are responsible for priority areas in the draft National Development Strategy. Another consideration is that the targeting of these agencies has only recently been extended to include associated agencies that report to them (see below).

Nevertheless, the list of targeted institutions will be reviewed annually as part of a Strategic Review to ensure that these existing agencies warrant further scholarships, and to keep the total number of targeted agencies in the range of 10-12, including any further institutions added in future as a result of emerging priorities. This number allows each institution to qualify for at least one, and perhaps two scholarships each year (see Section 4.1.5 on scholarship numbers).

The 2006 Mid-Term Review of the current CaBSAF program specifically recommended that the Ministry of Nature and Environment be dropped from the list of targeted agencies because it had not developed any appropriate small scale capacity building proposal under that component of CaBSAF. The Facility Coordinating Committee of the CaBSAF did not accept this recommendation. Given the growing awareness of environmental issues, especially associated with mining developments, and the Ministry’s need to develop its expertise in the longer term, it will continue to be eligible for scholarships under Category 1 of the new scholarships program.

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3.1.3 Assistance in HRD and ‘provisional’ targetingAddition of the four new Ministries raises the question of when they should become eligible as targeted institutions, in particular whether this should follow development of their HRD planning and selection processes. As with the existing targeted agencies receiving scholarships under the CaBSAF program, some assistance will be provided to these additional Ministries to develop their HRD planning, to ensure that the scholarships within the Ministries are focused on fields that reflect national priorities and are appropriate for longer term study in Australia. The Managing Contractor will also work closely with them to establish their MWGs and effective selection processes, building on the successful experience under the CaBSAF.

All four of these Ministries already have considerable capacity in human resource management and an HRD plan, although some are more developed than others. There is also some urgency to commence scholarships in these sectors, especially given the time it takes for a scholar to be selected, prepared, undertake a masters program and return. The four additional Ministries will therefore be eligible immediately for scholarships under the targeted institution category, with greater supervision from the MC in the first year. This ‘provisional’ listing will be subject review to ensure that appropriate HRD and selection processes are in place in the second year.

3.1.4 Associated agencies Following the 2006 Mid-Term Review, targeted Ministries have been allowed to nominate staff from associated agencies as part of their participation in the targeted category. This allows targeted ministries to cast a wider net in selecting candidates and to take a more strategic approach across their sectors. These arguments remain sound and therefore staff of associated agencies will be eligible for scholarships under Category 1. (This will include the Academy of Management – see Section 3.1.6 below.)

3.1.5 Selection of priority fields of study for applicants outside targeted institutions

Unlike the current ‘general’ category, Category 2 scholarships will be restricted to specified fields of study, which will also be reviewed and specified each year as part of the Strategic Review. As explained already, they will be available to candidates outside the public sector.

The initial fields of study have been identified based on advice from stakeholders on priority needs for the key sectors, looking beyond ministries. These fields:

focus on Mongolian Government priorities, as already discussed, based on the issues highlighted in the Government’s longer term development strategy and assessment of critical needs by relevant sector ministries;

reflect Australian Government strategic objectives as highlighted, for example, by the Minister for Foreign Affairs and Trade in his April 2007 visit to Mongolia;

focus only on areas where Australia has a international comparative advantage;

avoid fields of study where Mongolian universities can adequately meet needs, but recognising that within available disciplines in Mongolia there are some specific fields of study or specialised topics where it lacks expertise and disciplines where existing capacity is below good international practice; and

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enable the program to maintain the current high level of transparency in the selection process, in particular by limiting discretion in the selection criteria and ensuring that assessments are as objective and verifiable as possible.

Based on these principles, the specified fields of study will initially include fields such as mining and construction engineering, resource economics, some aspects of environmental studies, renewable energy, coal technology, biotechnology, agricultural economics, infectious plant diseases, and actuarial studies. The full list for the first year is shown in Section 4.1.3.

3.1.6 Targeting categories of civil servants and other employees Under the present CaBSAF program, eligibility for ADS scholarships is restricted to staff employed under the ‘administrative’ category of the civil service, as defined in the Law on Government Service. The Mid-Term Review proposed that eligibility be widened to include non-uniformed staff in the ‘special’ service, including for example the Accreditation Agency attached to the Ministry of Education. The Review also discussed the option of broadening eligibility still further to include ‘support’ staff. This latter option was not supported because it would lead to large number of applications from teachers and health workers, who form the majority of the ‘support’ category under the legislation. However, the review noted that this also excluded the Academy of Management, which is associated with the Cabinet Secretariat and has a key role in training senior civil servants, and whose staff are in the ‘support’ category.

These limitations are no longer relevant for scholarships outside the targeted agencies, given the decision to broaden eligibility beyond the public sector. In Category 2 of the new ADS scheme in Mongolia, scholarships will be aimed at priority fields of study rather than specific employment categories.

Even for Category 1 scholarships to targeted institutions, the definitions of civil service categories in the Law on Government Service do not fit comfortably with the objectives of the Australian Scholarship Program, as the example of the Academy of Management illustrates. Eligibility should not be based on these legal categories or whether people wear a uniform or not, but instead on the nature of the position held.

Scholarships in both Category 1 and Category 2 will therefore be available to those in strategic positions, defined as positions able to have national influence through policy development, through technical research and development, through training professionals in new fields or through providing leading professional or technical services in a nationally significant organisation.

This could include lecturers at the Academy of Management and also teachers or doctors in policy roles, but would rule out the majority of ‘support’ staff in schools and hospitals.

3.2 Pre-departure preparation including English language training

As discussed in Section 2.2.3, CaBSAF has contracted a university in Mongolia to conduct a program of ELT for qualified ADS applicants. Without additional ELT support most candidates would not qualify for University entry in Australia. The program incorporates some elements of academic preparation which is considered an important success factor. There have been no student failures once students were placed in courses in Australia.

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While some students struggle to meet their ongoing work commitments as they study part-time, Mongolian civil service legal requirements do not permit more than 3 months of full-time study before employees lose their jobs. The Ministry Working Group Forum played a key role in helping to negotiate the current arrangements whereby targeted Ministries agree to release their employees studying English full time in the last three months of the course. There may be opportunities in future to further streamline current study arrangements as civil service arrangements evolve.

English language skills have presented a significant constraint to the availability of potential scholars from targeted ministries. CaBSAF has offered English Language Training in both Australia and in-Mongolia in response, though quality English language institutes are limited in Mongolia. Ongoing suitability and sustainability of this approach needs to be considered.

The design mission considered alternative approaches to the delivery of pre-departure training. One option is to conduct all pre-departure training in Australia. It could be conducted in a central location following a tender process. Alternatively, scholars selected could study at their chosen training institutions, given most institutions have such training facilities either on campus or have contractual arrangements with specialist ELT providers.

Such an approach has a number of drawbacks. It would be more costly. Scholars would also be away from Mongolia for an extra year. There would be additional risks since scholars who do not achieve the required level of English would need to return to Mongolia without a qualification. The administrative arrangements would also be relatively complex since institutions in Australia would be unlikely to offer even conditional placements to scholars at the lowest IELTS level. It would, therefore, be unclear in some cases where scholars might ultimately be placed. An option covering EL training in-country followed by additional EL training and academic preparation at Australian institutions that have offered conditional awards has similar drawbacks although up to 10 weeks of PCE will continue to be available in special cases as part of an award for some students with an IELTS score of 6.0.

This design is therefore framed around the current model of wholly in-country ELT including a semester of English for Academic Purposes for post graduate scholars not eligible for direct entry to an Australian tertiary course of their choice.

3.3 Strategic planning

The Aid Policy Framework stresses that Country Program Strategies will provide a single framework for all Australian Government efforts in a particular partner country. This means regional issues, such as HIV/AIDS, people trafficking and drugs, are to be treated as much a part of Australian Scholarships as are other sectors identified in consultation with partner governments. While there is no formal Mongolia Country Program Strategy, there needs to be flexibility to respond to such broader priorities. Additionally, in a highly targeted scholarships program a mechanism is needed that will enable adjustments to be made to the targeted agencies and to the fields of study based on emerging GOM priority needs, AusAID corporate initiatives and scholarship outcomes.

The Facility Coordinating Committee (FCC) is currently tasked to review targeting strategies. It includes as permanent members five agencies that are also targeted beneficiaries of the ADS program. The FCC will in the new program continue to perform as a Program Coordinating Committee (PCC) with many of its current functions and with the same membership. The broader strategic review issues are more appropriately addressed by a group that has a tighter membership and that is able to focus on broader strategic and policy

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issues rather than the needs of individual agencies. The design therefore provides for an Annual Strategic Review to be conducted by the two agencies designated in the Memorandum of Understanding executed on behalf of GOM by the Ministry of Finance as the ‘Coordinating Authorities’ for the program. For Mongolia this is the Cabinet Secretariat and for Australia this is AusAID. The core members of the review process may agree to invite other relevant GOM or GOA agencies to participate in the review process.

Appendix 5 provides detailed guidelines for the annual strategic review process.

3.4 Program transition

Although this design signals the establishment of a new Australian Scholarships program, continuity is important given the tight annual cycle for the scholarship process. The success of and support for the ADS scholarships in Mongolia and the pace of developments in sectors such as mining all argue for maintaining the number of scholarships through the transition to the new program. Section 4.1.5 argues for these and other reasons that the number of scholarships should be ramped up in advance of the 2010 commitment to provide 28 ADS scholarships for Mongolia.

3.4.1 The scholarship cycle Given that the peak workload associated with scholarships coincides with the termination of the current MC contract in August 2008, a smooth transition will be critical. During August 2008 the MC will have to advertise for new applications for the 2010 intake, complete a tender process for a subcontractor for English language training, arrange for an initial English language screening test for applicants, register selected candidates for the initial October IELTS test, as well as establish management arrangements for the new program. At the same time, the IELTS results for those selected for the previous 2009 intake will become available, following their language training, and final decisions will be taken on selection.

For this reason it is essential to include some overlap in the contracts for the Managing Contractors for the current CaBSAF and the new Scholarships Program, to cover the possibility that the current Contractor is not reselected or there are significant changes of personnel.

3.4.2 Maintaining effective processes and relationships A key factor in the success of the CaBSAF scholarships component has been the development of effective working groups in targeted ministries and well-understood processes. There is no reason to reinvent the wheel in this aspect of the new program, and therefore the MC for the new program must be provided with full access to current working documents under the scholarship component of the CaBSAF, including application forms, selection procedure processes and previous records on HRD planning for target institutions. This will not only avoid wasteful duplication in the start-up phase, but also make the transition more seamless from the perspective of participating Mongolian agencies.

The design includes a list of key documents that will be made available to all bidders to ensure that their proposals include continuity on these aspects of current processes. These are listed in Appendix 8. Additional working documents and databases will be made available to the incoming Contractor during the transition period.

3.4.3 Monitoring and evaluation.

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The new Australian Scholarships program in Mongolia will inherit a significant number of scholars selected under the CaBSAF program, who will return during the first 2-3 years of the new program. Other graduates have already returned under the CaBSAF program but have not yet completed their two year post-return period of monitoring.

The MC for the new program will be required to implement a monitoring and evaluation system that fully integrates previous, current and future scholars. There is room for further development of M&E tools and reporting formats, but the resulting database must incorporate previous data, as well as data on all returning students. This has been taken into account in the M&E framework described in Section 5.4.

3.5 Program duration and phasing

The design mission reviewed three options based on arrangements adopted by other programs that have outsourced the management of scholarship programs. The first option was a three year program followed by a review and possible redesign reflecting changing priorities and a new tender. This is considered too short a period for attracting serious competitive bids given the nature and complexities of the ADS/ALA cycle and the need to strengthen strategic targeting and outcomes monitoring arrangements.

The second option considered was a two-phase approach. This approach involved an initial phase of three years with an option to extend for a further two years, subject to a favourable Contractor performance assessment at the end of the first phase. This approach assumes no fundamental design changes would likely emerge at the end of the period.

The design, covers a program duration of five years, commencing 1 July 2008, however, due to the Financial Management and Accountability Act’s Regulation 10 restrictions on future financial year commitments, the Contract for the provision of these services will be structured as a three year contract with an option to extend for a further two years, subject to a favourable Contractor performance assessment at the end of the first phase.

The Contract will contain quality assurance provisions in the Scope of Service coupled with regular strategic reviews. The reviews will address emerging priorities and, with some design/contract flexibility, allow for priorities to be adjusted and additional Contractor tasks to be added as circumstance change.

Program facilities will be located in Ulaanbaatar.

3.6 Flexible delivery

Flexible education programs can provide greater choices in the delivery of Australian education and training services. These arrangements can better meet the needs of scholars, Australian institutions and partner countries in delivering a more tailored and contextually-relevant educational experience. The Aid Policy Framework promotes more flexibility in the delivery of the scholarships program that is responsive to the human capital development of partner countries.

Mixed-mode delivery can reduce the time overseas for senior officials who cannot afford long absences and for men or women who have family commitments. For Masters degrees with a significant research component, flexible mixed-mode arrangements could incorporate study time in Mongolia with scholars completing some or all of their data collection, and

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some thesis formulation in Mongolia with a local co-supervisor. However, Mongolian Masters students favour study by course work.

The original CaBSAF design featured study by distance education but outside the standard ADS arrangements. There has been no real demand for this mode of study and limited interest on the part of Australian universities to offer distance education to individual scholars.

AusAID’s Scholarships Group in a recent Issues Paper noting that ADS does not currently provide for the adoption of flexible education programs in the delivery of training services, concluded that any change should be assessed against the different needs and capacity of each country and build on existing partnerships between Australian and local institutions, with the scope limited to a small number of courses focused on a few subject areas and a small number of countries.

The paper also noted that as most flexible learning modes are offered off-shore, usually by distance learning or by co-supervision by a local university, issues around quality assurance and international accreditation of local service providers are important considerations. Some Australian institutions have an agreement with local institutions to provide in-country services under twinning arrangements with split-site degrees. The existing links between institutions provide a strong basis on which to introduce flexible learning programs into some countries, as it is assumed to have an established system of quality assurance and international accreditation in place. There are both risks and opportunities in promoting flexible delivery modes. Because the ADS program seeks to provide scholars with the knowledge and skills to influence development outcomes in their home countries, there are particular benefits in studying in an advanced economy where students develop an insight into different processes with exposure to different ideas and decision-making processes such as participatory approaches, critical thinking, consensus building, accountability and transparent decision-making. Flexible learning programs of benefit to Mongolia must therefore include a significant proportion of in-Australia study.

The importance of the overseas experience is captured by the following quote from a review of the Australia-IMF Scholarship Program drawing on discussions with alumni and institutions in four targeted countries including Mongolia:

‘In a number of ways Mongolia is further advanced along the path towards the creation of a market based economic system than is either China or Vietnam. Still almost all of the older officials were trained in Russia or Eastern Europe and there is great appreciation of the need for Western training in how market based economies work. This is a major reason why officials from all four countries visited stressed the importance of training being in Australia rather than in country. They felt that it was very important to actually live the experience. A number of returned scholars made the same point – reading the newspapers and listening to political debates in Australia had taught them a great deal about how capitalism actually works.’

Overall, there is at this time little interest in Mongolia in other than the full-time in-Australia, campus experience. Flexible delivery modes will shortly be piloted under ADS arrangements in Indonesia and this and other possible trials may offer longer term prospects to encourage such modes of delivery in the Mongolia program. This will depend on demand, the development of the necessary infrastructure and the establishment of commercially-based links between Mongolian and Australian institutions. In the new program flexible delivery modes may be considered where offered by Australian tertiary institutions under approved

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ADS guidelines. The design makes no provision for this mode of study outside the ADS program, an option included in CaBSAF for distance learning but never utilised.

3.7 Contracting strategy

The contract with the current service provider, expires in August 2008. To facilitate a seamless transition between CaBSAF and the new Program, a new contract will need to be in place by 1 July 2008.

AusAID will conduct a tender process for the selection of a Contractor to deliver the outputs as described in the draft Scope of Services submitted with this design. The Request for Tender will be developed by AusAID’s Procurement Management Group (with input and support from AusAID Beijing) and will be tendered in an untied environment.

Bids involving any new Contractor will need to expand on the transition strategy outlined in Section 3.4 above describing how bidders propose to manage the hand-over with minimal, if any, disruption. As part of the strategy, the current Contractor will need to provide an incoming Contractor with all the details necessary to complete the placement and pre-departure arrangements still underway for any scholars/fellows. Records, manuals and databases will be transferred to a new Contractor. Some fundamental existing templates and documents covering aspects of the ADS cycle will be made available to bidders with the design documentation. These are listed in Appendix 8.

The contract will be outputs based and involve payment in arrears to the service provider at the end of each quarter. A draft Scope of Services is included with the design documentation.

Other Contractual Issues

Tasks associated with Australian Scholarships will evolve over time. Additional administrative tasks may therefore be identified for possible outsourcing during the life of the program. There needs to be sufficient flexibility in the Scope of Services for additional tasks to be added. Where these are administrative in nature, tenderers could be required to provide indicative costings for additional administrative tasks in their financial proposals, for use by AusAID as the basis for future contract negotiation if more tasks are outsourced. The draft Scope of Services provides for additional tasks to be identified during the life of the program. By mutual agreement some non-scholarship related tasks could also be managed under the program.

3.8 Australian potential to contribute through scholarships

The Australian higher education sector has a strong commitment to internationalisation and welcomes scholars from countries such Mongolia as part of this commitment. Innovative programs designed to facilitate the academic and cultural transition of newly enrolled scholars are offered to ensure that the formal programs of study can be undertaken successfully. The quality of Australian courses at both undergraduate and postgraduate levels is recognised as world-class and graduates have achieved high academic and professional distinction.

Since their inception with the Colombo Plan, Australian scholarships have enabled regional partners to gain knowledge for social development, economic integration and democratic reform. The scholarships have enabled valuable friendships and networks to be built with leaders in the region. The value of scholarships is further reflected in the decision to establish

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the Australian Leadership Awards focused on developing future leaders in the Asia-Pacific region.

The Aid Policy Framework in highlighting a doubling of the number of education awards offered by Australia to the region, noted the ‘… strong accord within Australia and the region on the value of scholarships as a means for promoting development and fostering relationships between Australia and people from the region. Scholarships promote political and economic reform and good governance in partner countries while building understanding within Australia of the people and development challenges of the region. They enable regional leaders to develop enduring connections with Australia. Well-targeted scholarships with proper gender balance are a highly effective form of aid. They empower people from developing countries to drive their own national development and reform agendas based on an informed understanding of a developed economy. Past Australian aid scholarship recipients have now become leaders in their fields throughout Asia and the Pacific.’

Australia has significant potential to contribute to Mongolia’s HRD needs through its expertise in the provision and management of scholarships and, given the quality of its higher education courses, Australian institutions are highly regarded in Mongolia. For many GOM ministries/agencies, Australia is the preferred destination for academic placement including through the Government’s own scholarships program.

3.9 Lessons learned

Recent reviews of Australian scholarship programs covering most of the major recipients of Australian scholarships have identified lessons that have some bearing on future scholarship program designs. Key lessons most directly relevant to the situation in Mongolia that have influenced the present design include the following:

An in-country pre-departure training program combining ELT with some academic preparation is a significant ADS outcomes success factor where scholars have not previously been exposed to an English language Western academic study environment.

Student selection that combines EL testing with a rigorous assessment process and strong employing agency ownership that empowers agencies to identify their HRD priorities and gives them specific roles in identifying scholars and courses of study helps to achieve positive ADS outcomes.

Any alignment between ADS and program objectives will be coincidental rather than strategic where selection is based entirely on individual merit and no consideration is given to preferred fields of study or the priority needs of employer agencies.

Institutional targeting approaches have the potential to address the specific knowledge and skill gaps of an agency and eventually develop a critical mass of expertise, but it requires at a minimum at least some basic human resource needs analysis and the agency should have a human resource development and management plan in accordance with its overall goals and strategic directions.

Targeted activities which integrate scholarship training interventions with the HRD plans of organisations to increase the potential for capacity building will be most effective and conversely activities which are one-off and conceived outside of organisational plans will result in little institutional impact.

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Action plans and agreements that cover the reintegration of graduates into targeted agencies will help to ensure that they can apply their new knowledge effectively and further improve scholarship outcomes.

Effective Alumni strategies have the potential to contribute to successful Australian Scholarship outcomes by supporting the enhancement of mutual understanding and contributing to linkages between individuals in Australia and partner countries while contributing to program promotion and sustainability.

If scholars are chosen well, positive employment and promotion outcomes on return can be achieved through the process of learning overseas; the acquisition of strategic and conceptual thinking and problem solving skills; increased confidence; and a different attitude to work. These positive outcomes are likely to be greater by targeting particular levels and fields of study.

Quality in aid delivery and achievement of identified outcomes cannot be assured without post award monitoring. Knowledge gained from post-award monitoring should serve to influence the strategic approach to scholarships, including the types of education to be provided and optimise the benefits that graduates, their employers and the country derive from the education received.

A small country program can be out-sourced and implemented effectively, without loss of Australian identity or a lack of government to government relationships, although the success of out-sourcing will depend – to a large degree – on the quality of the personnel involved.

Program designs with capacity building elements in countries where AusAID does not have an office and where the program is managed on a day-to-day basis by local staff need to include flexible allowances for staffing and technical assistance support.

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4 Program Description

4.1 Program characteristics

4.1.1 Program focus and targeting principles

The expanded ADS component of the new Australian Scholarships program will retain an emphasis on targeting public sector institutions, and extend the range of sectors covered by scholarships in line with the priorities outlined in Section 2. Support will also be provided for Mongolia’s participation in ALA scholarships and fellowships under the broad Australian scholarships banner.

The ADS targeting will be based on the following principles:

to focus on Mongolian Government priorities, based on sectors and themes highlighted in the Government’s longer term development strategy and the assessment of critical needs by relevant sector ministries;

to focus only on areas where Australia has a comparative advantage and to take into account Australian Government strategic objectives;

to avoid fields of study where Mongolian universities can adequately meet needs, but recognising that within available disciplines in Mongolia there are some specific fields of study or specialised topics where Mongolia lacks expertise and disciplines where existing capacity is below good international practice;

to maintain the current high level of transparency in the selection process and consistent with AusAID’s Anti-Corruption Policy published in March 2007, in particular by targeting in a way that limits discretion in the selection criteria and ensures that assessments are as objective and verifiable as possible;

to retain a strong focus on public sector institutional development through a targeted approach involving a number of selected institutions;

to expand eligibility beyond the public sector for specific fields of study, recognising that the priorities of both the Mongolian and Australian Governments include sectors where the private sector and other organisations will be critical;

to build the capacity of Mongolian universities (both public and private) to provide effective courses in priority fields of study, ensuring that universities are committed to providing such courses upon graduation of the participant;

to keep the program as simple as possible consistent with the other principles stated above.

There will therefore be two categories of ADS scholarships, both of which will be targeted:

Category 1, targeted on priority public sector institutions, with the fields of study identified by Ministry Working Groups based on HRD plans (around two thirds of ADS awards annually).

Category 2, targeted on priority fields of study and open to eligible employees in government agencies and Mongolian private firms, NGOs and universities (around one third of ADS awards annually).

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In addition to these targeting principles, specific eligibility conditions will apply to all participants in both Categories, as set out in Section 4.1.8. These include a minimum of 2 years employment with their current organisation and a requirement for employers to enter into agreements for continuing employment for a minimum of 2 years after graduation.

4.1.2 Target agencies

The initial public sector institutions eligible for ADS scholarships under Category 1 will be:

Ministry of Education, Culture and Science Ministry of Finance Ministry of Food and Agriculture* Ministry of Foreign Affairs Ministry of Fuel and Energy* Ministry of Health* Ministry of Justice and Home Affairs Ministry of Industry and Trade* Ministry of Nature and Environment Ministry of Social Welfare and Labour Government Service Council Cabinet Secretariat.

*The Ministries of Food and Agriculture, Fuel and Energy, Health and Industry and Trade are included on a provisional basis for the first year, subject to the development of appropriate HRD planning and scholarship selection processes. They will be eligible immediately for scholarships under the targeted institution category, with greater supervision from the MC in the first year.

These initial target institutions will be reassessed each year as part of the Annual Strategic Review.

4.1.3 Targeted fields of study

Category 2 scholarships will be made available, on a competitive basis, for Masters programs covering the following target fields of study:

Mining engineering Construction engineering Mining, energy and natural resources law Resource economics Renewable energy Coal technology Biotechnology Environmental studies relating to resource development Agricultural economics and/or marketing Infectious plant diseases Pasture management Actuarial studies Non-bank financial regulation Epidemiology and public health TEFL (Teaching of English as a Foreign Language).

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It is recognised that some of these fields of study are broad, with dedicated Masters degrees available (such as mining engineering and actuarial studies), while others (such as non-bank financial regulation) reflect narrower priorities that would be accommodated within a broader Masters degree.

It will not be possible to grant a scholarship in each of these fields each year (see Section 4.1.5 on the number of scholarships). Applications for Category 2 scholarships will be considered by a single panel on a competitive basis across these fields of study as a pool, although the Annual Strategic Review may recommend specifying a minimum number of scholarships for a subset of the above list, based on specific national priorities. Likewise it may be necessary to specify a maximum number for some fields if there are large numbers of eligible applications in those fields, distorting the competitive process.

Scholarships in Category 2 (as well as in Category 1) will be available to those in strategic positions, defined as positions able to have national influence in the specific field of study through policy development, through technical research and development, through training professionals in new fields or through providing leading professional or technical services in a nationally significant organisation.

Subject to the detailed eligibility conditions specified in Section 4.1.8, Category 2 will be open to employees in all Mongolian organisations except targeted institutions eligible for Category 1. (Staff of associated agencies of Category 1 institutions may also be eligible under Category 2 given that only a small number of such staff are likely to be selected under Category 1.) Employees of international firms and international NGOs will not be eligible, although employees of joint ventures may qualify.

4.1.4 Levels of study

ADS will be available for Master’s degree studies at Australian Universities by course work or research. Some Masters degrees in Australia can include up to 50% of research and could incorporate a significant in-Mongolia research component. In practice, Masters by course work is likely to be the approach most favoured.

Study at PhD level will not be permitted. There has been no significant demand for PhD study in the past. It is also not a cost effective option in a situation where award targets have been set but the overall budget is limited.

The ALA scholarships program offers PhD study opportunities as well as study at Masters level. ALA fellowships cover short-term study, research or professional attachments of up to six months. Endeavour awards are for Postgraduate and Postdoctoral, Vocational and Technical Education, Executive and Student Exchanges. Other Australian scholarship programs notably those from CMU and UOW are for study at Masters level while the Australia IMF scholarships are for study at Graduate Diploma or Masters level.

4.1.5 Scholarship numbers

4.1.5.1 Number of scholarships available from 2010

During the next five-year phase of the Australian Scholarships program a total of 28 ADS scholarships will be awarded annually by 2010. Approximately two thirds of these scholarships (ie 18 or 19) will be available to Category 1 institutions, with the other third (ie 9 or 10) granted to individuals applying under Category 2.

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This will allow for access to an increased number of scholarships by existing targeted agencies, notwithstanding the addition of 4 new ministries and the extension of eligibility under Category 2 beyond the public sector.

Consideration was given to specifying the number of scholarships available to each of the private and NGO sectors within Category 2. However, this would be unnecessarily restrictive and could even limit the number available for those sectors if the remainder of the scholarships were seen as ‘belonging’ to the public sector. Given both the reputation of the current ADS process for transparency and the addition of an independent member on the Category 2 Screening/Selection Panel from outside the public sector, applications from the private and NGO sectors are likely to be treated fairly. Outcomes will be monitored annually to ensure that applications from all sectors are considered on the same criteria for Category 2.

4.1.5.2 Number of scholarships in the transi tion years

A sudden increase from 14 to 28 scholarships in the 2010 intake year would delay significantly the benefits of the increased number of scholarships, given that most of these scholars would not return to Mongolia as graduates until 2012, five years from now. Also given that most of the scholarship costs are paid in arrear to universities, there would be a significant reduction in expenditure on AusAID’s Mongolia program during the initial years of the new program. (This assumes that the non-scholarship components of the CaBSAF program finish as scheduled in August 2008. It would be difficult to complete any other significant new projects before the full year cost of the new increased scholarship program is felt in 2011/12.)

The financial implications under various options for increasing scholarship numbers have been calculated using a Financial Modelling Tool developed by the design team and provided separately to AusAID. The results for three major options are shown in the following diagram.

Figure 1: Scholarship numbers

Total Mongolian Program in 2007/08 to 2012/13

$1.5

$2.0

$2.5

$3.0

$3.5

Financial Year

Proj

ecte

d Ex

pend

iture

($m

)

1. Wait til 2010

2. Grad.increase3. Fast track

Moving as quickly as possible to 28 scholarships per annum (ie with the maximum possible number of 20 scholarships commencing in 2008 and the full 28 commencing in 2009) would provide a smooth expenditure pattern, as shown in the fast-track option in the diagram.

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However, the fast track option would risk major management problems by adding significantly to the pressures on the MC already described in Section 3.4 for the first 2 months of the new contract.

The expansion in the number of scholarships will therefore proceed gradually over 3 years, with roughly equal increases each year (ie the second option shown in the diagram above). In 2008 up to 19 scholarships will actually commence, up from the 14 scholarships commenced in previous years. This will be achieved by bringing forward some of the candidates for the 2009 intake who already have an adequate IELTS score. In the 2009 intake this will increase to 24 scholarships, leading to 28 scholarships commencing in 2010 in line with the Australian Government’s commitment.

This gradual ramping up of scholarship numbers has implications for the current Contractor managing the CaBSAF program. The most significant immediate changes will be:

an increase in activity required to arrange placement and pre-departure support for a larger number of scholars in 2008 (ie 19 rather than 14);

advertising in mid-August 2007 for an increased intake for 2009, based on the new target institutions and fields of study in Categories 1 and 2 (see below);

renegotiating the sub-contract with the ELT provider for a second class and second native English-speaking teacher, in order to provide for an intake of 24 in 2009.

Moving to the new Categories 1 and 2 for the 2009 intake responds quickly to the emerging priorities identified by the Mongolian Government and to the April 2007 announcement of the Australian Minister. There would also be little point in expanding the number of scholarships in 2009 using the current ADS categories, especially as this would require the number of scholarships for the existing targeted agencies to be wound back the following year in order to accommodate the additional 4 ministries.

However, in order to phase the introduction of the new program and to allow time for new processes to be developed by the new Contractor, the new Categories will be only partially implemented for the 2009 intake:

The 4 new targeted agencies in Category 1 will be provided with one scholarship at most, to give these organisations time to develop their HRD and selection processes.

Eligibility for Category 2 scholarships will be restricted to the public sector, to provide time for a marketing strategy to be developed by the new MC and staff to be ready to respond clearly to questions from potential applicants from the private sector and NGOs. There is insufficient time to do this before the 2009 intake is advertised in mid-August 2007. This advertising cannot be postponed given the fixed timing of IELTS tests, the 9 month ELT program and the timing of university applications in 2008.

4.1.6 English language and academic preparation

Nine months of English language training will be provided in Mongolia for approved candidates with an IELTS score of 5.0 or 5.5. Those with 6.0 IELTS will complete 6 months of training. Those with an initial IELTS score of 6.5 or better may be fast tracked for placement in Australia under the arrangements described in Section 4.1.7 above. In special cases awardees with an IELTS score of 6.0 and able to obtain a placement may undertake up to 10 weeks of PCE in Australia as part of their award.

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ELT will be sub-contracted to a local provider selected through a competitive tender process. The same contract could incorporate English language testing services. Alternatively this will be sub-contracted separately. The program will broadly comprise three sequential 3-month courses, designated as:

Course 1: Advanced General English (three months part-time);

Course 2: English for Academic Purposes (EAP) (three months part-time); and

Course 3: EAP/ IELTS Preparation (three months full-time).

Class size will be limited to 20 participants. Two classes are likely to be required. Students with an IELTS of 4.5 may also be admitted if places are available to make up a course of up to 20 participants, but they will exit the program at the end of Course 1, regardless of progress or any further IELTS.

Each class must have an experienced and qualified native-speaker of English, preferably an Australian, with a recognised postgraduate degree in TESOL, and experience in teaching EAP and IELTS Preparation to adult learners. Experience in the region or in Mongolia is desirable but not necessary.

4.1.7 Selection process

Current joint AusAID/GOM ADS selection processes are effective and transparent, involve strong GOM agency ownership and will be retained in the new program. The 2006 Mid-term review of CaBSAF noted that: ‘The formation of the MWGs has been an effective approach for introducing a selection process for ADS that is transparent, open and competitive, and contributes to both the knowledge and skills of the individual along with the capacity building priorities of the concerned agency … the introduction of agreements between the agency and individual helps secure employment with the agency following graduation, and the Individual Action Plans (prepared by the scholar and implemented on return) are an effective way of extending the knowledge and skills acquired in Australia to the scholar’s work mates.’

CaBSAF has developed numerous templates and guideline documents to support its effective and transparent processes. These are not reproduced in this design document but are referenced in Appendix 8 and will be made available to bidders receiving the PDD. With relatively minor adjustments they will be used in the new Program phase but subject to regular review and continuous improvement. For example, more attention will need to be given to the sharing of experience and skills gained by graduates in Australia within institutions on return. Most of these agreements are attachments to the CaBSAF ADS Manual of Procedures.

The selection process that currently applies to targeted agencies will be adopted for targeted agencies in Category 1. The process that currently applies to the ‘General Category’ of agencies will be adapted to meet the requirements of the new Category 2. Under CaBSAF, the number of awards allocated to general category applicants was determined by the relative success of the targeted agencies in placing candidates in training. In the new program, Category 2 applicants compete within a separate pool of around one third of the total number of awards available each year. To minimise the scope for corruption in the selection process relevant elements of AusAID’s Anti-Corruption Policy published March 2007 will be applied as necessary.

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4.1.7.1 Select ion process for ADS Category 1

The Ministry Working Group (MWG) in each targeted agency will play a key role by screening the eligibility of applicants; ranking eligible candidates on developmental criteria; monitoring attendance and participation at in-Mongolia ELT; collaborating with awardees to select the most appropriate university course; monitoring the scholar’s progress during the period of study and monitoring progress in the post-return implementation of the scholar’s action plan.

The selection process will comprise the following stages:

Advertising and briefing:

In August expressions of interest are invited (due 10 September) through newspaper advertisements, on the Program website and within Ministries by their respective Working Groups (MWGs).

This is followed by a briefing session organised in each Ministry by the MWG attended by representatives of the Program Office and Cabinet Secretariat and interested applicants where opportunities and requirements are explained.

Eligibility Screening:

Each Target Ministry has designated a Ministry Selection Group (MSG) primarily drawn from the membership of the MWG but including the head of the MWG and with at least three members. Its task is to screen EOIs for compliance with the eligibility criteria. There is no assessment. Non-compliance with any eligibility criterion means exclusion from selection. A Program Office representative will participate in the screening process.

Screening takes place in the third week of September. To help ensure transparency particular care is taken to ensure that all EOIs submitted are given due consideration and copies of all EOIs are stored and registered in the Program Office.

Ranking and selection of applicants:

Eligibility Screening is immediately followed by a selection process where eligible applicants are ranked against selection criteria by the same MSGs with Program Office participation.

The outcome is a ranked list of applicants qualified to take an IELTS 2 test subject to endorsement by the Ministry of the rankings through its Working Group.

The lists of ranked candidates (Category 1 and Category 2) are referred to the PCC (out of Session if necessary) for approval.

This is followed by an initial IELTS test in October. Selection rankings are revisited and may be adjusted by the MWG which determines which of the ranked candidates will proceed to ELT in Mongolia or which of those having an IELTS score of 6.5 may be fast-tracked for early placement. Alternatively, those with an IELTS score of 6.5 may be held over by the MWG for 12 months to be reassessed/prioritised against other higher-ranked Ministry candidates that have to complete 9 months of in-country ELT.

2 References to IELTS scores in this Section should be read as no band more than 0.5 below the total quoted. eg 6.5 means an average of 6.5 and no band below 6.0.

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Those selected for fast-tracking are placed by the Program Office using standard ADS placement processes. In practice, placement will be for second semester entry in the next calendar year.

For those eligible for ELT, the Program Office will advise the number of places available which is determined by future entry targets allowing for an anticipated drop out rate and the number approved for fast-track entry.

English language training and finalisation of candidature:

English language training comprising three sequential 3-month courses (first two courses part-time and third course full-time) commences in November and concludes in August. Approved candidates with 5.0 or 5.5 IELTS enter the full course. Those with 6.0 IELTS enter course 2 and complete 6 months of training.

A final IELTS test is conducted in August for all ELT participants. Following this test MWGs review their ranked candidates including any that had scored 6.5 at the initial IELTS test but were held over.

Special arrangements may be made for high priority Ministry candidates that score 6.0 IELTS. They may resit the IELTS (at their expense) or attempts could be made to seek a placement at 6.0 but with PCE in Australia. This approach is to be discouraged with preference given to candidates with an IELTS of 6.5 at the initial October IELTS or the final August IELTS in the flowing year. Ministries seeking to advance highly ranked candidates with 6.0 IELTS risk losing their allocation if the 6.0 IELTS candidate can’t be placed.

Candidates are placed either in the first or second semester by the Program Office applying standard ADS cycle arrangements.

4.1.7.2 Select ion process for ADS Category 2

Advertising and publicity:

In August expressions of interest are invited (due 10 September) through newspaper advertisements and on the Program website.3

The program’s Promotional Plan will give particular attention to how media activities and publicity materials may be effectively structured to reach potential applicants from Ministries, universities, the private sector and civil society organisations. Consideration could be given in that context to briefing sessions by Program Office staff in some key organisations not specifically targeted but likely to be the source of well qualified candidates in particular fields of study.

Applications are received by the Program Office.

Eligibility Screening:

3 This design assumes that the timing of selection processes for both categories will be the same. However, consideration should be given to bringing the process for Category 2 selection placement forward to enable placement in the first semester of the following academic year for candidates having the required levels of English. Feasibility of such an approach will be determined in part by the staffing structure finally adopted and the timing of visits by for example, the Academic Adviser who performs multiple tasks during each visit. The incoming contractor will need to review the practicality of such an approach.

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A new Category 2 Screening/Selection Panel will screen EOIs for compliance with the eligibility criteria and conduct phased interviews. Non-compliance with any eligibility criterion means exclusion from selection. Panel members are the Contractor/Academic Adviser; the GSC; a high-level industry representative; an independent local education professional and AusAID-Beijing.

Screening takes place in the third week of September.

Ranking and selection of applicants:

Eligibility screening is immediately followed by a selection process where eligible applicants are ranked against selection criteria by the same Panel.

The lists of ranked candidates (Category 1 and category 2) are referred to the PCC (out of Session if necessary) for approval. This is followed by an initial IELTS test in October. Selection rankings are revisited and may be adjusted by the Panel which determines which of the ranked candidates will proceed to ELT in Mongolia.

Ranked candidates having an IELTS score of 6.5 or more will generally be fast-tracked for early placement. The Panel will interview such candidates at the earliest opportunity and where the interview confirms the ranking based on an assessment of the EOI, candidates may be approved for fast-tracking and second semester placement using standard ADS placement processes.

For those eligible for ELT, the highest ranked candidates based on the number of places available for Category 2, the number selected for fast-track placement and any other relevant issues will join their Category 1 colleagues for 9 months of ELT in Mongolia.

English language training and finalisation of candidature:

ELT arrangements are the same as for Category 1 candidates.

Following the final IELTS test in August at the completion of the ELT, candidates are interviewed by the Category 2 Screening/Selection Panel. Placements are sought for the highest ranked candidates following approvals and subject to the number of places available for Category 2. Placements may be for Semester 1 or 2 the following academic year.

4.1.7.3 Action planning

The development and implementation of Action Plans is a fundamental requirement. At application candidates submit a brief version of their Action Plan (AP) as part of their EOI. By August the following year candidates develop a fuller version of the Action Plan and in collaboration with their MWG link their Plans to specific course priorities ready for submission of an application to an Australian university by 15 September once candidature is finalised. IELTS-qualified Category 2 candidates bring this fuller version of the Action Plan to the Interview Panel in August/September of the following year. Various versions of the Action Plan developed prior to and during academic study are held in the Scholar’s Portfolio. (Action Plan and Portfolio templates/guidelines are listed in Appendix 8).

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4.1.8 Eligibility and selection criteria

The criteria used need to be transparent and well publicised to all stakeholders. Eligibility and selection criteria must be carefully distinguished. For eligibility, precise standards must always be specified so that intending applicants are in no doubt as to eligibility conditions to help minimise the number of ineligible applications. Current criteria in Mongolia address all of these issues and will be adopted by the new program. They are listed below with some essential adjustments. They will be reviewed annually and updated as necessary.

Eligibi l i ty Criteria (both categories):

Field Criterion

Citizenship/ Residency

Mongolian citizen and resident

Concurrency of scholarship

Not hold or have held an Australian government-funded scholarship in the preceding 12 months at time of application

Concurrency of Australian study

Not already be studying at an Australian institution at the time of application

English language proficiency

Potential level of English language equivalent to an average IELTS level of 5.0, as determined by an IELTS-style English Language Interview conducted by the language contractor

Academic history Bachelor level (or equivalent) qualification from an accredited academic institution

Basic requirements

Expression of interest including an outline of a proposed Action Plan and an assessment of fundamental IT literacy skills in word processing and use of the Internet, as well as an academic transcript from a recognised Mongolian tertiary institution

Employment history

At least two years of full-time work experience with the nominating Ministry or other employer and currently employed by the nominating Ministry or employer4

Current position In a strategic position, defined as a position able to have national influence through policy development, through technical research and development, through training professionals in new fields or through providing leading professional or technical services in a nationally significant organisation

Visa requirements Willing to undertake a medical and meet Australian visa requirements

Future commitment

Willingness to return to Mongolia to their nominating Ministry (Category 1) or employer (Category 2) for at least two years upon completion of studies

Willingness to engage actively as an alumnus/alumna

4 Consideration may be given to easing this requirement for Category 2 private sector applicants in outstanding cases.

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Selection Cri teria – Category 1 :

Field Criterion Application

Ministry training need

Degree to which the proposed action plan supports the nominating Ministry's training needs and commitments in implementing the Ministry's HRD plan

5 = highly relevant, 3 = relevant, 0 = irrelevant

Ministry priorities

Priority ranking by Ministry ranked first = 10, second = 8, third = 6, fourth = 4

Relevance of study

Relevance of employee's current position/responsibilities to proposed field of study/action plan

5 = highly relevant, 3 = relevant. 0 = irrelevant

Academic achievements & potential

Academic achievements and assessment of potential to succeed in Australian higher education courses

5 = high level of achievement and potential to succeed, 3 = satisfactory level of achievement/potential to succeed, 0 = low level of achievement/potential

IT skills IT literacy skills in word processing and use of the Internet (Based on self-evaluation in EOI

5 = highly skilled, 3 = skilled, 0 = unskilled

Criteria are weighted times three where the criteria relate to the priorities of the Ministry thereby giving the Ministry’s needs dominance in the selection process.

Criteria are weighted times two where they relate to academic achievement and the relationship between the applicant’s position in the Ministry and the individual’s proposed course of study.

Selection Cri teria – Category 2:

For Category 2, selection criteria will be broadly based on those currently applying to the previous general category. They will focus on field, goal and study awareness as well as commitment.

Field Criterion

Field of study Proposing to complete a Masters degree covering one of the specified priority fields of study

Field awareness Study plans and assessment of awareness of proposed fields/sub-fields of study

Goal awareness Relationship between field of study and workplace needs. Significance of the Action Plan. Distinction between personal aspirations and relevance of study field to employer/sector needs

Study awareness Awareness of differences between Mongolian and Australian study cultures.

Commitment Commitment to needs of employer for at least two years

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Current selection guidelines are referenced in Appendix 8. The interview format and detailed selection approaches will be reviewed and updated by the incoming Contractor.

4.2 Purpose and objectives

The design brings all the various scholarship schemes under one in-country management framework providing a comprehensive design for the management of Australian Scholarships in Mongolia.

The key aims of Australian Scholarships are to strengthen partnerships and links between Australia and other countries in the Asia-Pacific Region and to target leaders – those that can either promote or influence reform.

A new strategic vision has been developed for the Mongolia Australia Scholarships Program. It addresses broader corporate developments in relation to scholarships while at the same time reflecting the Mongolia-specific elements of the ADS program. It will be reviewed at least annually in the context of the annual strategic review. The purpose and objectives of the new Mongolia Scholarships program are:

Program PurposeTo contribute to enhanced capacity in priority Mongolian Government Agencies and priority economic sectors through expanded access to higher education and training and relevant professional linkages in Australia.



4.3 Component structure and outputs

The Mongolia Australia Scholarships Program has four components and each component has a number of outputs. The following is a description of each component and as well as a summary of the individual outputs. More detailed specifications are in the Scope of Services. The description is supported by a stakeholder roles and responsibilities matrix at Appendix 7.

Most ADS-related processes and their associated outputs relate to generic ADS operational requirements specified in the Australian Development Scholarships Handbook 2007 (Revised April 2007) and driven by the contracts between AusAID and the Australian tertiary institutions. ALA arrangements are governed by the Australian Leadership Awards Scholarships Manual (Version 1.2 October 2006) and the Guidelines for ALAS In-country Management June 2007.

Component 1: Management of the Australian Scholarships program

Output 1.1: Promotion of Australian Scholarships to eligible candidates

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Promotion of Australian Scholarships in Mongolia so that the program attracts sufficient numbers of high quality candidates. All publicity will be under the ‘Australian Scholarships’ banner and comply with the Australian Scholarships Communications Guide 2007 and its associated Communications Strategy 2006-2011.

Promotional Plan prepared for Australian Development Scholarships

Mongolia Australian Scholarships Website enhanced and maintained

Approved Promotional Plan implemented and reviewed annually

Presentations in target ministries with Cabinet Secretariat about opportunities under the program

Australian Tertiary Institution and Course resource collection and applicant phone service maintained

Output 1.2: Management of ADS application and selection processes

Support to new Category 1 target ministries including HRD assessments and finalisation of agreements

ADS Category 2 applications received, reviewed for compliance, recorded and reported

Screening and selection processes completed jointly with Ministry Selection Groups in targeted Category 1 Ministries

Screening and selection processes completed for Category 2 applications

Ranked ADS candidates referred to the PCC for approval

Notifications to and feedback for ADS applicants

Other AusAID Scholarships processed

Output 1.3: Placement of ADS (and, in the future, possibly ALAS) awardees and award management

Course selection support

Placement of awardees in Australian courses

Award variations managed

Output 1.4: Management of ALA applications and processes

Management, receipt, assessment for compliance, recording of hard-copy eligible applications for ALA scholarships

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Preliminary rankings as a member of the ALA Ranking Panel in readiness for assessment by the Beijing-based ALA whole-of-government Short-listing Panel

If required, organise/participate in interviews.

Output 1.5: Australian Scholarships awardees mobilisation completed, including pre-departure briefings

Pre-departure briefings arranged

Monitoring of mobilisation arrangements completed

Component 2: Management of in-country ELT provision

High quality and cost-effective in-country English Language training including English for Academic Purposes.

Output 2.1: Selection process completed and contract negotiated for provision of pre-departure language training for ADS candidates if required.

Output 2.2: IELTS testing arranged and contracted with accredited provider.

Output 2.3: Contracts monitored and certification that contractual requirements have been met.

Component 3: Alumni support and post-award M&E

Output 3.1: Alumni support mechanisms developed

Output 3.2: Post-award monitoring and evaluation conducted and meaningful reports on scholarship outcomes produced

Component 4: Program office management and reporting

Output 4.1: Program Office established and personnel mobilised

Output 4.2: Monitoring and reporting on program implementation

Output 4.3: Program Risks managed effectively

Output 4.4: Quality assurance systems and continuous improvement implemented

Output 4.5: Program Completion report prepared

Output 4.6: Other tasks at the specific direction of AusAID implemented

4.4 Resources and costs

The Contractor will provide an appropriate mix of full- and part-time staff located in a suitably equipped Program Office in Ulaanbaatar to deliver a broad range of management services related to the conduct of the Australian Scholarships program and several other Australian Government scholarship programs. The Contractor will also take responsibility for

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arranging English language and preparation training where necessary for ADS candidates, delivered through a sub-contractor.

AusAID will fund the in-Australia costs of ADS scholarships, ALA scholarships and fellowships and scholarships offered under agreements with the Centre for Transnational Crime Prevention at the University of Wollongong (UOW/CTCP) and Carnegie Mellon University (CMU) while the awardees are in Australia.

AusAID will also fund and manage a possible Mid-term Program Review.

4.4.1 Managing Contractor

The staffing profile mentioned in this Section is provided as a guide to staffing the Australian Scholarships Program Office. The Contractor is expected to appoint a part-time Program Manager and a full-time Deputy Program Manager. The latter will be based in Ulaanbaatar. A part-time Academic Adviser will play a role in the category 2 selection process and in monitoring the quality of the pre-departure ELT provided in Mongolia. Appendix 9 summarises the indicative roles of these personnel.

Beyond these requirements, bidders will have the flexibility to nominate a team considered to best meet the requirements of the Program.

The expansion of the program and the extension of eligibility beyond the public sector will undoubtedly lead to an increased number of enquiries about scholarships. With 14 scholarships currently being provided, the CaBSAF office has been processing more than 60 expressions of interest for ADS scholarships each year. This is expected to at least double with the increased number of scholarships and the resulting wider publicity. Extension of eligibility to the private and NGO sectors is likely to lead to a significant increase in the number of public enquiries about the Program and its eligibility conditions. In addition to this work-load, the Program Office will be involved in tasks covering a wider range of Australian scholarships including the ALA program.

The Contractor will provide adequate support staff for the Deputy Program Manager to manage this workload and to carry out a number of other tasks, including: student counselling; university placement advice; pastoral care; liaison with Government agencies; alumni liaison; AusAID Beijing liaison; M&E; and data base interrogation and reporting. Staff costs will allow for basic salary plus on-costs based on an appropriate multiplier. Costs for the Program Manager also allow for travel and short term accommodation. Costs will be invoiced each quarter in arrears at an all-inclusive monthly rate.

Through a sub-contractor, the Contractor will arrange for an appropriate pre-departure training program in Ulaanbaatar of 9 months’ duration for up to 36 ADS candidates, tailored to the IELTS score composition of each cohort. This program will commence in November each year. Costs will be reimbursed.

Other costs, to be reimbursed at actual cost, cover IELTS testing; publicity, including media advertising; medical examination charges; single economy airfares to Australia. The actual costs incurred will be included in the appropriate quarterly invoice.

The Program Office will be in a suitable location and of sufficient standard to reflect the higher profile included in the Australian Government’s new scholarship arrangements. Signage will emphasise the Australia Scholarships initiative. Procurement-related costs cover: a one-off, lump-sum payment to set-up the Program Office; and annual office rental

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and utilities. These costs will be on an all-inclusive basis, with the cost of office accommodation/utilities invoiced each quarter in arrears.

4.4.2 Other scholarship costs and budget management

In addition to contractor-related expenses, AusAID meets the in-Australia costs of scholarships.

Training institutions in Australia create four invoices in SIMON per year for all student- related costs. These invoices are processed by the Australian Scholarships Group in Canberra. When a SIMON invoice spreadsheet prepared by the institution has been certified, ASG creates a claim form in which the institution fees are broken down by country program.

For ADS and ALA scholarships the claims cover course costs and the payment to the scholar of a stipend, an establishment allowance and the provision of additional tutorial assistance, if required, as well as fares from Australia directly back to Mongolia. The average cost of a scholarship for a 2-year Master’s course is currently around $80,000. For Mongolia in recent years around 40% of Masters degrees have been for 18 months with 60% extending to two years.

These processes have caused some budget management problems towards the end of each financial year for CaBSAF since the Contractor is required to juggle budgets between different Facility components. The design team was asked to consider the feasibility of having payments to Universities processed on an annual basis at the beginning of each calendar year.

AusAID has undertaken extensive work to explore options to streamline ADS invoicing. A one payment option is not possible due to administrative complexities and various financial regulations. Consideration is being given to a new proposal involving two payments, one in January and the second payment in July. If accepted, this mechanism will be built in to the replacement system for SIMON known as OASIS. This should help to alleviate some of the budget management problems experienced by the Mongolia program.

4.4.3 Government of Mongolia

ADS and ALA scholars employed by ministries/agencies usually continue to receive their salary while in Australia. Ministries/agencies must back-fill positions while the scholar is Australia. There are also costs associated with the involvement of officials from the different ministries/agencies in scholarship-related events and meetings, including participation in the Program Coordination Committee, the selection process and in the Annual Strategic Review Meeting.

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5 Monitoring and Management Strategies

5.1 Governance arrangements

The Program requires appropriate governance and coordination arrangements enabling representatives of the two governments to deal systematically with policy and management issues relating to future Australian Scholarship programs in Mongolia.

For CaBSAF the Coordinating authorities are Cabinet Secretariat for GOM and AusAID (Beijing) for GOA. It is expected that the same Coordinating Authorities will be designated for the new Scholarships Program.

CaBSAF has a Coordinating Committee that has played a key role in the Facility. For the new Program a Program Coordinating Committee with representation from the same range of stakeholders will oversee the implementation of approved targeting and selection strategies. It will be supported by groups that will be responsible for the selection of Category 1 and Category 2 scholars. An Annual Strategic Review managed by the designated Coordinating Authorities will help define and adjust as necessary the strategic directions for the Program including targeting approaches facilitating effective responses to emerging GOM priorities and broader AusAID corporate initiatives. The Program governance structure is summarised in the diagram below:

Figure 2: Management and organisational structure

Annual Strategic Review

The annual strategic review process is discussed in Section 3.3 above. The designated Coordinating Authorities, supported by other key stakeholders as necessary, will meet annually to help define and adjust as necessary the strategic directions for the Program including targeting, facilitating effective responses to emerging GOM priorities and broader AusAID corporate initiatives. The meeting will be held around February each year just prior to the biannual meeting of the PCC. Detailed guidelines for the annual review process are at Appendix 5.

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Program Coordination Committee (PCC)

The Program Coordination Committee will be comprised of representatives from the Cabinet Secretariat (chair and designated counterpart); the Ministries of Finance and Economy (MOFE), Foreign Affairs (MFA) and Education (MOE), Culture and Science (MECS); the Government Service Council (GSC) and AusAID Beijing. The Adviser to the President who currently attends FCC meetings would be invited to participate in the PCC.

The PCC will meet twice each year in August/September and February. The timing of these meetings is largely determined by the calendar of events in the annual scholarship cycle. Its functions will include:

Overall coordination of Program activities Oversee the approved targeting strategies Review and oversee scholarship selection strategies and approaches Endorse the ADS candidates nominated and ranked by the Ministry

Working/Selection Groups Receive reports on scholarships outcomes and review post-award monitoring and

evaluation strategies Ensure that the scholarship selection process is transparent, fair and equitable and is

also perceived to be so Receive and endorse the Annual Plan prepared by the Contractor Receive and endorse the annual Promotional Plan.

The Managing Contractor will provide secretariat support including statistical and other reports that may be needed to facilitate the work of the PCC.

Ministry Working Groups (MWG)

A Ministry Working Group has been created in each of the target Ministries. New target Ministries will be expected to establish similar Groups. The major role of the Groups will be to provide a working interface with the Scholarships Program. MWGs will be involved in ADS publicity, eligibility screening and the selection scoring process. This approach has been very effective for CaBSAF and provides greater transparency, fairness and equality to the selection process and generates a sense of ownership and hence sustainability. The roles of the MWGs and their Ministry Selection Groups (MSGs) are described in greater detail in Section 4.1.7.

Ministry Working Group Forum (MWGF)

The Ministry Working Group Forum is comprised of the Heads of each of the MWGs. It has met periodically in the past and its functions under CaBSAF are to discuss processes that affect all the target Ministries and also to identify issues common to capacity building across all Ministries. The new Program does not have a specific capacity building component although some ongoing capacity building assistance will be provided mainly to new targeted agencies. The MWGF can continue to play an important role under the new Program.

Members of the MWGF are able to discuss lessons learned and as post-award monitoring and evaluation activities are given more prominence under the new program there will be more opportunities to draw on lessons and adopt strategies designed to improve scholarship outcomes. The MWGF is linked to the PCC and there may be opportunities in future for the Forum to engage directly with the PCC on broader issues that impact on program

40


implementation. For example, the Forum was instrumental in the decision that ADS candidates should receive 6 months part-time ELT followed by 3 months full-time training at which time agencies would agree to release their staff on a full-time basis.

Category 2 Screening/Selection Panel

The Category 2 Screening/Selection Panel screens and interviews Category 2 ADS applicants. Panel members are the Contractor/Academic Adviser; the GSC; a high-level industry representative (selected by the Coordinating Authorities); an independent local Education professional and AusAID-Beijing. The process is described in greater detail in Section 4.1.7.

5.2 Management arrangements

AusAID Beijing will have overall responsibility for the conduct of the Australian Scholarships program in Mongolia and will continue to exercise key functions. These cover strategic planning; participation in publicity events, alumni functions and pre-departure briefings; contractor performance monitoring; and overseeing and enabling monitoring and evaluation activities associated with AusAID corporate needs, including drawing lessons from M&E studies. AusAID Beijing will also manage the new contract. This responsibility will be largely exercised through the clearance of key documents, such as the Annual Promotional Plan and Annual Plan, and the convening and chairing of key events introduced with this design, such as the Annual Strategic Review and the Annual Continuous Improvement Meeting as well as participation in PCC and selection panel meetings. The new Contractor will assume new responsibilities for ALA administration but AusAID Beijing will retain primary carriage of the ALA selection process.

The new contract will require the Contractor to work closely and collaboratively with AusAID Beijing recognising the need not only for responsibilities to be discharged effectively and efficiently but also to ensure the support and assistance provided to AusAID Beijing is both timely and of high quality.

5.3 Reporting requirements

The following reports are will be prepared by the Contractor in the next phase of the program:

Report Content Timing

Australian Scholarships Promotional Plan

The Australian Scholarships Promotional Plan will outline strategies for the promotion of Australian Scholarships. The Plan will include draft application forms, appropriate promotional and information materials (posters, leaflets and flyers), draft newspaper advertisements and a proposed budget

First Promotional Plan 1 August 2008

Annual Plan The Annual Plan will be the foundation for monitoring the management efficiency of the Program. Annual Plans will, as appropriate, follow the format of AusGUIDE or subsequent Annual Plan preparation guidelines that may be issued by AusAID. The first Annual Plan (and each subsequent Annual Plan) will include: Work Plan/Budget

First Annual Plan 1 September 2008.

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Staffing plan, including strategies to monitor and assess staff performance

Resource Plan for the student cohort Monitoring and Evaluation Framework and

Implementation Plan Risk Management Plan

The second Annual Plan in March 2009 and each subsequent Annual Plan will (in lieu of an Annual Progress Report) include all of the above and additionally include annexes that : Update the Australian Scholarships Promotional Plan; focus on broader post-award monitoring and

evaluation scholarship outcomes over a 12 month period that address the specified program objectives;

provide relevant student statistics; report on the placement experience and placement

outcomes for the past year’s student cohort; provide a program Gender Strategy; update risk management arrangements; and address other issues, including the implementation of

the scholarship promotion activities and alumni support initiatives.

Second Annual Plan 1 March 2009, then annually on 1 March.

Six Monthly Reports

Report variations from inputs/outputs agreed in the Annual Plan

Report progress in relation to pre-departure English training activities

Financial progress reporting

Scholarship outcomes reporting based on post-award monitoring and evaluation over the previous 6 month period with reference to lessons learned

1 March and 1 September each year covering the 6 months ending December and June. The March Report will be submitted with the Annual Plan

Monthly Exception Reports

These reports will address key issues that need to be brought to the attention of AusAID earlier than the next scheduled regular report and/or where decisions or authorisations are required. Proposed responses to such issues will be described. Where no such issues have emerged a Nil return will be submitted. These reports must not be viewed as monthly progress reports.

First week of each month covering previous month

In providing Secretariat support to the PCC and Annual Strategic Review the Contractor will additionally provide minutes of meeting outcomes in a format agreed with AusAID. The Contractor will facilitate the Category 1 and 2 selection processes and will be responsible for producing ranking and selection reports in sufficient detail to enable the PCC to issue the necessary approvals.

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5.4 Monitoring and evaluation

5.4.1 Main features of the Mongolia Australia Scholarships M&E Framework

The objectives of the Mongolia Australia Scholarships Program M&E Framework are:

a) to provide a basis for consulting with key stakeholders on the information required, including the Program Coordinating Committee and Ministry Working Groups;

b) to provide a logical basis for the M&E activities, in particular how they relate to the high-level objectives of the program and link with the wider M&E strategy for the Australian Scholarships program across all countries;

c) to make clear what information will be collected and how it will meet the needs of key stakeholders, taking into account the issues raised by stakeholders in (a);

d) to indicate how data will be collected, analysed and reported;

e) to clarify who is responsible for collecting, storing, analysing reporting and using the information;

f) to provide a basis for both accountability (including checking that specific stakeholders are complying with the contracts or agreements they have signed) and learning (including adjusting the program to address emerging problems and encouraging continuous improvement); and

g) to help strengthen local capacity in M&E, especially the capacity of Ministry Working Groups to take on an active monitoring role with respect to the scholarships provided to their staff.

The M&E Framework for the Australian Scholarship Program in Mongolia, as shown in the diagram at Appendix 11, addresses all of the Program Components specified in Section 4.3.

As emphasised in Section 3.4, it is essential that there is a seamless transition from the previous CaBSAF program, to ensure an integrated approach to M&E. The Contractor’s data-base on individuals will incorporate all the data from the relevant CaBSAF data-base, covering all awardees under the previous program as well as those selected and placed under the new program. The new program’s M&E instruments will be based on those used by the previous program, with fine-tuning to reflect new AusAID requirements and continuous improvement by the Contractor.

Key instruments and databases to be used by the Contractor include:

Database on individuals, including all those submitting an expression of interest Database on targeted institutions covering development of HRD plans and selection

processes Pre-departure briefing evaluation form Questionnaire to awardees prior to departure on Contractor performance Questionnaire to relevant Australian institutions on Contractor performance Individual action plan monitoring form Report on ADS awardees extending, failing or not returning to their host

organisations Database on IELTS test results for participants in ELT (before, after and any tests

undertaken during training)

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ELT feedback form for each of the 3 phases and a final evaluation form Questionnaire to students on return Post-award questionnaire (submitted at 6, 12 and 24 months after return).

All of these documents will be made available to the incoming contractor during the transition phase. Some, where listed in Appendix 8, will be made to bidders as part of the tender process.

The Contractor will also be expected to revise the indicators used by the CaBSAF Program for the ADS component. This will be based on a review of those indicators; the final Australian Scholarships M&E Framework; the Risk Matrix at Appendix 6; and the objectives of the new program (including the greater emphasis on developing linkages between Australia and Mongolia). The proposed revised indicators will be submitted to AusAID for approval.

The databases on individuals, IELTS test results and targeted institutions will be integrated by the MC into a single database (ie linked tables) that will allow analysis across all variables, for example tabulating the relationship between key individual and institutional characteristics.

AusAID Beijing will convene a Continuous Improvement Meeting to be held annually, at about the same time as the Annual Strategic Review, to provide AusAID and the Contractor the opportunity to discuss and identify measures to correct any shortcomings highlighted in the scholar and institutional monitoring questionnaires and/or identified by the Annual Strategic Review. A Review of the Program at the Contract stop/go point will assess both program and Contractor performance.

As shown in Appendix 11, the Framework will feed into AusAID’s Annual Review of Development Effectiveness. This AusAID review will answer 14 questions split into 3 areas: (a) the results from Australian aid investments; (b) the quality of Australian aid and (c) the implementation of Aid Policy Framework commitments, such as anti-corruption and gender equity. Each program, bilateral and regional, will be required to produce an Annual Program Performance Update (APPU). Programs will use these updates to reflect on program performance and to consider whether strategies or modes of aid delivery need to change. Updates will be short documents summarising responses to the 14 annual development effectiveness review questions.

5.4.2 M&E strategy for the overall Australian Scholarships program

As an integral part of the wider Australian Scholarships program across the Asia Pacific region, the Mongolian scholarship program needs to be monitored and evaluated on the basis of the wider M&E Strategy for scholarships.

Some critical aspects of the overall Mongolian program, including monitoring the performance of Australian universities in dealing with students in Australia, are not covered under the M&E framework to be implemented by the Contractor. In other areas, the Contractor will be expected to provide data for aggregation with other country scholarship programs.

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In these circumstances it is important to place the Mongolian M&E Framework in this wider program context. The Australian Scholarships overarching M&E Framework was finalised in 2007.

The purpose of the Australian Scholarships M&E strategy is twofold: outline a minimum set of questions to guide the monitoring and corporate reporting

undertaken by individual scholarships programs; and facilitate performance assessment across Australian Scholarships and support aggregate-

level performance reporting.

Three basic design requirements have guided the development of the M&E strategy: keep it simple – the strategy should accommodate the constituent programs without being

overly complex and expensive to implement; and be realistic – we need to be pragmatic in terms of what the strategy can report on, given

that any development impacts arising from scholarships will be long term and difficult to isolate from broader reform efforts.

fit with the wider corporate performance agenda – the M&E strategy is intended to help individual scholarships programs and ASG meet the information demands of

AusAID’s Performance Assessment Framework.

The M&E strategy comprises three basic components: Monitoring – annual assessment addressing the selection, in-country study/placement and

completion stages of the scholarships process; Periodic evaluation – periodic assessment of outcomes during the post-award stage; and Thematic review and evaluation – thematic reviews and evaluations whose focuswill vary

but with an emphasis on effectiveness.

The following table outlines the draft monitoring framework developed by AusAID, which poses 12 questions based on the broad stages of Australian Scholarships: selection, in-country study/placement, and post-award. These questions are in draft format and not yet finalised..

Stage Questions

Selection Are we on track to achieve our target numbers?

Are we securing the ‘right’ candidates?

In-country placement

Are Higher Education Institutions/Australian Host Organisations meeting their Key Performance Measures?

Are awardees’ in-country experiences positive?

Are awardees successfully completing their study/ placements?

Post-award Have awardees returned to their home countries?

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Are awardees reintegrated back into their workplace successfully?

Are awardees applying the skills gained effectively?

Are awardees maintaining linkages with Australia and networking with other awardees?

Are awardees contributing to the development of their home country or to other developing countries in the region?

Has Australian Scholarships strengthened organisations effectiveness?

Has Australian Scholarships promoted gender equity?

This monitoring framework is intended to be flexible in that it will apply to the three component programs, but allow each to answer the questions in ways that are appropriate for the component. In the context of Mongolia’s ADS program, with its institutional targeting strategy, the ‘right’ candidates will be defined in relation to the target institutions and candidates’ position within the institutions. On the other hand, the ALAS program may define ‘right’ in terms of the personal characteristics of individual candidates.

Centrally, the monitoring framework will be used to produce an Annual Report on Australian Scholarships.

5.4.3 Major responsibilities and implications for the Contractor

AusAID’s country and regional programs have primary responsibility for monitoring the performance of Australian Development Scholarships, with involvement of the relevant managing contractors. Selection and post-award stage data will be provided by the MC for the Mongolian program as an integral part of its M&E system, which will be more detailed than the overall Australian Scholarships framework (eg explicitly covering ELT).

Country/regional programs will also have responsibility for collecting much of the information relating to the selection and post-award stage of the Australian Leadership Awards Scholarships program. The MC in Mongolia will be responsible for maintaining data on any pre-selection assistance provided to applicants in Mongolia and, if required by AusAID, to undertake surveys of returning ALAS and ALAF participants using agreed questionnaires and procedures.

ASG is responsible for monitoring the performance of Higher Education Institutions in Australia. Institutions are required to meet Key Performance Measures which are stipulated in the contract. These include achieving at least eighty per cent student satisfaction levels for services which are monitored as part of the student survey (for example, the Introductory Academic Program, welfare and support services, quality of tuition and academic courses and the performance of Student Contact Officers). Institutions must also conform to student processing requirements relating to invoicing and administration of the Student Information

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Management On-line database (SIMON) and submit an Annual Report and financial statements.

A new annual Australian Scholarships Student Survey will be the main mechanism for collecting feedback from ALAS and ADS students during the in-country stage, though the information generated will also augment understanding about the selection stage. The survey will be a tool for monitoring the performance of the higher education institutions and will be used to improve the management of scholarships both in Canberra and by managing contractors and posts.

The MC for the Mongolian program will not be directly involved in this monitoring of Higher Education Institutions nor in the (in – Australia) Student Survey.

The following Table 5.1 summarises the responsibilities of the MC of the Mongolian program in addressing the 12 questions.

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Table 5.1 : Australian Scholarships Monitoring and Evaluation Requirements and Responsibilities

Key Questions Explanation Implications for Mongolia M&E Framework

Sele

ctio

n ph

ase

1. Are we on track to achieve our target numbers?

Annual assessment of awards; Required to ensure that we manage the process of scaling up the number of awards

The Contractor will be responsible for monitoring the success of the promotion of the scholarships program in Mongolia (especially to the non-public sectors), as well as maintaining the current individual database to provide ongoing feedback to manage the application, selection and placement processes. The Contractor is also responsible for monitoring the ELT, which is an important step in the selection process for many Mongolian candidates. This monitoring will comprise quarterly reports by the ELT sub-contractor and an annual review by the Academic Adviser. These will include analysis of the results of IELTS and informal testing before, during and following the training.

2. Are we securing the ‘right’ candidates?

Annual assessment. Comparison between the profile of targeted awardees and those actually selected. Profiles to be locally defined (e.g. institution, geographical, sector, gender, professional status, educational background etc.)

The Contractor will monitor the development of HRD plans by target institutions to ensure these are thoroughly researched and linked to national and organisational strategic priorities. The Contractor will report annually on a comparison of the actual fields of study of all awardees with the priority fields specified in their HRD plans (for Category 1 scholarships) or with the target fields for Category 2. These results will be submitted to the Annual Strategic Review.

AusAID’s ASG will define a target profile for ALA scholars, the Contractor will be required to collect relevant data to report against these criteria for ALA scholars.

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In-c

ount

ry st

udy/

pla

cem

ent a

nd c

ompl

etio

n ph

ase

3. Are Higher Education Institutions/Australian Host Organisations meeting their Key Performance Measures?

Annual assessment of performance against key performance measures (KPMs) as set out in contract between AusAID and Higher Education Institutions for the provision of education services

In the case of Fellowships, KPM’s will be developed and included in the contract between AusAID and the Australian Host Organisations for the provision of fellowship services

AusAID’s Australian Scholarships Group (ASG) responsible for monitoring the contracts with Higher Education Institutes. The Contractor is not required to monitor this aspect of the Mongolia Australian Scholarships Program.

4. Are awardees’ in-country experiences positive?

Annual assessment of awardees’ satisfaction with key aspects of academic and non-academic experience or with fellowship placement

The Contractor will undertake surveys of participants (as specified in the PDD), which will focus on the contractor’s performance in the selection and placement processes.

The Contractor is not involved in monitoring activity in Australia, which will be undertaken by the ASG of AusAID.

5. Are awardees successfully completing their study/placement?

Annual assessment to provide comprehensive account of the number of students graduating in the last 12 months, the numbers terminating in same period and the numbers extending

In the case of Fellowships, it is necessary to determine whether the fellowship programs were successfully delivered by AHOs and also whether they were completed by fellows.

Monitoring this element is the responsibility of AusAID’s ASG.

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Post

-aw

ard

phas

e

6. Have awardees returned to their homes countries?

Have awardees returned to their home country, or are they residing in another developing country or developed country?

The Contractor will undertake post-award surveys for returnees taking into account the questionnaires that have been used for ADS under the CaBSAF; and guidelines and core questions provided by AusAID’s ASG. The post-award surveys should be based on the individual Action Plans signed by ADS students.

The questionnaires will take into account AusAID’s data requirements for the overall Australian Scholarships program. The Australian Scholarships Monitoring and Evaluation Strategy is still being finalised with arrangements for post-award monitoring currently being considered. Options include follow-up surveys after 12 and 36 months. Decisions relating to the development of an Alumni Network for Australian Scholarships will also impact on the precise design of post-award monitoring.

7. Are awardees reintegrated back into the workplace successfully?

Have they returned to their previous job or have they moved to a new position/organisation?

Have awardees received recognition from their employer and peers for their enhanced skills and knowledge?

Have they been promoted?

Approach is as described for Question 6 above.

8. Are awardees applying the skills gained effectively?

Are awardees in positions that enable them to effectively utilise their new knowledge, skills and qualifications?


This question will also be a major focus of the post-award surveys undertaken by the MC.

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9. Are awardees maintaining linkages with Australia and networking with other awardees?

Is Australian Scholarships promoting linkages between Australia and partners countries in the region?

Linkages may be formal or informal; people-to-people; institution-to-institution or government-to-government.


The MC will be expected to expand the current questionnaires to cover such linkages for awardees. This will take into account the establishment of an Australian Scholarships Alumni Network, which will provide an effective mechanism to support post-award monitoring. A design for the Network is currently being prepared.

10. Are awardees contributing to the development of their home country or to other developing countries in the region?

Has an Australian Scholarships award enhanced awardees’ abilities to effect positive change and innovation?

Are awardees contributing to addressing priority needs in the region?

Are awardees in prominent roles where they feel they have the opportunity to lead reform and contribute to development?


Note: These questions are likely to be answered through self-assessment by awardees as to whether they perceive they are making a contribution to development.

11. Has Australian Scholarships strengthened organisation effectiveness?

Existing CaBSAF questionnaires address this question and future post-award surveys should collect data in relation to this question. In addition, a short impact assessment in 2012 will assess the contribution that alumni of ADS (and if requested by AusAID, ALAs) are making to their organisations, including their influence on institutional development and change.

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12. Has Australian Scholarships promoted gender equity?

This draws together the information relevant to gender equality results collected through the monitoring and periodic evaluation framework, particularly in questions 2 -10. Responses should consider gender balance of awardees, support for awardees in-country including support to manage family responsibilities for male and female participants, gender implications in completion of study and career pathways post scholarship, as well as the degree to which male and female awardees gain better understanding of gender equality issues through Australian Scholarships processes.

Approach as described for Question 6 above.

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5.4.4 Monitoring contractor performance

Prior to departure, all scholars will undertake an action planning process with their supervisors or mentors to help guide their studies and, in particular, to provide the framework for their activities on completion of their studies and for subsequent monitoring and evaluation.

An Action Plan is a document that sets out what a scholar plans to do on return to Mongolia as a direct outcome of their program of study in Australia. Prepared in consultation with a supervisor or mentor, the Action Plan is essentially a 'contract' to assist scholars and their employers reap maximum benefit from the period of study in Australia. The Plan sets out objectives and the ways in which it is planned to apply new knowledge and skills in the workplace. The Action Plan Guidelines developed for the CaBSAF describe in more detail the features of these essential M&E tools.

The strategies and processes for selection of candidates for Category 1 and Category 2 scholarships will be monitored with particular attention to issue of transparency. The in-Mongolia English language program will also be monitored by the MC, with quarterly reports by the sub-contractor, and evaluated by the Academic Adviser on an annual basis.

Contractor performance will also be measured by the full range of reports described in Section 5.3 above.

5.4.5 Post award evaluation

It is essential for sustainability that a significant number of awardees gain knowledge and skills with a direct application to development and that the awardees have the opportunity and incentive to use and apply their new knowledge and skills upon their return.

However, the evaluation of the program must look well beyond the application of knowledge and skills at the individual level. As the purpose in Section 4.2 makes clear, the program aims to develop capacity at the national level in order to achieve national development objectives. This is to be done by developing the knowledge and skills of individual students will contribute to national objectives by helping to build the capacity of institutions (especially Category 1 target institutions) and more broadly the capacity in priority sectors (especially for Category 2). Evaluating the Mongolia Australia program will therefore require examining all four levels – individual, institutional, sector and national – and the linkages between them.

A key instrument in evaluating these links will continue to be the Post-Award Monitoring and Evaluation Questionnaire developed by the CaBSAF, modified as mentioned in the above table. This will be used to conduct regular annual surveys of ADS outcomes focused on specific cohorts of graduates. Individual graduates will complete the questionnaire 6 months after they return to Mongolia, and then again after 12 months. A final survey will be undertaken after a further 12 month period (this timing is subject to further AusAID guidelines).

The surveys will help to establish the outcomes of a scholarship on the scholar professionally and on the scholar’s Ministry/Agency. The knowledge gained from such monitoring will also help to influence the most appropriate type of training to be provided and help strengthen and optimise the benefits that graduates and their employers derive from the training received.

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As mentioned already, a key feature of the ADS program in Mongolia has been the effective use of individual Action Plans. These can help to link what happens at the individual level with institutional, sector and national objectives. The Action Plans will therefore form the basis of critical aspects of the post-award monitoring and ultimate evaluation. The post-award M&E in Mongolia therefore includes monitoring of scholars and their supervisors to confirm the ongoing validity of the Action Plan and to make adjustments as necessary.

The survey results will be taken into account in a short impact assessment to be conducted by the MC at the end of the program in 2012. This assessment will specifically address how the development of individual capacity is contributing at the institutional, sector and national levels.

The impact assessment will cover ADS students returning since 2005 who have been back for at least 2 years, with interviews of individual returnees (or focus groups) and interviews of the senior manager in their organisation responsible for HRD and administration. All targeted institutions will be covered (including input from MWGs) and a sample of organisations employing Category 2 (or General Category) graduates. The interviews should be qualitative and explore how individual graduates have contributed to the development and reform of their organisations and sectors, in the context of national development goals.

The methodology for the impact assessment will be developed by the MC, including:

comparison with available baseline information, especially for targeted institutions (eg previous training needs assessments, HRD plans and data from capacity building activities supported by other donors);

identification of specific achievements of graduates that have influenced the performance of their organisations beyond their immediate positions (eg pioneering specific reforms or programs), as well as barriers that alumni have faced in utilising their training;

comparison of different phases and categories of the Mongolian ADS program, recognising that later cohorts have had less time to have an impact and the more limited baseline information available on employing organisations for Category 2 (or General Category) graduates;

appropriate sampling to keep costs down but at the same time ensuring that the impact assessment is representative (eg it should include graduates who have moved organisations).

The benefits of a scholarship program are often only felt in the longer term as graduates move into positions where they are able to make a more significant contribution to their organisations, sectors and the nation as a whole. Nevertheless, in designing the impact assessment it is useful to consider what ‘success’ might look like by 2012, for example:

achieving targets in terms of the number of scholars participating in the program and maintaining the very high success rate in successful completion of academic programs;

smooth reintegration of returning graduates, into positions that will be able to utilise their knowledge and skills;

tangible work achievements by some graduates who have been back for a year or more, achievement that they and their organisations believe would not have been possible for the individual or the organisation without the experience in Australia (eg application of a new technique or methodology);

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graduates extending the benefits to others by providing formal training, conducting seminars or active participation in conferences and workshops;

a proportion of graduates being promoted to relevant positions in their organisations;

evidence of returning graduates in target organisations supporting each other and helping to develop their organisations by playing an active role in reform processes;

linkages maintained with individuals and institutions in Australia through correspondence and possibly collaboration and support.

AusAID’s M&E Strategy for the overall Australian Scholarships program needs to be taken into account in revising the post-award survey instruments and possibly the timing of the surveys. The Contractor will need to keep under review the current strategy for post-award M&E to include, amongst other things, consideration of the continuing usefulness of the student questionnaire in light of emerging AusAID requirements and the experience gained in its application.

The Contactor may also be required to identify, specify and introduce new instruments in consultation with AusAID, if this becomes necessary. The Contractor will cooperate with, and provide information relevant to, the conduct of longitudinal studies. Bidders will be required to demonstrate in their bids a flexible and innovative approach to M&E. The Contractor will need to translate this into a detailed M&E framework to be completed within two months of mobilisation.

One area where the current M&E instruments require further development is in assessing how well the program leads to sustainable linkages between Australia and Mongolia. The new program aims explicitly to develop these links (Program Objective 3) and AusAID is keen to monitor this aspect of performance. The Contractor will be expected to add to the post-award questionnaire to cover this, taking into account guidelines to be provided in coming months by AusAID.

These monitoring and evaluation processes are to be supplemented by an annual workshop in Ulaanbaatar with returned scholars and their supervisors to discuss and review issues and to examine ways in which the impact of their studies might be shared or strengthened in their organisations and Mongolian society more generally. The Alumni Association can play an important role in this workshop; however, the process will be managed by the MC.

By involving employers and supervisors throughout the monitoring process, impact and outcomes would not only be assessed but should also improve. Monitoring and evaluation is usually considered as an accountability strategy and, of course this is important. What is often overlooked is the vital role that monitoring and evaluation can play in the processes of development, change and improvement. M&E does this by providing timely and constructive feedback to interested stakeholders together with advice on how to manage the feedback for improvement purposes.

In addition to providing feedback to stakeholders including advice on how to manage feedback for improvement purposes, the MC will ensure that feedback from returned scholars is obtained and used. The annual workshop with returned scholars and their supervisors will support this.

The following table summarises how the post-award evaluation will assess the Program in terms of its Purpose and Objectives, as specified in Section 4.2

Purpose/Objective Key Post-Award Evaluation Instruments

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Program Purpose: To contribute to enhanced capacity in priority Mongolian Government Agencies and priority economic sectors through expanded access to higher education and training and relevant professional linkages in Australia.

Graduate surveys will ask respondents to specify relevant national and sector-level development priorities (eg from National Development Strategy)

The graduate surveys will include specific questions regarding linkages that have been developed at individual and institutional levels, and their benefits. This will also be covered in the 2012 impact assessment.


Impact assessment in 2012 will include interviews with MWGs to assess progress in implementing their HRD plans and the contribution made by Australian Scholarship alumni to the development of institutional capacity

Graduate surveys will provide details of completed study and subsequent employment and allow analysis of the extent to which training is being utilised at the individual, institutional and sector levels

The impact assessment in 2012 will explore the reasons for any failure to utilise training to contribute to economic and social development (eg shifting priorities; inappropriate targeting; training not relevant to Mongolian context; graduate moved to new position)


The graduate surveys will include specific questions regarding linkages that have been developed at individual and institutional levels, and their benefits.

This will also be covered in the 2012 impact assessment.

5.5 Alumni

An effective alumni strategy can help improve scholarships outcomes and facilitate post-award monitoring. Alumni can potentially play a useful role in helping monitor the impact of Australian scholarships (for example in post course interviews) and in activities such as pre-departure briefings for ADS and other scholars.

In Mongolia, the Mozzie Association (the Association of Returned Australian Graduates) which has been established for a number of years facilitates regular contact between those who have studied in Australia. CaBSAF currently provides a watching brief and has facilitated linkages with prospective partners. The Association is currently developing an interactive website with financial support from BHP Billiton. It is expected that this website will enable the development of an up-to-date alumni database of returned graduates, and their

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location. CaBSAF facilitated this arrangement but provides no direct funding to the Association. Alumni are involved in pre-course briefings.

The Contractor will continue to liaise closely with the Association including in relation to the database. The application of best practice IT solutions will avoid the need for multiple databases. Innovative ways to involve more alumni in scholarship program activities will need to be identified – especially in relation to post-award monitoring and evaluation.

Following the introduction of the ALA program there is now agreement an alumni strategy is needed at a global level. AusAID, in consultation with DEEWR, is developing an Australian Scholarships alumni initiative. The Contractor will be expected to keep current alumni support activities under review and adapt these as necessary when AusAID’s wider strategy for alumni is implemented.

5.6 Risks and risk management

Risk is identified in the following factors: Partner government support; program management; targeting; Australian leadership awards; scholarship policy and administration; pre-departure ELT and scholarship outcomes. Appendix 6 provides a complete Risk Matrix for the Australian Scholarships program. The Contractor will be expected to produce a Risk Management Plan to address most of these risks, provide for them to be managed appropriately and report on risk management in the Annual Plan.

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6 Feasibility, Gender and Sustainability

6.1 Manageability of the program

There are sound prospects that the program will be well managed. Contracting and management risks have been identified in the Risk Matrix (Appendix 6) that proposes individual risk mitigation strategies. The successful Contractor will need to continue to revisit the Risk Matrix on a regular basis to review the situation.

Careful consideration has been given to the most appropriate contracting strategy. Possible conflict of interest issues will be addressed in the Scope of Services. Bidders are required to indicate whether they have any contractual or other relationship with any Australian training provider eligible to receive Australian scholarship awardees. Bidders must also present a strategy for ensuring that awardees placed in courses by the Contractor are not improperly influenced in their choice of course and/or institution. The Contractor will report to AusAID Beijing on an annual basis how this strategy has been implemented.

The Contractor must ensure all personnel understand the environment and culture of Mongolia and they will at all times act in a fit and proper manner while performing their duties. The Contractor must also guarantee that it and none of the employees or associates of employees will receive a commission or payment by any other name or any kind of inducement for: processing an Australian Scholarships application; handling enquiries; the placement of ADS scholars in Australian tertiary institutions; or taking any other action in relation to any aspect of the implementation of the scholarships processing cycle.

The design provides a transition strategy that will help ensure that the incoming Contractor is suitably briefed and enabled to build on the most effective processes developed by CaBSAF to manage the new program effectively.

6.2 Gender implications

The Aid Policy Framework notes that ‘gender equality is integral to growth, governance and stability. While gains have been made, gender inequalities in health and education are still striking … investments in women’s and girls’ education and health yield some of the highest returns of all development investments … gender equality extends beyond improving female health and education. It includes access to economic resources, participation and leadership in decision making, the human rights of women and efforts to eliminate discrimination against women … well-targeted scholarships with proper gender balance are a highly effective form of aid.’

CaBSAF has no gender strategy but in the selection of scholars has given consideration to the participation of and benefit to women. In practice around 70% of the scholarships have in recent years been awarded to women and at least 50% of capacity building activities have benefited women.

Targeted agencies must commit to work towards achieving Australia’s goal and objectives for gender and development. Gender issues will be monitored and reviewed throughout the life of the Australian Scholarships program in light of AusAID’s gender mainstreaming policy. Information derived from program M&E instruments will need to be disaggregated by gender. The Contractor managing the new Mongolia-Australian Scholarships program will be required to produce a gender strategy.

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6.3 Sustainability

Sustainability is defined in AusGUIDE as the continuation of benefits after major assistance from a donor has been completed where the focus is on the flow of benefits into the future rather than on sustainable programs and activities.

The targeting of scholarships to key agencies and fields of study will promote sustainability by ensuring a better ‘fit’ with the comprehensive development agenda of the GOM

Sustainability will be addressed through good practice transparent selection approaches managed by Ministry Working/Selection Groups that foster a high level of GOM ownership. In the new Program, MWGs will continue to identify training priorities within their agencies’ own HRD priorities. By not imposing external priorities the sustainability of training interventions through scholarships will be enhanced.

Sustainability will be further reinforced by the continuation of current effective measures involving formal agreements with agencies and scholars and the use of individual action plans that will give graduates the opportunity and incentive to apply their knowledge and skills and to share their experiences when they return to their employing agencies.

For Category 2, scholars will be required to enter into agreements to return to their current employment. Employer support will be an essential criterion and employers (including universities and private firms) will be required to sign agreements to re-employ graduates in relevant positions for a minimum of 2 years. Individual action plans will be used. Sustainability will be further enhanced by ensuring that specified fields of study are in sectors that are given high priority by the GOM. The Annual Strategic review process will ensure that these priorities will continue to be reflected in the Australian Scholarships program.

The use of enhanced M&E approaches introduced with this design reflects the Aid Policy Framework’s call for the need for a greater emphasis to be placed on evaluation and the impact of aid programs. These instruments will provide a window into assessing the flow of benefits beyond the acquisition of the qualification itself. They will also provide a basis on which AusAID Beijing will be able to dialogue with the GOM to encourage a greater share of the responsibility for ensuring the program’s effectiveness and success.

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Appendix 1: Terms of reference

1 Purpose

The following terms of reference are for the design of the in-country management arrangements for the Australian Scholarships program in Mongolia. This includes the positioning of Australian Development Scholarships (ADS) and Australian Leadership Awards (ALA) within the context of the Government of Mongolia’s civil service reform priorities and AusAID’s Aid Policy Framework on Overseas Aid.

2 Background

2.1 Australian Scholarships

Australian Scholarships is an initiative of the Aid Policy Framework on the Australian Government’s Overseas Aid Program, which aims to double the number of educational awards over the next five years. Australian Scholarships promotes sustainable development and excellence in education in the Asia-Pacific region. Existing and new awards programs, managed by the Australian Agency for International Development (AusAID) and the Department of Education, Employment and Workplace Relations (DEEWR) are combined under the one umbrella of Australian Scholarships. These awards are:

Australian Development Scholarships (ADS) managed by AusAID, strengthen human resource capacity in Australia's partner countries to contribute to long-term development needs and promote greater stability within the Asia-Pacific region.

Australian Leadership Awards (ALA) a regional program managed by AusAID, aims to develop leadership, build partnerships and links, and address priority issues in the Asia-Pacific region. Australian Leadership Awards comprises:

o ALA - Scholarships

o ALA - Fellowships

The Endeavour program managed by DEEWR focuses on strengthening education linkages, skills and knowledge throughout the Asia-Pacific region, while showcasing Australia's excellence in education, science and training.

In addition to the Australian Scholarships program, there are also a number of discrete Scholarships schemes currently available to Mongolia. These include the Carnegie-Mellon University AusAID scholarships, the University of Wollongong’s Centre for Transnational Crime Prevention, and the Scholarship schemes administered by the IMF and ACIAR. Each scheme has different administrative arrangements and levels of engagement by AusAID Beijing and therefore need to be factored into the future in-country management processes.

2.2 Current Scholarship Management Arrangements in Mongolia

Capacity Building and Small Activities Facility (CaBSAF)

Australia's development cooperation program in Mongolia is represented by the Mongolia-Australia Targeted Capacity Building and Small Activity Facility (CaBSAF). CaBSAF’s overall goal is to strengthen Mongolia's human and institutional capacity for long-term sustainable development and to assist its transition to a modern market-based economy.

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The facility provides:

i) ADS for Mongolian Government Agencies (MGAs)

ii) capacity building activities to support human resource development in MGAs; and

iii) funding for small-scale community activities.

The country program budget for 2006/07 is approximately $2.2 million, which includes approximately $1 million on ADS. Each year up to 20 ADS candidates receive English Language Training (ELT) in Mongolia for up to 9 months (3 months full time and 9 months part time, as restricted by Mongolian law). CaBSAF manages its activities with two full-time national staff based in Ulaanbaatar, a part-time Facility Director and a part-time Project Coordinator, based in Canberra.

The Mongolian ADS Program is highly regarded by the Government of Mongolia (GOM), and is proving to be an effective capacity building instrument for MGAs. 49 scholars have been placed in Australian universities since the start of CaBSAF in August 2003, with 23 returned graduates and no failures. All graduates have returned to their ministries and it is only recently that some have been successful in improving their career opportunities through gaining employment elsewhere. Policy formulation and analytical contributions by returned graduates to their ministries is becoming evident with some scholars being promoted and others involved in policy paper preparation.

However, considerable CaBSAF resources (personnel and time) are invested in the administration of the ADS. This cannot be avoided if the selection process is to remain objective, with ministries involved in the selection, appropriate courses selected for study, and pre-departure briefings remain effective in introducing scholars to Australian study norms and culture. The design mission should consider the resource implications and selection processes of the new mechanism along with the need to maintain transparency and equity.

CaBSAF Mid-Term Review, 2006

A Mid-Term Review (MTR) of CaBSAF was undertaken in April 2006 which praised the facility and recommended its extension for two years, in addition to the initial three years. The MTR noted that for ADS, CaBSAF had successfully introduced:

A competitive and transparent selection process

A comprehensive English language training program, (when required)

Agreements between the scholars and agencies to help ensure the return of the scholar to the agency and the return to a relevant position in the agency; and

Individual Action Plans to help utilise and extend the knowledge and skills acquired in Australia.

Ministry Working Groups (MWGs) were set up in each of the target MGAs to select candidates for ADS, as well as identify, design and help implement priority capacity building proposals. The MTR noted that the MWGs have played a key role in the success of CaBSAF, and that further support is warranted to build on this momentum. The MTR also stated that AusAID should consider developing a new Mongolian Country Program Strategy beyond 2008, with emphasis placed upon the continuity of the existing program, particularly ADS.

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Some CaBSAF-related issues for consideration

Transition from CaBSAF to the new mechanism

CaBSAF finishes in August 2008. To ensure continuity between CaBSAF and the new mechanism, the Design ought to make explicit the actions required by CaBSAF in its final year. It also ought to make explicit budgeting considerations for the first year of the new mechanism. For example, ADS costs for the first 2008 intake will be covered by the CaBSAF budget but not the second 2008 intake.

ADS Targeting Strategy

Under CaBSAF, the targeting strategy for ADS includes a target category for select MGAs and an open category. One of the key issues for the design team will be whether or not to continue with a target category and an open category beyond CaBSAF. With a target category AusAID and the GOM will be able to highlight priority sectors. A target category would be able to support the development of industry, as highlighted during the visit of Australian Foreign Minister Downer and the announcement of the Mongolia-Australia Working Group on Mining and Energy Cooperation, in April 2007.

The targeting strategy ought to consider:

o the target MGAs

o the inclusion of the associated agencies of the target MGAs

o the eligible categories within the Mongolian Civil Service

o the allocation of scholarships between target and open categories

o the management / administration implications

o the need for an adequate pool of suitable candidates with minimum English requirements; and

o the context of a doubling of the number of ADS available from 2010.

Support for ALA

CaBSAF provided some administrative support for mobilization of the two successful Mongolian candidates for the 2006 round of ALAS. It will have a greater involvement in the 2007 round, including promotions and initial screening of applications. Although support for ALA is not part of CaBSAF’s design, its Capacity Building Strategy will be revised in May 2007 to include the ALAS and ALA Fellowships (ALAF) as funding instruments for the capacity building component in the last year of the program, 2007/2008. The design for the new mechanism ought to build on this and fully incorporate support for ALA Scholarships and Fellowships.

Modes of Study

Although DE was offered under CaBSAF, and featured strongly in the Facility Design Document, this option has not been utilised by ADS candidates, largely since no allowance is provided for DE. The importance of in-Australia exposure and simple administrative arrangements may warrant the exclusion of DE altogether, or its limited inclusion in a more flexible mode of study such as sandwich courses. PhDs were originally offered under CaBSAF, in Australia and by DE. But there has been no effective demand for PhD study and this option was withdrawn as recommended by the

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Mid-Term Review (MTR) in June 2006. The design team ought to consider the most appropriate modes of study in Mongolia, building on CaBSAF’s experience.

Budget management

Currently the MC manages the budget for ADS expenses (including pre-departure briefings and outgoing airfares), capacity building activities and small activities for NGOs. The budget for ADS costs, i.e. payments to the universities, is managed separately by AusAID Canberra. This has caused some difficulty for the MC in budgeting close to the end of each financial year, since AusAID does not inform the MC of ADS costs until this time, and the MC has to juggle budgets between the different CaBSAF components. This is further complicated by there being two rounds of payment to universities per academic/calendar year, coinciding with the two ADS intakes, which fall into two consecutive financial years. The design team ought to consider the advantages and feasibility of having university fees payed once at the start of each academic year, even if scholars are mobilized twice per year, and how this might be budgeted.

2.3 Increase in ADS for Mongolia, as announced by Minister Downer

The number of ADS available to Mongolia will double from 14 per year to 28 by 2010, as announced by the Foreign Minister Downer during a visit to Mongolia in April 2007. The number of ADS available for the 2009 intake, i.e. between 14 and 28 scholarships, needs to be identified in the design, although the intake will be mobilized after CaBSAF, the advertisements for the 2009 intake need to take place during August 2007. This is because of the lead-up time involved with the provision of ELT. The advertisement will also need to specify the target MGAs, if any, and which categories of civil service are eligible.

3 Scope of Services

3.1 Objective

The objective is to produce a quality design document for the Mongolia program’s Australian Scholarships mechanism, including the development of a draft scope of services for contracting out certain aspects of scholarships administration.

Consideration will be given to the following in the design document and incorporated into the scope of services where appropriate:

The targeting strategy for ADS. Including:

o whether or not to continue with a target category and an open category. And if this distinction is to be maintained, identification of the target agencies.

o the eligible categories within the Mongolian Civil Service.

Other factors include:

o the Government of Mongolia’s human resource capacity development priorities.

o the new emphasis placed upon support for the development of industry, as highlighted during the visit of Australian Foreign Minister Downer and the announcement of the Mongolia-Australia Working Group on Mining and Energy Cooperation, in April 2007.

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o the potential of the mechanism to address emerging and regional issues such as pandemic and avian influenza, HIV/AIDS, natural disasters, and human trafficking.

The transition from CaBSAF to the new mechanism, including actions for the CaBSAF team before CaBSAF’s completion in August 2008.

Incorporation of a doubling of ADS from 14 to 28 per year, as announced by the Minister in Mongolia in April 2007, to take effect by 2010.

The number of ADS for the 2009 intake. This needs to be identified in the design, since although the intake will be mobilized after CaBSAF, the advertisements for the intake need to take placed during August 2007.

Ensuring an equitable and transparent selection process for ADS.

The provision of English Language Training (ELT) to Australian Scholarships candidates.

The inclusion of flexible modes of study, having regard to the paper that has been developed by the Australian Scholarships Group, including Distance Education (DE).

Processes for the re-integration of ADS students into their Government Agencies after completion of their study.

Improved budget management processes between the AMC and AusAID. Currently the expenses and costs for ADS are managed separately by the AMC and AusAID.

Human resourcing requirements, including roles and responsibilities, and their allocation.

Support for ALA Scholarships application, selection and mobilisation process and providing support for Fellowships as required.

How to best support the ‘Mozzie’ alumni association to monitor and maintain links with former ADS students and consideration of support for the Australian Scholarships alumni (when it is in operation) through identifying synergies and common activities between alumni associations and promotional activities to raise the profile of the Australian Scholarships alumni.

Alignment with the Government of Mongolia’s human resource development priorities.

Alignment with AusAID’s Australian Scholarships policy and procedures, and AusAID’s Gender and Anti-Corruption policies.

Monitoring and Evaluation requirements, in the context of AusAID’s Australian Scholarships monitoring and evaluation strategy and new requirements from the Office of Development Effectiveness.

Alignment with the Aid Policy Framework on the Australian Government’s Overseas Aid Program (June 2006).

3.2 Preparation Phase

For the preparation phase, the design team will:

i) review the relevant background materials (see Attachment A), including ADS documentation from CaBSAF, and ASG policies and guidelines on the management of Australian Scholarships;

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ii) meet the CaBSAF Project Director from the AMC in Canberra. He will provide the team with a brief on lessons learned, outlining issues relevant for the design mission;

iii) participate in a pre-departure briefing at AusAID Beijing to:

- learn about the Mongolia program and how it fits into the Post’s overall program; and

- discuss the objective, scope and implementation of the mission and to review some of the issues highlighted in these TORs.

3.3 In-Country Activit ies

For the in-country mission, the key counterparts for the design team to meet with are:

i) CaBSAF staff, who will provide a briefing on Australian Scholarships in Mongolia, their experience in implementing the project and their perception of key issues to inform the design process.

ii) The Ministry of Finance (MOF), as coordinator of loans and aid.

iii) CaBSAF’s Government counterpart agency / Chair of the Facility Coordinating Committee (FCC), the Cabinet Secretariat, and its associated agency, the Academy of Management, which is responsible for training public servants.

The design team may also meet with:

iv) A selection of ADS Target Government Agencies / FCC Members, including:

- the Government Services Council (GSC), since it is responsible for public sector reform and civil service capacity development.

- the Ministry of Education, Culture and Science

A suggested program of meetings will be provided to the team for consideration prior to the in-country mission.

v) The Ministry Working Group Forum (MWGF). This will provide the design team with the opportunity to meet and discuss capacity building with HRM managers in all the eight CaBSAF target ministries and to seek their views on the future Mongolia Australian Scholarship arrangements.

vi) The Ministries of Fuel and Energy; Industry and Commerce; and Food and Agriculture. These are not target ministries under CaBSAF but private sector development, including mining and trade, was highlighted as important during Minister Downer’s visit in April 2007.

vii) The Treasury Fund for Training, which is responsible for Mongolian Government-funded scholarships.

viii) A selection of CaBSAF's ADS graduates and board members of the Mozzie Association – the Australia-Mongolia scholars’ alumni network.

ix) The ADB, since it is involved in capacity building in selected Government Agencies: MOF and Ministry of Social Welfare and Labour (MSWD). The program is coordinated through the GSC.

x) Other donors that provide scholarships. This may include SIDA (Switzerland), JICA (Japan), the IMF, the World Bank, and KOICA (Korea), as well as the Chinese and Russian Embassies. BHP Billiton also has a scholarships program.

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xi) Other stakeholders, such as NGOs, as identified during the preparation phase.

By the end of the design mission the design team will:

xii) Produce an Aide Memoir (approximately 2-3 pages), summarising the design team’s conclusions and findings.

3.4 Return to Australia Activit ies:

On return to Australia the design team will:

i) Debrief with AusAID Canberra, including the Design and Procurement Advisory Group, and the Australian Scholarships Group. Beijing Post to participate by teleconference.

ii) Prepare draft Design Document and, upon feedback from AusAID and the Government of Mongolia (consolidated by Beijing Post) the final Design Document. The Team Leader is primarily responsible for the development and delivery to AusAID Beijing of the specified reports.

4 Duration and phasing

Task Duration Indicative DatesLiterature review 1.5 days June 14 and 15Meeting with CaBSAF Project Director and ASG 0.5 days June 15Travel Canberra-Beijing 2 days June 16 and 17Team briefing (AusAID Beijing) 0.5 days June 18Travel Beijing-Ulaanbaatar (UB) 0.5 days June 18In-country meetings 10 days June 19-28Team de-briefing (UB) 0.5 days June 29Travel UB-Beijing 0.5 days June 29Travel Beijing-Canberra 2 days June 30 and July 01Canberra Team de-brief 0.5 days July 02Write up draft Design Document 7.5 days July 02-11Finalisation of draft Design Document (Team Leader) 2 days July 12-13AusAID & Government of Mongolia review of draft Design Document

2 weeks July 14-27

Finalisation of Design Document, incorporating AusAID & Government of Mongolia comments

2 days TBD – before mid-August

5 Team members

Two specialists who will be contracted separately will be jointly responsible for producing a design, include a Scope of Services for tendering, that meets AusAID requirements. These requirements will be described in a design outline that the team will finalise and agree before it commences its activities in Mongolia.

I Kai Detto (Consultant)

Team Leader / Scholarships

Responsible for overall management and direction of the team’s activities; preparing the design

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Specialist outline, coordinating all design inputs including costings and producing designated inputs to the documentation.

II Mark Johnston (Consultant)

Design Specialist Responsible for designated inputs to the design, including the costing and implementation schedules and the M&E components.

Other Members:

III Damon Perry, Senior Program Officer, AusAID, Beijing Post.

Role: to provide guidance on issues related to activity management and AusAID Post, and co-ordinate itinerary and briefing sessions in Beijing and in Ulaanbaatar.

IV Kirsty McMaster, Design and Procurement Advisory Group, AusAID, Canberra.

Role: to provide guidance on design and procurement matters, including AusAID’s Quality at Entry requirements, management arrangements and value for money considerations; provide guidance on the development of the Scope of Services and Basis of Payments to ensure they are suitable for tendering purposes.

6 Reporting

The mission shall produce the following reports:

i) An Aide Memoire, summarising initial findings

ii) A Draft Design Document, including a two-page executive summary and a draft Scope of Services and Basis of Payment included as annexes

iii) A Final Design document incorporating AusAID feedback.

All documentation will be provided to AusAID in digital (Microsoft Office 2003) formats.

7 Annexes

Annex A: Background Documentation

AusAID Documentation

ADS Discussion Paper October 2005 & ADS Handbook 2007 Australian Leadership Awards - Scholarships Manual 2007 (to be reviewed this year) ALAS Guidelines for EST and Posts

67

http://www.ausaid.gov.au/publications/pdf/ala_manual.pdf


ALAF Australian Organisations: 2007 Guidelines for Submission Australian Scholarships Communication Guide Issues Paper - Australian Development Scholarships, 2007 (Detto, Kai) Issues Paper - Re-Design of the ALA Program, 2007 (Banova, Greg; revised by

ASG) Australian Aid: Promoting Growth and Stability: A Aid Policy Framework on the

Australian Government’s Overseas Aid Program, 2006 www.australianscholarships.ausaid.gov.au

Government of Mongolia Documentation

Government Action Plan Master Plan by MECS - http://mecs.pmis.gov.mn/index.php?

option=com_docman&task=doc_download&gid=12&Itemid=189

Mongolia Program / CaBSAF Documentation:

The Facility Design Document (FDD), 2002 Annual Work Plans, 2007/2008 and 2006/07 CaBSAF’s ADS Guidelines CaBSAF M&E Guidelines The Mid-Term Review, 2006 Reports prepared for CaBSAF by the Academic Adviser regarding ELT

Other materials to be provided at initial briefing and in country as required/identified.

Annex B: Guidance on Design Framework

1. Methodology

2. Development Context and Situation Analysisa. Policy and program context;b. Analysis of needs or problemsc. Lessons learnedd. Options considered and proposed intervention/approach

3. Activity Description – can use logframe or other formata. Goal and purposeb. Component structure, output or outcome descriptionsc. Responsibilitiesd. Duration/phasinge. Detailed resources, cost assumption and schedules (required for tendering).

4. Management and Financing Arrangementsa. Coordination and management arrangements – roles and responsibilitiesb. Financing arrangementsc. Performance monitoring and evaluation –performance indicators, M&E

framework etc.

5. Feasibility, sustainability and risk managementa. Analysis of feasibility, sustainability and risk

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http://mecs.pmis.gov.mn/index.php?option=com_docman&task=doc_download&gid=12&Itemid=189

http://mecs.pmis.gov.mn/index.php?option=com_docman&task=doc_download&gid=12&Itemid=189

http://www.australianscholarships.ausaid.gov.au/


b. Risk Management – key assumptions and risk management strategies

6. Draft Scope of Services

7. Basis of payment – proposed payment structure.

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Appendix 2: Design timetable and agencies/persons consulted

Location Date Meetings held/activity

Canber ra 16 June CabSAF M anaging Contractor

Ron Staples, Facility Director, Effective Development Group/Coffey International

AusAIDKirsty McMaster, Design and Procurement Advisory Group

Jennifer Gregory , Program Manager, Australian Scholarships Group

16 /17 June Trave l

Be i j i ng 18 June AusAID

Peter Jensen, Counsellor

Matt Plaistowe, North and South Asia Section, AusAID Canberra

Damon Lee Berry, CaBSAF Activity Manager

Trave l

U laanbaa tar 19 June CaBSAF sta ff

Yu Tsetsgee, Deputy Facility Director

Lunden Enkhtuvshin, Capacity Building Officer

Nanjaa Baigalmaa, Program Officer

Min istry of F inance

Ochirkhuu Erdembileg, Director-General, Department of Aid Policy and Coordination

Cabinet Secretar iat

Majid Tungalag, Deputy Chairperson, Cabinet Secretariat

20 June Government Service Counci lTsrenbaljid Samballhundev, General Manager

CaBSAF ADS/Capaci ty Bu i ld ing Subcomm i ttee

Batmunkh Erdenebileg, Principal Officer CabSec

Nat ional Cham ber of Comm erce and Industry

Enebish Oyuntegsh, General Secretary

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21 June Min istry of Education , Cul ture and Sc ience

Regsuren Bat-Erdene, Director Department of Higher and Vocational Education

Payma Batrinchin, Department of Higher and Vocational Education

Dugersuren Bayar, Specialist in Charge of Projects

Min istry of Food and Agricul tu re

Jantsankhorol Deleg, Director State Administration and Management Department

Munkhjargal Nyamsuren, External Relations Division

Arium Bayar, Human Resources Officer, State Administration and Management Department

Munkh Jargal, Foreign Relations Division

Min istry W ork ing Groups

Erdenebileg Tumur-Ochir, Deputy Director-General, MONE

Sharavjamts Buuveebaatar Chief Organisational Department

Gotovdorj Luuzan, Adviser Public Administration and Management Department, MFA

Gungaa Ganbold, Head Public Administration and Management Department, MOSWL

Enkhbayar Battumur, Head Public Administration and Management Department, MOJHA

Myagmar Nergui Battumur, Senior Officer, MOJHA

Universi ty o f Hum ani t i es

Chuluundorj Begz, President

Luvsanvandan Manlajav, National Academy for Language Policy Centre for Linguistic Studies

Oyuntsetseg Namjildorj, Teacher, Department of Foreign Languages

Sarah Johns ton , Teacher Coord inato r

22 June Min istry of Fue l and Energy

Sanjaadorj Dambii, Director General Administration and Management Department

Tumurbaatar Zagar, Deputy Director General, Policy and Planning Department

Boldkhuu Nanzad, Chief Division for Coal Technology

Bhpbi l l i tonLutaa Badamkhand, Media Relations & Communications

Bank o f M ongol iaB. Shatar, Director Administration Department

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Alum ni (M ozz ies)

Enkhbold Ganbat , Head o f Lega l Departm ent , F inanci a l Reg is t ry Comm iss ion, M OF

B. Enkhbayar, Head of Public Administration Department, MOJHM

Erdenebileg Tumur-Ochir, Deputy director-General, MONE

Enkhbold Ganbat , Head o f Lega l Departm ent , F inanci a l Reg is t ry Comm iss ion, M OF

Tsoodol Bolormaa, Head of Public Administration Department, MOSWL

Davaanyam Odmaa, Government Officer, CabSec

Mumchsuren Byamba, senior Engineer, Redpath (GOM Scholarship)

23 /24 June Team W orkshop & A ide M emoi re p repara t i on

25 June Min istry of Hea l th

Byambaa Batsereedene, State Secretary

Bujin Tserensodnom, Director Health Policy and Planning Division

CabSAF S ta f f

Academy of Management

Lkhagvaa Togooch, Rector

Oyun-Erdene Perenlei, International Office

NGOsDEMO: Undral Gomborrj, Director

MWFA: Byatshandae Jargat, Director

ORM: Tgetsegee Munkhbayar, Head

HRIC: Vanchincuren Badamsuvd, Director

ACM: Dwight Gee, President Ariunaa Tserenpil, Executive Director Rebekah Plueckhahn, Cultural Heritage Program Coordinator

26 June Austra l i an Honorary Consu l Designate

Jarga lant E l begsa ikhan , “G lobus” Law Bureau

Min istry of Industry and TradeT. Tsog, Director of State Administration and Management DepartmentA. Erdenepurev, Director Policy Coordination & Strategic Planning Department

UNDPD. Nergui, Assistant Resident Representative

27 June Swiss Agency for Developm ent and Cooperat ionDurziijalbuu Segee

Team W orkshop

Cabinet Secretar iat – Presenta t ion of A ide Memoi re

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Majid Tungalag, Deputy Chairperson, Cabinet Secretariat

28 June W orld BankSunjidmaa Jamba, Partnership Coordinator

Asian Development BankAdrian Ruthenberg, Country Director, Mongolia Resident Mission

29 June IMFJang Byung-Kyooon, Resident RepresentativeSelenge Sandagsuren, Economist

Team W rap-up M eet ing

29 /30 June Trave l

Canber ra 2 Ju l y AusAID Debrie f

Kirsty McMaster, Design and Procurement Advisory Group

Jennifer Gregory , Program Manager, Australian Scholarships Group

Carol Chan, Australian Scholarships Group

Peter Nichols, Australian Scholarships Group

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Appendix 3: Aide Memoire

Mongolia Australia Scholarships Program – Design

1 Methodology

A four person design team conducted an 11 day field mission from 19 to 29 June to develop design documentation for the next phase of the Mongolia Australia Scholarships program. The team met with a range of stakeholders including AusAID staff in Canberra and Beijing; Mongolian government and non-government agencies; other scholarship donors; ADS alumni; and staff of the Mongolia-Australia Targeted Capacity Building & Small Activity Facility (CabSAF). The team’s work was informed by the directions set in the Aid Policy Framework on Australian aid; announcements by the former Australian Minister for Foreign Affairs and Trade during his April 2007 visit to Mongolia; a range of other ADS program studies and designs; AusAID corporate initiatives in relation to the Australian Leadership Awards (ALAs) and the outcomes of a mid-term review of CaBSAF in 2006.

The approaches for the new design summarised below are those proposed by the design team and have not at this stage been endorsed by AusAID or the Government of Mongolia.

2 Background and development context

CaBSAF has allocated 14 ADS awards annually and has placed 49 ADS scholars in Australian universities since August 2003. 23 graduates have returned to their Ministries and there have been no failures. Two Mongolian candidates obtained ALA scholarships in 2006. Stakeholders consulted by the design team expressed strong support for the continuation and expansion of the scholarships program.

The Mongolian Government’s development priorities highlight the need to strengthen the capacity, as well as the accountability, of public service institutions and civil servants. A longer-term National Development Strategy is currently being developed, which will reinforce this priority and emphasise the sustainable development of specific sectors, such as mining and agriculture, and the important role of the private sector.

During his visit the Minister for Foreign Affairs announced that the number of scholarships will double by 2010 and will reflect the increasing emphasis given by the Government of Mongolia to these sectors.

Australia has strong comparative advantages in these fields and an interest in cooperation through the private sector to complement assistance to the public sector. The Aid Policy Framework emphasises the value of well-targeted scholarships as a highly effective form of aid that empowers people from developing countries to drive their own national development and reform agendas based on an informed understanding of a developed economy.

3 Targeting strategies and program characterist ics

During the next five-year phase of the Australian Scholarships program a total of 28 ADS scholarships will be awarded annually by 2010. Support will also be provided for Mongolia’s participation in ALA scholarships and fellowships under the broad Australian scholarships banner.

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The expanded ADS component of the new Australian Scholarships program will retain an emphasis on targeting public sector institutions, and extend the range of sectors covered by scholarships in line with the above-mentioned priorities.

There will be two categories of ADS scholarships, both of which will be targeted:

Category 1, targeted on priority public sector institutions, with the fields of study identified by Ministry Working Groups based on HRD plans (around two thirds of ADS awards annually);

Category 2, targeted on priority fields of study and open to eligible employees in government agencies and Mongolian private firms, NGOs and universities (around one third of ADS awards annually).

Most of the Mongolian stakeholders consulted by the team highlighted the need to develop expertise in sectors such as mining and agriculture, where the private sector plays a major role, and many identified specific areas where high-level technical expertise is missing particularly in Mongolian firms. The significant expansion in the number of scholarships provides an opportunity to extend eligibility to the private sector and, where relevant to NGOs, in specified fields of study. The number going to the public sector would increase.

The new program will also provide opportunities for teaching staff in public and private universities to compete for scholarships in the specified fields of study. Especially in new fields where many graduates are needed, upgrading or establishing new Mongolian university programs can be a cost effective means of building capacity in the medium term.

Under Category 1, scholarships will continue to be available (for the time being) to the existing 8 targeted institutions (and associated agencies subject to annual review). These remain priority areas for the Mongolian Government and most organisations have been successful in selecting and reintegrating graduates. Category 1 will also include four ‘provisional’ members – the Ministry of Food and Agriculture, Ministry of Industry and Trade, Ministry of Fuel and Energy and the Ministry of Health (as well as their associated agencies).

The list of Category 1 institutions will be reviewed annually: (a) to consider whether the ‘provisional’ organisations have developed adequate HRD planning processes (with some assistance); (b) to consider emerging priorities; (c) to review the continuing priority for scholarships for existing targeted ministries; and (d) to keep the number in the 10-12 range. Some target organisations have already benefited from a significant number of scholarships.

Unlike the current ‘general’ category, Category 2 scholarships will be restricted to specified fields of study, which will also be reviewed and specified each year as part of a Strategic Review. The specified fields of study will initially include mining engineering, construction engineering, resource economics, environmental studies relating to resource development, renewable energy, coal technology, biotechnology, agricultural economics and marketing, infectious plant diseases, actuarial studies and teaching methodologies for English language.

Under Category 2, scholars will be selected by a single panel on a competitive basis across these fields of study, and will be required to enter into agreements to return to their current employment, as with the current ‘general’ category. Employer support will be an essential criterion and employers (including universities and private firms) will be required to sign agreements to re-employ graduates in relevant positions for a minimum of 2 years.

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ADS awards will be for study in Australia at Masters level. Flexible delivery modes such as distance education where offered by Australian tertiary institutions under approved ADS guidelines will be considered. The Australian Embassy in Beijing will take a much greater role in ALA selection and other aspects of ALA and other AusAID scholarship program administration. These will be detailed in the design and outsourced to the Managing Contractor (MC) as far as practicable. ADS, ALA and Endeavour awards will be publicised each year under the Australian Scholarships banner. Study at PhD level will be addressed through the ALA program.

Up to 9 months of in-country English for Academic Purposes Training (EAPT) will continue to be provided in Mongolia to those ADS awardees who do not when selected have the required level of English language skills needed to gain direct entry to courses at Australian tertiary institutions. The EAPT provider will be selected by the MC through a competitive tender process.

Transitional budgeting and management arrangements will ensure a smooth transition from CabSAF to the new program. Overall management of the new program by a MC will be tendered based on design documentation to be submitted to AusAID in draft form by 14 July.

4 Purpose, objectives and component structure

The incoming MC will be managing an Australian Scholarships program that has six distinct components.

Program purpose: Improving Mongolia’s human resource capacity To improve human resource capacity in Mongolia consistent with the Mongolian Government’s emerging development priorities and in line with Australia’s and Mongolia’s mutual national interests.

Program Objective 1: Capacity built in key institutionsTo help address the human resource needs of targeted Mongolian Government Agencies.

Program Objective 2: Selected individuals trained in key areasTo provide individuals with the competencies and capabilities that will enable them to contribute through their organisations to Mongolia’s economic and social development.

Program Objective 3: Mutual understanding and linkages enhanced To enhance mutual understanding and contribute to linkages between individuals in Australia and Mongolia and within the region.

Component 1: Promotion of scholarships to eligible candidates To implement effective strategies for the promotion of Australian scholarships in Mongolia that will attract sufficient numbers of high quality candidates under Australian Scholarship programs.

Component 2: Management of the Australian scholarship application and selection processes.To facilitate transparent and effective processes including human resource development support and monitoring and evaluation capacity building to targeted agencies that result in the selection of eligible high calibre ADS and ALA scholars.

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Component 3: Management and monitoring of arrangements for in-country language tuition.To arrange a combination of high quality and cost-effective in-country English for Academic Purposes Training for a specified number of ADS awardees each year that will enable them firstly to achieve the English language levels they will need to gain entry to their chosen courses at Australian tertiary institutions and secondly to prepare them for the language and academic demands of tertiary study and living in Australia.

Component 4: Placement and Mobilisation of awardees and award managementTo place ADS awardees in their chosen courses of study at Australian tertiary institutions; to manage their awards; and to provide effective pre-departure briefing and mobilisation arrangements for Australian scholarship holders.

Component 5: Alumni support and post-award monitoring & evaluationTo support alumni activities consistent with AusAID corporate requirements and provide combined with effective post-award monitoring and evaluation activities that will yield essential data linked with wider Australian Scholarship M&E requirements.

Component 6: Program managementTo manage the program efficiently and effectively and to undertake other specific tasks relating to the Australian government aid program to Mongolia.

5 Governance arrangements and strategic planning

As noted in Section 3 above, the design will provide for an annual strategic review meeting involving AusAID, key GOM counterparts and other Australian agencies to help define and adjust as necessary the strategic directions for the Program including targeting approaches. This will facilitate effective responses to emerging GOM priorities and broader AusAID corporate initiatives. Consistent with the Aid Policy Framework emphasis on donor harmonisation, this review process will be informed by the activities of other donors.

The MC will support the annual review and provide specified reports including an Annual Plan that will also report on quality assurance and performance monitoring results. A broad Mid-term Review may be commissioned by AusAID in year 3.

Current joint AusAID/GOM ADS selection processes are effective and transparent, involve strong GOM agency ownership through Ministry Working Groups and will continue to apply in the new program phase. The enhanced ADS targeting approach is designed to maintain this transparency. The MC will support the operations of a new ALA Selection Panel.

6 Monitoring and evaluation

The Aid Policy Framework gives prominence to the need to strengthen the performance orientation of the Australian aid program. Future monitoring and evaluation approaches for the Mongolia-Australia Scholarships program will build on the comprehensive ADS M&E framework and strategies developed by CaBSAF. This will be adjusted by the MC to meet broader AusAID corporate needs following the Aid Policy Framework and the introduction of the ALA program. Some key elements of the broad AusAID M&E infrastructure are still under development.

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7 Resources

The Contractor will provide a notional mix of 3 staff including a part-time Program Manager based overseas and a full time Deputy Program Manager located in a suitably equipped office in Ulaanbaatar to deliver a broad level and range of services to support AusAID with the management in-country of ADS and ALA scholarships and several other Australian scholarship programs. Short term expertise in areas such as M&E and human resource planning for newly targeted agencies may be sub-contracted locally or overseas.

8 Sustainability

Sustainability will be addressed through good practice selection approaches involving strong GOM ownership. The continuation of the current effective measures involving formal agreements with employers and scholars and the use of action plans will give graduates the opportunity and incentive to apply their knowledge and skills. Targeting of scholarships to key agencies and fields of study will also promote sustainability by ensuring a better ‘fit’ with the comprehensive development agenda of the Government of Mongolia.

27 June 2007

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Appendix 4: Mongolian ADS student statistics

Mongolia - Student Intake 2003-07

0

2

4

6

8

10

12

14

16

18

Total 8 11 13 16 14

2003 2004 2005 2006 2007

Mongolia - Intake by Gender 2003-07

0

1

2

3

4

5

6

7

8

9

10

Female 7 7 9 8 8

Male 1 4 4 8 6

2003 2004 2005 2006 2007

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Mongolia - Intake by Institution 2003-07

0

1

2

3

4

5

6

7

2003 1 1 3 3

2004 2 2 1 1 1 1 2 1

2005 1 4 2 1 2 2 1

2006 1 1 2 6 1 1 2 2

2007 4 4 1 2 3

Australian National University

Curtin University of Technology Flinders University Monash University

Sw inburne University of Technology

University of Melbourne

University of Queensland

University of Sydney

University of Technology Sydney Victoria University

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Mongolia - Intake by Sector 2003-07

0

1

2

3

4

5

6

7

8

9

10

2003 1 3 2 1 1

2004 2 7 2

2005 2 1 6 4

2006 6 1 5 3 1

2007 9 1 4

Education Environment Governance Health Infrastructure Rural Development

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Mongolia - Intake by Field of Study 2003-07

0

1

2

3

4

5

6

2003 1 2 1 2 1 1

2004 1 1 2 1 2 1 2 1

2005 3 2 1 1 2 2 1 1

2006 1 1 1 1 2 5 1 1 3

2007 2 1 1 1 1 1 2 3 1 1

Acc Agr Arch Bank Beha Bus Comm Eco Edu Envi Health HWfar IT Law Mgnt Pol Cul Soc Tourism

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Acc Accounting Health Health

Agr Agriculture, Environment & Related Studies HWfar Human Welfare Studies & Services

Arch Architecture & Building IT Information Technology

Bank Banking, Finance & Related Fields Law Law

Beha Behavioural Science Mgmt Management & Commerce

Bus Business & Management Pol Political Science & Policy Studies

Comm Communication & Media Studies Cul Society & Culture

Eco Economics & Econometrics Soc Studies in Human Society

Edu Education Tourism Tourism

Envi Environmental Studies

Mongolia – Extensions and Terminations 2003-07

Estimated arrive date

Actual end date

Variation type

Extension Length

(months)

14/1/2003 31/7/2005 Extension 31

6/1/2003 31/7/2005 Extension 31

7/1/2004 31/1/2005 Extension 13

12/6/2000 31/7/2003 Extension 38

7/11/2005 31/7/2007 Extension 21

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Appendix 5: Guidelines for Annual Strategic Review

Purpose of the Annual Strategic Review

The Aid Policy Framework stresses that Country Program Strategies will provide a single framework for all Australian Government efforts in a particular partner country. This means regional issues, such as HIV/AIDS, people trafficking and drugs, are to be treated as much a part of Australian Scholarships as are other sectors identified in consultation with partner governments. While there is no formal Mongolia Country Program Strategy, there needs to be flexibility to respond to such broader priorities. Additionally, in a highly targeted scholarships program a mechanism is needed that will enable adjustments to be made to the targeted agencies and to the fields of study based on emerging GOM priority needs, AusAID corporate initiatives and scholarship outcomes.

An Annual Strategic Review will be conducted by the two agencies designated in the Memorandum of Understanding executed on behalf of GOM by the Ministry of Finance as the ‘Coordinating Authorities’ for the program. For Mongolia this is the Cabinet Secretariat and for Australia this is AusAID.

Specifically, the Review will:

1. Facilitate decisions for each annual intake of Australian Development Scholarships that address:

The inclusion of additional Category 1 agencies on a provisional basis

The transfer of provisional agencies to full Category 1 status based on an assessment of their HRD planning processes and willingness to subscribe to execute program agreements

The continuing priority for scholarships of existing Category 1 targeted Ministries

The appropriateness of Category 2 fields of study

2. Assess sectoral, regional, transboundary and emerging priorities that may be addressed through scholarships.

3. Consider issues relating to Australian Leadership Awards that have implications for the management or strategic directions of Australian Development Scholarships. This includes joint publicity and joint alumni activities.

4. Review the program’s response to other Australian scholarship programs including Australia-IMF; ACIAR; UOW/CTCP and CMU.

5. Ensure that the program responds appropriately to broader corporate initiatives in relation to alumni and evaluating scholarship outcomes and impact.

6. Determine whether a Mid-term Review of the program is needed in year 3 and the review objectives that will effectively complement the annual review process.

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Participation

The Annual Strategic Review will be led by AusAID Beijing, in partnership with the Government of Mongolia as represented by the Cabinet Secretariat. Either party can put forward suggestions in relation to the issues highlighted above. Other GOA stakeholders may participate in the discussions eg DFAT and DEEWR. Cabinet Secretariat may request other GOM agencies to participate.

The Contractor will provide Secretariat support. AusAID Beijing may task the Contractor to provide statistics and other data to assist Annual Strategic Review decision-making. The Contractor will report on ADS outcomes and extract lessons to feed into the Annual Strategic Review.

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Appendix 6: Risk Matrix

Risk

Prob

abili

ty

Impa

ct Proposed actions and responsibility

Partner government support

Partner Government counterparts do not relate effectively to the Contractor resulting in lack of partner Government commitment, contribution to and ownership of the program.

L M ADS approaches closely aligned with GOM priorities and periodically reviewed by the two governments. (AusAID)

The new Program will be responsive to changing priorities based on Annual Strategic Reviews. (AusAID / Contractor)

Mid-term Review will provide additional opportunities for strategy adjustments prior to the end of the Program. (AusAID)

Involve GOM representative in the Contractor selection process (AusAID)

Maintain effective communication using tools including newsletters, webpage, alumni activities and face-to-face briefings (Contactor/AusAID)

Retain Ministry Working Group structures and ensure close working relationships between Program Office and MWGF and MWGs (Contactor)

Program Management

Fraudulent practice and/ or lax office security by program staff damage integrity of Australian scholarships

L H Fundamental clause in contract with breach leading to disciplinary action. (AusAID/Contractor)

Financial functions and systems are quality assured, based on MC’s systems and overseen by

86


Risk

Prob

abili

ty

Impa


MC. (Contractor)

Design and implement fraud prevention and security training with staff as required. (Contractor)

Application of relevant elements of AusAID’s Anti-Corruption Policy published March 2007. (AusAID)

Failure of AusAID and GOM counterparts to respond to program requirements in a timely manner delaying Contractor outputs.

L H Allow some flexibility on due dates and adequate consultation time. (Contractor/AusAID)

Set realistic ‘turnaround’ timelines. (Contractor/AusAID)

Regular communication between stakeholders. (Contractor/AusAID/GOM)

Performance of MC is poor with inadequate program management inputs; failure to achieve objectives and diminished return on Australian investment in Mongolia’s HRD development.

L H Contractor to provide continuous quality assurance and quality improvements and to report on implementation of the same. (Contractor)

Annual Contractor Improvement Meeting (AusAID/Contractor)

Poor conditions in the administration of IELTS tests and post-test management of results threatening integrity of IELTS scores and achievement of program outputs

L L Contractor monitors sub-contract for IELTS services to ensure that standards of preparation, implementation and post-test delivery of results are fully met. (Contractor)

If the Contractor is licensed to provide IELTS testing continuous quality assurance to address quality of IELTS testing specifically. (Contractor)

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Risk

Prob

abili

ty

Impa


Lack of coordination between AusAID and the Contractor in ongoing management of ADS /ALA administrative tasks, wasting resources and leading to implementation difficulties and failure to meet deadlines.

L L Appropriate and effective communication between AusAID staff at Post and Contractor staff. (Contractor/AusAID)

Maintain strong working relationship with AusAID staff at Post. (Contractor/AusAID)

Loss of corporate memory with new contractor and/or failure to meet deadlines associated with the scholarship cycle during the first 2 months.

L M Ensure systems and procedures are well documented in a comprehensive up-to-date Quality Systems/Procedures Manual. (CaBSAF Contractor/AusAID)

CaBSAF Contractor addresses handover strategies in Facility Completion Report. (CaBSAF Contractor/AusAID)

New Program design provides for transitional arrangements including overlap between outgoing/incoming Contractor staff. (CaBSAF Contractor /Contractor/AusAID)

Targeting

Weak HRD capacity and/or lack of effective HRD policies in targeted agencies

H M The program realistically accepts HRD constraints in the public sector. Proven mechanisms adopted by CaBSAF maintained for targeted public sector agencies. Some assistance available for new targeted Category 1 agencies to establish and facilitate (through technical assistance and a range of agreements) basic HRD planning processes. (AusAID/GOM agencies/Contractor)

Agencies seek to ‘nominate’ inappropriate candidates based on seniority or other such considerations.

M H Current transparent selection processes involving Ministry Working/Selection Groups and with active MC participation will be retained and strengthened a necessary. (Contractor/AusAID)

Selection based on basic HRD planning with agreements and action plans all designed to ensure appropriate candidates are awarded scholarships. (Contractor/GOM agencies/employers)

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Risk

Prob

abili

ty

Impa


Application of relevant elements of AusAID’s Anti-Corruption Policy published March 2007. (Contractor/AusAID/GOM agencies)

Australian leadership awards

Insufficient information on the ALA program available to prospective applicants negatively affecting the attractiveness of the program.

L H Creation of an Australian Scholarships dedicated URL with links to AusAID and DEEWR sites and easy access to comprehensive ALA information including all of the necessary forms (AusAID-Scholarships Group/DEEWR)

ALA scholarships are confused with the ADS Program and/or Endeavour Postgraduate or Asia Awards resulting in inappropriate applications, increased workloads and poor perceptions about all programs.

L L Ensure clear Australian Scholarships branding under one banner which differentiates ALA scholarships, ADS and Endeavour awards (AusAID-Scholarships Group & Beijing Post/DEEWR/Contractor)

Effective promotion of Australian Leadership Awards in Mongolia (AusAID/Contractor)

Advertise ALAs as part of an ‘Australian Scholarships’ package. (AusAID/Contractor)

Scholarship policy and administration

Cultural and institutional influences impede the achievement of ADS gender equity targets such that women do not benefit in an equitable manner from program opportunities.

L M Program gender strategy developed. (Contractor)

Gender equity strategy integral to ADS the joint selection process with equal number of award offers to men and women within each round an overriding requirement. (AusAID/GOM agencies/Contractor)

Scholarships seen as Contractor scholarships with Australia's and AusAID's profile as the provider of scholarships reduced.

L L Contractor required on an ongoing basis to seek to promote to enhance Australia’s profile. (Contractor)

ADS scheme ‘branded’ as integral element of ‘Australian Scholarships.

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Risk

Prob

abili

ty

Impa


(AusAID/Contractor)

Lack of transparency in ADS selection processes L H Targeting in a way that limits discretion in the selection criteria and ensures that assessments are as objective and verifiable as possible. (Contractor/AusAID)

Application of relevant elements of AusAID’s Anti-Corruption Policy published March 2007. (Contractor/AusAID/GOM agencies)

Lack of interest on the part of the alumni results in limited impact of alumni initiatives

M H Provide support and encouragement to the Mongolia Alumni Association (AusAID/Contractor)

Promote commitment of scholars to Alumni activities and participation in monitoring and evaluation. (AusAID/Contractor)

Student Visa applications are rejected or issue of visas by the Visa Office is delayed impacting on commencement of academic program.

L H Contractor to ensure all candidates are fully informed of visa issues and submit complete and accurate visa applications. (Contractor)

Contractor staff maintain effective working relationship with relevant DIAC staff at the Beijing Embassy. (Contractor)

Low response rates for post award evaluation resulting in difficulty in monitoring utilisation and effectiveness of tertiary training provided.

L M Highlight at Pre-departure briefings the requirements that graduates maintain contact and point out the benefits (AusAID/Contractor)

Maintain full contact details of awardees on alumni database cooperating with Mongolia Alumni Association. (Contractor)

Rely on Agreements with scholars, employers and between employers and scholars as well as individual Action Plans to support post award M&E activities. (Contractor)

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Risk

Prob

abili

ty

Impa


Annual intake awardees placed in inappropriate courses with awardees struggling, discontinuing or failing

M M Monitoring of student progress and award variations through consultation with relevant Australian university officials. (AusAID/Contractor)

Specify fields of study based on employer priorities combined with individual action plans and provide Program Office support through resources and advice about most relevant courses to meet clearly specified priority needs. (Contractor/GOM employers )

Beijing Post lacks capacity to manage policy and other tasks due to increasing workload and complexity.

L M Administrative tasks including those relating to the ALA program are allocated to the Contractor. (AusAID/Contractor)

Inappropriate priorities identified in the Annual Strategic Review.

L H Guidelines for Annual Strategic Review ensure process is rigorous and involves genuine involvement of key program stakeholders. (AusAID)

Draw on relevant aspects of AusAID’s Education Policy published in May 2007 to support targeting approaches. (AusAID)

Pre-departure English Language training

Non-performance or poor performance by the chosen Contractor and quality standards are not met jeopardising the progress of awardees to reach IELTS levels needed for entry to Australian courses.

L H Select a highly qualified and experienced provider following Commonwealth Procurement Guidelines. (Contractor)

Quality Assurance processes specified in the sub-contract. (Contractor)

Contractor monitors provider’s performance using qualified Academic Adviser. (Contractor)

ADS awardees are unable to progress to the required IELTS level due to issues outside the control of the ELT Sub-contractor.

L H Provide regular updates on student progress. (Sub-contractor/Contractor)

Mutually agree a process for dealing with a situation where more than a few scholars are not

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Risk

Prob

abili

ty

Impa


demonstrating adequate progress. (Sub-contractor/Contractor/AusAID)

GOM agencies do not release staff and/or students are not prepared to devote time and effort to their studies

L H Effective selection processes including interviews and strong employer ownership establish motivation of short-listed candidates and employer support. (AusAID/GOM/Contractor)

Scholarship outcomes

Unsupportive working environment / lack of suitable positions for returnees.

M H Targeting strategies ensure all awards reflect employer priorities supported by agreements and individual Action Plans facilitate reintegration of alumni into the workplace. (Employers/GOM counterparts/AusAID/Contractor)

Program unable to measure / demonstrate scholarship outcomes.

L M The Contractor will undertake regular post award M&E activities and report on outcomes against Program objectives. (Contractor)

Maintenance of Alumni database and use of alumni in support of new post-award M & E activities. (Contractor)

Key

Probability of a risk occurring: H - HighM - ModerateL - Low

Impact of the risk on the program: H - HighM - ModerateL - Low

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In the 'Proposed actions and responsibility' column the responsible organisation for taking action is shown in bold.

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Appendix 7: Stakeholder Roles and Responsibilities Matrix

The following table summarises the responsibilities of the Contractor at outputs level for the Program while also indicating the responsibilities of other stakeholders.

References to AusAID cover AusAID-Beijing unless otherwise specified. Stakeholder responsibilities for ADS are governed by the Australian Development Scholarships Handbook 2007 (Revised April 2007) and for ALAs by the Australian Leadership Awards Scholarships Manual (Version 1.2 October 2006) and the Guidelines for ALAS In-country Management June 2007.

OUTPUT CONTRACTOR AUSAID OTHER

COMPONENT 1: MANAGEMENT OF THE AUSTRALIAN SCHOLARSHIPS PROGRAM

1.1: Promotion of Australian Scholarships to eligible candidates

Prepare targeted Australian Scholarships Promotional Plan building on the CaBSAF Media Strategy

Implement approved Promotional Plan

Distribute information materials and AS application documentation

Complete annual review of promotion strategies and report through Annual Plan

Replace/enhance the CaBSAF Website

Make presentations in Category 1 Ministries about ADS program opportunities prior to each intake

Develop and maintain institution and

Advise Contractor on Plan and approve

Cooperate with Contractor as it seeks to promote Australia/ AusAID’s profile as AS provider

Facilitate Whole-of-Embassy engagement in Australian Scholarships promotion

Receive report in the Annual Plan

Receive statistics in the Annual Plan

Key government agencies invited to participate in promotional activities

Relevant GOM agencies to receive materials and disseminate

Cabinet Secretariat participates in Ministry presentations

Ministry Working Groups (MSGs) advertise ADS in Ministries and seek EOIs

Ensure intending scholars have access to information and materials

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course information materials

Maintain limited phone enquiry service for nominated and potential applicants

1.2: Management of ADS application and selection process

Brief provisional Category 1 Ministries about essential participation requirements

Undertake/arrange HR assessments/analysis and provide support as required

Receive and process Category 2 Expressions of interest

Participate in Category 1 screening and selection processes managed by MWGs

Maintain database records and prepare Category 1 report for PCC

Manage category 2 screening and selection processes

Maintain database records and prepare Category 2 report for PCC

Submit consolidated category 1 and category 2 report to PCC

Provide Secretariat support to PCC Prepare notifications of selection

outcomes Facilitate feedback advice to short

listed unsuccessful applicants Assess UOW/CTCP and CMU

As member of Program Coordination Committee (PCC) approve agency transition to full status

AusAID representative participates in Category 2 interviews

As member of PCC review and approve ranked category 1 and 2 candidates

Clear UOW/CTCP and CMU Scholars assessment results

Provisional Category 1 Ministries set up support structures including MWG/MSG and sign essential agreements

PCC approves Category 1 change of status

MWGs/MSGs undertake screening and selection processes

GSC and Industry representative as members of Category 2 selection panel screen and rank candidates

CS, MOF, MFA as core PCC members review and approve candidates

MWGs notify Category 1 applicants

Public & Private Sector employers confirm release of successful candidates for ELT

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Scholars against ADS eligibility criteria

1.3: Placement of ADS awardees and award management

Provide services to scholars to facilitate course selection

Prepare letters for AusAID signature

Finalise awardee placement in Australian courses

Generate letters of offer and arrange for award offers to be signed by AusAID and send to candidates (including UOW/CTCP and CMU scholars)

Advise unsuccessful candidates

Advise Australian institutions of acceptances

Assume responsibility for all ongoing ADS awardees including files and database records

Administer award variation requests in line with provisions of ADS Handbook

Approve awards and sign letters of notification to successful applicants

Receive advice from Contractor about ADS candidates not accepted into first or second preference institution

Receive advice from Contractor about deferments

Sign Offer letters for awardees

Receive advice from Contractor about problems or delays and how to address them

Consider/approve additional funding commitments where necessary based on MC recommendations

MSGs collaborate with category 1 awardees in course selection

Employers receive notification of award offers /acceptances and confirm release of awardees

Awardees respond to offer letters

GOM representatives may participate in pre-departure briefings

GOM employers respond to award variation requests

MWGs monitor academic progress of their scholars, ensure smooth reintegration and action plan implementation

1.4: Management of ALA applications and processes

Process applications for ALAs, field enquiries, provide course guidance and liaise with Post/Canberra

Verify eligibility, documentation, academic standards and check referees. Provide list of eligible applicants to Beijing-based ALA

Manage the Post’s responsibilities for the ALA selection process

Receive MC report on list of eligible applicants

Set up ALA Ranking Panel in Beijing maximising other GOA stakeholder involvement

ALA Panel members assess eligible candidates against selection criteria

Other GOA agencies participate in the ALA selection process by invitation and/or provide comments on short-listed candidates

ASG manages final selection

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Ranking Panel

If requested, prepare assessments of candidates against selection criteria provided by AusAID

If requested, organise and participate in interviews of ALA candidates

Provide support to the ALA Ranking Panel in Beijing (and Ulaanbaatar for interviews if required)

Maintain records of ALA Ranking Panel deliberations, drafting Panel reports and all database entries (MC staff member travels to Beijing)

ALA Ranking Panel to review eligible applicants against selection criteria, and if required participate in interviews of candidates.

ALA Ranking Panel to submit final report with recommendations to Australian Scholarships Group (ASG) in Canberra.

Direct follow-up/relationship management with ineligible high profile candidates

process involving the ALA IDC

1.5: Pre-departure and mobilisation of ADS/ALA Awardees

Arrange comprehensive annual pre-departure briefings

Mobilise awardees including travel arrangements and advice to awardees regarding visas, and medicals and timely advice to institutions regarding travel

Monitor mobilisation arrangements using basic questionnaires and report results to AusAID in Annual Plan

Participate in pre-departure briefings

Receive information about mobilisation of awardees and reports on effectiveness of mobilisation arrangements in context of regular program reporting

Participate in pre-departure briefings

COMPONENT 2: MANAGEMENT OF IN-COUNTRY ELT PROVISION2.1: Selection process completed and contract negotiated for provision of pre-departure language training for ADS candidates if required

Arrange 9 months (6 months part-time/3 months full-time) ELT for approved candidates through a sub-contract

Receive reports on training outcomes Selected Candidates attend ELT training

MSGs monitor attendance

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Manage tender process based on Commonwealth Procurement Guidelines

Negotiate contract and pay fees direct

2.2: IELTS testing arranged and contracted with accredited provider

Negotiate provision of IELTS tests with authorised provider (that could be the ELT provider

Arrange student attendance

Monitor provider performance

2.3: Contracts monitored and certification that contractual requirements have been met

Monitor training service delivery and ensure continuous improvement approaches

Certify that provider has met its requirements under the sub-contract, including provision of quality reports

Receive certification with invoice

COMPONENT 3: ALUMNI SUPPORT AND POST-AWARD M&E

3.1: Alumni support mechanism developed

Respond to AusAID requests to develop alumni initiatives that complement broader corporate Australian Scholarships Alumni Network

Maximise use of alumni in program activities

Monitor Australian Scholarships Alumni Netweork developments and consider complementary Mongolia alumni initiatives for implementation by the Contractor

Engage with ALA alumni encouraging them to contribute to promotion and advocacy

GOM agencies invited to participate in alumni events

3.2: Post-award monitoring and evaluation conducted and meaningful reports on scholarship outcomes

Undertake regular post award monitoring building on CaBSAF M&E processes

Receive reports on AS outcomes and extract lessons to feed into Annual Strategic Reviews

Key GOM stakeholders receive reports on scholarship outcomes

Employers participate actively in

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produced Ensure alignment between scholarship M&E and broader AusAID corporate requirements

Report on scholarship outcomes In the Annual Plan

Verify alignment between scholarship M&E and broader corporate M&E requirements

post award M&E activities

COMPONENT 4: PROGRAM OFFICE MANAGEMENT AND REPORTING

4.1: Program Office established and personnel mobilised

Establish a Program Office and systems and mobilise personnel

Arrange for hand over of files, systems and other CaBSAF records

Arrange training on AusAID information management systems for selected MC staff as necessary

4.2: Monitoring and reporting on program implementation

Monitor and report to AusAID on program implementation

Submit specified reports on time Prepare for AusAID acquittals of

expenditure against approved activity budgets as appropriate

Provide Secretariat support for the Annual Strategic review process

Manage the contractual arrangements with the Contractor including financial acquittals

Monitor program implementation Manage an Annual Strategic Review

process to set strategic directions Commission as necessary a Mid-term

Review to assess program achievements and the efficiency and effectiveness of program implementation.

Cabinet Secretariat and any other invited GOM/GOA stakeholders participate in the annual strategic review

4.3: Program risks managed effectively Manage risks using a Risk Management Plan covering the Contractor’s responsibilities and report on risk management in the Annual Plan/Report

Review the Contractor’s risk management activities

Manage broader program risks in accordance with the overall broad risk management plan

4.4: Quality assurance systems and continuous improvement implemented

Develop and report on quality assurance systems

Review Contractor’s quality systems approaches in context of an annual

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Participate in annual Contractor Performance Assessment meeting with AusAID

Contractor Performance Assessment meeting

4.5: Program Completion report prepared

Prepare Program Completion Report in accordance with specifications as provided by AusAID

Review and approve the Project Completion report

4.6: Other tasks at the specific direction of AusAID implemented

Undertake other tasks commissioned by AusAID Beijing

Commission additional essential tasks and identify / negotiate resourcing implications

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Appendix 8: Templates/documents for the next phase of the scholarships program

The following CaBSAF documents specifically cited in the Design Document will available to bidders during the tender process. They will be updated and adapted by the incoming Contractor to meet program needs:

i) Expression of Interest (EOI) (Application Form) – Attachment 3 CaBSAF MOP (May 2007)

ii) Eligibility Screening – Eligibility Compliance Sheet – Attachment 4 CaBSAF MOP (May 2007)

iii) Selection Scoring – Selection Assessment Sheet – Attachment 5 CaBSAF MOP (May 2007)

iv) Notes for Eligibility and Selection Committees – Attachment 6 CaBSAF MOP (May 2007)

v) Interview Format and Selection Criteria, IELTS-Qualified General (and University) Candidates – Attachment 7 CaBSAF MOP (May 2007)

vi) Agreement - CaBSAF and Mongolian Government Agency – Attachment 9 CaBSAF MOP (May 2007)

vii) Scholar’s Agreement Between ADS/De Scholars and Employing Mongolian Government Agencies – Attachment 10 CaBSAF MOP (May 2007)

viii) CaBSAF Guidelines for Developing Action Plans

ix) ADS Scholar Portfolio – Attachment 12 CaBSAF MOP (May 2007)

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Appendix 9: Indicative personnel roles & terms of reference for specialist advisers

The following tables summarise the roles of Contractor staff based on the indicative Program Design staff profile and provide terms of reference for specialist advisers.

A. Indicative program office personnel roles

Program Manager (International – Part time)

Responsible for the oversight and direction of the Program

Participate in all key discussions with AusAID

Approve all program documentation prior to submission

Provide technical direction and advice to the Deputy Program Manager and team as required, including crisis management, risk analysis and quality assurance

Support the work of the Program Coordinating Committee and the Annual Strategic Review

Oversee and appraise the work and inputs of all technical experts engaged by the Program

Manage the further development of M&E and alumni strategies in response to emerging AusAID corporate initiatives/requirements

Deputy Program Manager (Local – Full time)

Day-to-day program management reporting to the Program Manager

Administration of the scholarship cycle

Manage pre-departure briefings for Australian Scholarships awardees

Deputise for the Program Manager when not in Mongolia

Maintain sound working relationships with targeted Category 1 ministries/agencies and the Ministry Working/Selection Groups

Liaise with other organisations including Australian tertiary educational institutions

Manage the Program Office including administrative systems and procedures ensuring that accounting, record keeping and reporting requirements are met in a timely manner

Participation in applicant ranking and selection processes

Crisis management

Risk analysis

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Program Support Officer (Local – Full time)

Under the supervision of the Deputy Program Manager support the DPM in the administration of activities relating to

o the mobilising of selected Australian Scholarships applicants, (ii) capacity building activities programmed for implementation, (iii) the small community development activity scheme, and (iv) the CaBSAF office,

o entry of data and information onto the Program database and SIMON.

o publicising the Program including within the targeted ministries

o working with the targeted ministries in developing HRD planning priorities and in meeting agreement obligations

o monitoring the implementation of action plans

o provision of course advice

The following tables provide indicative terms of reference for short-term specialist advisers to be engaged by the Contractor.

Academic Adviser

Status: International

Duration: 30 person days per annum (indicative)

Responsibilities: The Specialist will work with the Program Manager, with program staff and with organisations in Mongolia to review and implement selection criteria for ADS scholars; in the assessment and ranking of candidates based on the reports and applications; and in interviewing candidates.

As a member of the Category 2 Screening/Selection Panel advise on detailed short-listing and selection criteria, the examination and ranking of applications against criteria and contribute to reports for the PCC.

Participate in the assessment and ranking of candidates based on the reports and applications.

Provide direct support to scholars relating to their learning and language needs.

Liaise with providers of in-country English language tuition and evaluate the activities of the sub-contracted ELT provider on an annual basis.

Other related tasks that may reasonably be required by the Program Manager from time to time.

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The Specialist will take a consultative and leading role in discharging his/her responsibilities to ensure support and selection processes of the highest professional standard.

Experience &Qualifications:

Demonstrated experience in a professional role in the assessment of qualifications and placement of students in Australian tertiary courses.

Tertiary qualifications in education or a related discipline or equivalent significant experience in a relevant area.

Excellent interpersonal and liaison skills and experience in working in a cross-cultural setting.

Excellent presentation and communication skills.

Sound knowledge of tertiary education courses in Australia.

Experience in working in a developing country.

HRD Adviser

Status: Local or international

Duration: Short-term inputs

Responsibilities: Provide HRD analysis, planning and capacity building assistance to targeted Ministries within the context of each agency’s needs.

Assist targeted Ministries to develop their HRD planning to ensure that the scholarships within these Ministries are focused on fields that reflect national priorities and are appropriate for longer term study in Australia.

Periodically review HRD practices in targeted Ministries to ensure that appropriate HRD and selection processes are in place and that scholarships are targeting the right people.

Ensure gender and development analysis in all activities, including alumni.

Assist in the periodic review and continuous improvement of agency and scholar agreements.

Work with relevant staff in targeted Ministries to facilitate best practice action planning approaches that match agencies’ developmental needs as well as the subsequent development and implementation of these action plans.

Work with targeted Ministries to establish a process to achieve

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formal agreement concerning each participating agency’s commitment to implementing action plans for the transfer of each graduate’s knowledge and skills.

Assist in planning appropriate and realistic re-entry strategies for trainees to maximise transfer of knowledge and skills to targeted agencies.

Advise on strategies to use feedback data from M&E processes to improve all aspects of the capacity building elements of the program.




Demonstrated experience in a training or Human Resource Development role and on gender issues.

Tertiary qualifications (preferably post-graduate) or equivalent significant and relevant experience in an area such as Human Resource Development or training.

Demonstrated successful experience as a mentor to those with whom he or she works.


Excellent presentation and communication skills.

Monitoring and Evaluation Adviser

Status: Local or international

Duration: Short-term inputs

Responsibilities: The Adviser will work with the Program Manager, with Program Office staff and with targeted organisations in Mongolia to further develop and implement the approved M&E strategy.

The Specialist will take a consultative and leading role in M&E to ensure processes and outcomes of the highest professional standard.

Assess the M&E implications of the program’s targeting strategies and prepare advice and refine indicators to assist in achieving program objectives.

Refine and implement strategies for the monitoring and evaluation

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of individual Action Plans.

Expand and refine current M&E questionnaires to incorporate AusAID’s evolving M&E strategies.

Design and assist in conducting a short impact assessment at the conclusion of the 5-year program, consistent with the approved M&E strategy for the program and AusAID requirements.

Developing an integrated program database to facilitate reporting and analysis.

Assist in producing meaningful M&E reports including post award surveys that meet AusAID’s accountability and aid quality objectives and that take into account AusAID’s data requirements for the overall Australian Scholarships program.

Work with program staff and relevant staff of target ministries to ensure their capacity to effectively monitor and evaluate the implementation of the program and broader ministry HRD plans.

Assist in policy and research studies as required.



Demonstrated experience in a professional role in which monitoring, evaluation and/or research skills were required and used within a HRD environment.

Tertiary qualifications or equivalent significant and relevant experience in an area such as education, statistics or other discipline where human performance measurement or assessment skills are required.


Competence in word processing and use of spreadsheets.


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Appendix 10: Student Survey on Australian Scholarships Contractor Performance 200x

The Australian Scholarships Contractor provides administrative support to ADS awardees at key points in the ADS cycle. ADS awardees are a key stakeholder in this process and we seek your feedback on the effectiveness and efficiency of the pre-departure support services provided. Please take a few minutes to complete the three evaluation questions below. We also welcome any additional comments that you would like to include.

Scholars for the 200x Intake are invited to complete and return this questionnaire by xxxx February. Please forward your response by return email to xxxxxxxxxxxxr, at xxxxxxxx or by fax xxxxxxxxx.5

Name of Student (Optional):

Name of Institution:

Departure Date: Name of Course:

1. Placement preparations: The Australian Scholarships Contractor was responsible for supporting your research on course and tertiary institution options; providing assistance and information for you to finalise your nomination form; liaison with universities to secure your placement; and liaison with AusAID to finalise your Letter of Offer. Please indicate your satisfaction with the assistance provided to you by the Contractor and provide any additional comments in the space provided

Highly Satisfactory Satisfactory Not satisfactory

2. IELTS Testing Arrangements: The Australian Scholarships Contractor was responsible for arranging IELTS testing. The Australian tertiary institutions used the test results to determine your suitability for placement at your preferred course/institutions. Please indicate your satisfaction with the arrangements for the test (eg. registration, instructions on test location and time, venue conditions, etc.) and provide any additional comments in the space provided:6

5 This Survey covers ADS scholars. It could be adapted to help assess the Contractor’s performance in relation to administrative support provided to ALAS and other scholarship holders funded by AusAID.

Comments:

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Mobilisation: The ADS Support team was responsible for: providing assistance and

3. Mobilisation: The Australian Scholarships Contractor was responsible for: providing assistance and information for you to prepare your student visa application; for arranging your health check; and for finalising your airline travel arrangements. (Your institution is responsible for arranging your airport pick-up service and your temporary accommodation requirements.) Thinking about these activities please indicate your satisfaction with the assistance provided to you by the Contractor and provide any additional comments in the space provided:


6 As worded, this question assumes that the Contractor will sub-contract IELTS testing. Should the Contractor be licensed to undertake the IELTS test or should the sub-contracted English language provider be licensed to conduct IELTS testing, the question will need to be reworded.

Comments:

Comments:

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