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Document of the World Bank
Report No: ICR00001332
IMPLEMENTATION COMPLETION AND RESULTS REPORT (IBRD-7260)
ON
A LOAN
IN THE AMOUNT OF US$2.0 MILLION
TO THE
REPUBLIC OF COLOMBIA
FOR A
TECHNICAL ASSISTANCE LOAN
TO SUPPORT THE SECOND PROGRAMMATIC LABOR REFORM AND SOCIAL STRUCTURAL ADJUSTMENT LOAN (PLaRSSAL II)
December 18, 2009
Human Development Sector Management Unit Colombia and Mexico Country Management Unit Latin America and the Caribbean Region
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CURRENCY EQUIVALENTS (Exchange Rate Effective December 18, 2009)
Currency Unit = Colombian Peso
COP 2,026.9= US$1
FISCAL YEAR January 1 – December 31
ABBREVIATIONS AND ACRONYMS
BEP CAS
Periodic Economic Benefit (Beneficio Económico Periódico)Country Assistance Strategy
CCF Family Compensation Funds (Cajas de Compensación Familiar) CCT Conditional Cash Transfers CONPES Nacional Council of Economic and Social Policy (Consejo Nacional de Política Económica y
Social) DANE National Administrative Department of Statistics (Departamento Administrativo Nacional de
Estadística) DEPP Department for the Evaluation of Public Policies (Dirección de Evaluación de Políticas
Públicas)DNP National Planning Department (Departamento Nacional de Planeación)FMRs Financial Monitoring Reports FONADE FSP
National Fund for Development Projects (Fondo Financiero de Proyectos de Desarrollo) Solidarity Pension Fund (Fondo de Solidaridad Pensional)
IADB Inter-American Development Bank ICBF ICONTEC ICR ISR
Colombian Institute for Family Welfare (Instituto Colombiano de Bienestar Familiar) Colombian Institute of Technical Standards and Certification (Instituto Colombiano de Normas Técnicas) Implementation Completion Report Implementation Status and Results Report
MDG MERPD
Millenium Development Goals Mission for the Desing of a Poverty and Inequality Reduction Strategy (Misión para el Diseño de una Estrategia para la Reducción de la Pobreza y la Desigualdad)
MHCP Ministry of Finance and Public Credit MIS MEN MPS PADE
Management Information System Ministry of Education (Ministerio de Educación Nacional)Ministry of Social Protection (Ministerio de Protección Social)Program for Direct Labor Support (Programa de Apoyo Directo al Empleo)
PlaRSSAL PETS QAG PHRD PILA PIU RUAF SCAFT SCS SENA SGP
Programmatic Labor and Social Structural Adjustment Program Public Expenditure Tracking Surveys Quality Assurance Group Japan Policy and Human Resources Development Fund Integrated Contribution Payment System (Planilla Integrada de Liquidación de Aportes) Project Implementation Unit Unified Registry of Affiliates (Registro Unico del Afiliado) System for the Management of Quality for Job Training Institutions (Sistema de Gestión de la Calidad para Instituciones de Formación para el Trabajo) Social Control System National Service for Job Training (Servicio Nacional de Aprendizaje) Mechanism for revenue sharing between national and local governments (Sistema General de Participaciones)
SIGOB Information System of Management and Evaluation of Presidential Goals (Sistema de Gestión y Seguimiento a las Metas del Gobierno)
SINERGIA Nacional System for Results Evaluation (Sistema Nacional de Evaluación de Resultados de la Gestión Pública)
SISBEN System for the Selection of Programs’ Beneficiaries (Sistema de Selección de Beneficiarios de Programas)
SISPRO SNFT
Information System of the Social Protection System (Ministry of Social Protection) National Job Training System (Sistema Nacional de Formación para el Trabajo)
TAL UGPP
Technical Asístanse Loan Agency for the Collection of Pension and Social Protection Para-fiscal Contributions (Unidad Administrativa Especial de Gestión Pensional y Contribuciones Parafiscales de la Protección Social)
Vice President:Pamela Cox
Country Director:Gloria Grandolini
Sector Manager:Helena Ribe
Project Team Leader: Aline Coudouel
ICR Team Leaders:Diana Cardenas and Aline Coudouel
COLOMBIA SOCIAL SAFETY NET PROJECT
CONTENTS
A. Basic Information........................................................................................................ i B. Key Dates.................................................................................................................... i C. Ratings Summary........................................................................................................ i D. Sector and Theme Codes............................................................................................ ii E. Bank Staff................................................................................................................... ii F. Results Framework Analysis...................................................................................... ii G. Ratings of Project Performance in ISRs................................................................... iv H. Restructuring (if any)................................................................................................ iv 1. Project Context, Development Objectives and Design............................................... 1 2. Key Factors Affecting Implementation and Outcomes .............................................. 5 3. Assessment of Outcomes ............................................................................................ 9 4. Assessment of Risk to Development Outcome......................................................... 17 5. Assessment of Bank and Borrower Performance ..................................................... 18 6. Lessons Learned........................................................................................................ 20 7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners........... 21 Annex 1. Project Costs and Financing.......................................................................... 22 Annex 2. Outputs by Component.................................................................................. 23 Annex 3. Economic and Financial Analysis ................................................................. 37 Annex 4. Bank Lending and Implementation Support/Supervision Processes............. 38 Annex 5. Summary of Borrower’s ICR and/or Comments on Draft ICR..................... 40 Annex 6. Comments of Co-financiers and Other Partners/Stakeholders...................... 56 Annex 7. List of Supporting Documents ...................................................................... 57
MAP
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A. Basic Information
Country: Colombia Project Name: CO TAL to support the 2nd PSAL
Project ID: P088857 L/C/TF Number(s): IBRD-72600
ICR Date: 12/18/2009 ICR Type: Core ICR
Lending Instrument: SIL Borrower: GOVERNMENT OF COLOMBIA
Original Total Commitment:
USD 2.0M Disbursed Amount: USD 1.9M
Revised Amount: USD 1.9M
Environmental Category: C
Implementing Agencies: Ministry of Social Protection (Ministerio de Proteccion Social, MPS) Ministry of Education (Ministerio de Educacion Nacional, MEN) National Planning Department (Departamento Nacional de Planeacion, DNP)
Cofinanciers and Other External Partners: B. Key Dates
Process Date Process Original Date Revised / Actual
Date(s)
Concept Review: 07/01/2004 Effectiveness: 03/17/2005 03/17/2005
Appraisal: 07/19/2004 Restructuring(s):
Approval: 11/04/2004 Mid-term Review: 10/23/2006 10/20/2006
Closing: 12/29/2007 06/30/2009 C. Ratings Summary C.1 Performance Rating by ICR
Outcomes: Satisfactory
Risk to Development Outcome: Low or Negligible
Bank Performance: Satisfactory
Borrower Performance: Satisfactory
C.2 Detailed Ratings of Bank and Borrower Performance (by ICR) Bank Ratings Borrower Ratings
Quality at Entry: Satisfactory Government: Satisfactory
Quality of Supervision: Satisfactory Implementing Agency/Agencies:
Satisfactory
Overall Bank Performance:
Satisfactory Overall Borrower Performance:
Satisfactory
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C.3 Quality at Entry and Implementation Performance IndicatorsImplementation
Performance Indicators
QAG Assessments (if any)
Rating
Potential Problem Project at any time (Yes/No):
No Quality at Entry (QEA):
None
Problem Project at any time (Yes/No):
No Quality of Supervision (QSA):
None
DO rating before Closing/Inactive status:
Satisfactory
D. Sector and Theme Codes
Original Actual
Sector Code (as % of total Bank financing)
Central government administration 68 68
Sub-national government administration 32 32
Theme Code (as % of total Bank financing)
Education for all 22 22
Education for the knowledge economy 11 11
Improving labor markets 22 22
Other social protection and risk management 22 22
Social safety nets 23 23 E. Bank Staff
Positions At ICR At Approval
Vice President: Pamela Cox Pamela Cox
Country Director: Gloria M. Grandolini Isabel M. Guerrero
Sector Manager: Helena G. Ribe Helena G. Ribe
Project Team Leader: Aline Coudouel Wendy Cunningham
ICR Team Leader: Aline Coudouel
ICR Primary Author: Diana Isabel Cardenas
Aline Coudouel F. Results Framework Analysis
Project Development Objectives (from Project Appraisal Document) The Project would assist the Department of National Planning (Departamento Nacional de Planeación, DNP) and the Ministries of Social Protection (Ministerio de la Protección Social, MPS) and Education (Ministerio de Educación Nacional, MEN) to improve their
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knowledge, develop effective instruments, and strengthen their ability to carry out reforms supported by the Programmatic Labor and Social Structural Adjustment Loan (PLaRSSAL). The Project seeks to strengthen the capacity of the MPS to implement a coherent social protection reform that encompasses employment, training, health and social assistance for the poor and vulnerable (Component 1); MEN to implement education decentralization reforms mandated by Law 715, analyze primary and secondary school integration and evaluate the school readiness of 5-year old children (Component 2); and DNP to institutionalize periodic evaluation and monitoring of social programs for citizens' oversight and feedback (Component 3). Revised Project Development Objectives (as approved by original approving authority) n/a (a) PDO Indicator(s)
Indicator Baseline Value
Original Target Values (from
approval documents)
Formally Revised Target Values
Actual Value Achieved at
Completion or Target Years
Indicator 1 : Increase in the number of social/labor programs under DNP, MSP, and MEN being systematically and rigorously monitored, evaluated, and discussed with the public
Value quantitative or Qualitative)
3 13 13+
Date achieved 03/17/2005 06/30/2009 12/28/2007
Comments (incl. % achievement)
The activities of this Project have contributed to the implementation and dissemination of a series of evaluations of core social/labor programs under DNP, MPS, and MEN. The list of operational or impact evaluation is provided in Annex 2.
(b) Intermediate Outcome Indicator(s)
Indicator Baseline Value
Original Target Values (from
approval documents)
Formally Revised
Target Values
Actual Value Achieved at
Completion or Target Years
Indicator 1 : Implementation of the recommendations on the roles of different concerned agencies based on the guidelines proposed in the National Training System report
Value (quantitative or Qualitative)
0%
100% (design of enabling regulations, pilot testing of the implementation of accreditation
100%
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system of private training firms)
Date achieved 03/17/2005 06/30/2009 10/02/2008 Comments (incl. % achievement)
The government created the Quality Training Commission, that has defined quality norms and criteria for 7 occupational sectors, the Ley de Talento Humano and the legislation on the accreditation system were approved.
Indicator 2 : Assessment of the system of revenue transfers for education to territorial entitiesValue (quantitative or Qualitative)
0% 100% 100%
Date achieved 03/17/2005 06/30/2009 06/30/2009
Comments (incl. % achievement)
The methodological report, supported by this Project, has been presented, discussed and finalized. The methodology is based on public expenditure tracking surveys, facility surveys, longitudinal analysis using administrative data and household surveys.
Indicator 3 : Design, pilot testing, and implementation of a Social Control System Value (quantitative or Qualitative)
0% 100% (Annual sessions)
100%
Date achieved 03/17/2005 06/30/2009 10/02/2008 Comments (incl. % achievement)
The government has implemented a series of tools, including the SIGOB information system that updates the public on government central goals, provided support to Colombia Líder, and implemented a perception survey.
G. Ratings of Project Performance in ISRs
No. Date ISR Archived
DO IP Actual
Disbursements (USD millions)
1 12/15/2004 Satisfactory Satisfactory 0.00 2 04/29/2005 Satisfactory Satisfactory 0.15 3 12/30/2005 Satisfactory Satisfactory 0.23 4 11/10/2006 Satisfactory Satisfactory 0.65 5 02/24/2007 Satisfactory Satisfactory 0.75 6 09/10/2007 Satisfactory Satisfactory 1.19 7 04/24/2008 Satisfactory Satisfactory 1.59 8 12/01/2008 Satisfactory Satisfactory 1.80 9 04/06/2009 Satisfactory Satisfactory 1.91
10 06/30/2009 Satisfactory Satisfactory 1.94 H. Restructuring (if any) Not Applicable
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I. Disbursement Profile http://projportal.worldbank.org/shared/SiteReso urces/ICR/DISB_CHART/P088857.png
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1. Project Context, Development Objectives and Design
1.1 Context at Appraisal A. Country and sector issues At the time of appraisal, Colombia was beginning to recover from one of its worst economic crises. The economy had begun to recover with a growth rate of around 3 percent annually in the early 2000s, the unemployment rate had declined by 3 percentage points to 14 percent in 2003, the coverage of social programs continued to increase, and the Government’s policy to address civil violence started to have some success. Despite these positive outcomes, Colombia continued facing important social challenges, as poverty was still very high, and a considerable proportion of families still did not have adequate protection against financial losses from illness, unemployment and other socioeconomics shocks, increasing the burden on the country’s still inadequate social protection system. School attendance had increased, but the country lagged behind countries at similar levels of economic development, both in the level and in the quality of its education and training. The internal security situation also absorbed a large portion of the budget and had a negative impact on social outcomes. To overcome these challenges, the Government of Colombia implemented an ambitious institutional, labor and social reform agenda to increase employment, improve education and training, and strengthen human capital accumulation. That agenda was supported by the World Bank with the series of budget support operations1. By 2004, the Government: i) had created a social safety net to protect the poorest; ii) had created the Ministry of Social Protection with the mandate to increase the efficiency and coordination of the social protection system; iii) was implementing the decentralization law (Law 715 of 2001) that modified the formula to transfer education and health resources to departments and municipalities in order to promote efficiency and service quality; and iv) had enacted the labor reform Law 7892.
B. Rationale for Bank assistance The implementation of the ambitious social reform agenda developed by the Colombian Government to overcome the social impacts resulting from the 1999 crisis was challenging, because of the breadth of reforms and their high technical content. A strong partnership between the Government and the Bank over the past few years has been instrumental in supporting the
1 In addition to the TAL, the Bank supported the creation and implementation of the Ministry of Social protection, the expansion of coverage of social protection services, the creation of the targeting policy for the nutrition programs of the ICBF, the implementation of labor and training reforms, progress in the implementation of the health reform (Law 100), the acceleration of education reforms, and the promotion of greater transparency and social control of programs.
2 Report 26512-CO for the First Programmatic Labor Reform and Social Structural Adjustment (Ln. 7193) and report 29590-CO for the second Programmatic Labor Reform and Social Structural Adjustment Loans (Ln. 7259).
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design and implementation of reforms. This partnership has been based on a close technical rapport and a programmatic lending program. In particular, the Bank had supported Colombia in the implementation of the social reform agenda through a series of operations, including the Human Capital Protection Project (Ln. 7050), the Social Sector Adjustment Loan (Ln. 7134) and the first of a series of Programmatic Labor Reform and Social Structural Adjustment Loans PLaRSSAL I (Ln. 7193). This Project was designed within the context of this broader support to the implementation of reforms in the social sectors, with an objective to continue to strengthen the institutions responsible for the design and implementation of social reforms. At the time of preparation of the second PLaRSSAL, the Government requested additional technical assistance to inform the design, promote the implementation and monitor the reforms. This Project was requested by the Government to complement the activities funded by a PHRD grant obtained for the preparation of the second PLaRSSAL (effective April 15, 2004) and the technical assistance provided by the Inter-American Development Bank (IDB). Through the Series of Programmatic Labor Reform and Social Structural Adjustment, the Bank supported the implementation of the policies actions described above, which required the development of instruments that were financed by this Project. This includes the creation of a unified information system to facilitate payment of social security contributions, the creation of the accreditation system for training institutions, and the creation of mechanisms to channel citizens’ feedback on government performance. In addition, the activities supported under component 1 led to the identification of the needs for an additional component in the investment operation supporting the Familias en Acción program (Ln.7337) to design, pilot and implement a comprehensive M&E system for the social protection system. C. Higher level objectives to which the Project contributed The World Bank Group’s Country Assistance Strategy (CAS) for Colombia, approved by the Executive Directors on January 9, 2003 was based on three pillars: economic growth, building quality government, and sharing the fruits of growth. This Project contributed to the CAS objectives by: i) building quality government through the strengthening of the Ministries of Social Protection
and Education, and the National Planning Department; development of information systems to increase the efficiency and consolidate elements of the social protection system; improvement of administrative registries for school enrolment and attendance monitoring; and systematic evaluation of social programs and dissemination of findings for greater citizens’ oversight, and
ii) sharing the fruits of growth through the strengthening of the Ministry of Social Protection’s capacity to manage a more efficient, inclusive and equitable social protection system and promote greater coverage of social insurance.
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1.2 Original Project Development Objectives (PDO) and Key Indicators The Project objective was to assist the Department of National Planning (DNP) and the Ministries of Social Protection (MPS) and Education (MEN) to improve their knowledge, develop effective instruments, and strengthen their ability to carry out reforms supported by the Second Programmatic Labor and Social Structural Adjustment Loan (PLaRSSAL II).
Key Outcome and Intermediary Indicators
Outcome indicator: Increase in number of social/labor programs under DNP, MPS, and MEN being systematically and rigorously monitored, evaluated and discussed with the public for citizens’ oversight and feedback-relative to baseline
Intermediary results indicators: (1). Component 1: Implementation of the recommendations about the different roles of concerned agencies based on the
guidelines proposed in the National Training System report.
(2). Component 2: Assessment of the system of revenue transfers for education for territorial entities under Law 715.
(3). Component 3: Design, pilot testing, and implementation of a Social Control System (SCS) for Colombia.
1.3 Revised PDO and Key Indicators The Project Development Objective and Key Indicators were not revised during the course of the Project. 1.4 Main Beneficiaries The direct beneficiaries of the Project were the National Planning Department (DNP), the Ministry of Social Protection (MPS), and the Ministry of Education (MEN). The ultimate beneficiaries of the Project were the families and individuals who benefit from improved quality of education, greater efficiency and effectiveness of core social programs, and improved sustainability of social service provision (health, education and social protection). 1.5 Original Components The Project had the following three components: technical assistance to the Ministry of Social Protection (Component 1), technical assistance to the Ministry of Education (Component 2), and technical assistance to the National Planning Department (Component 3). Component 1: Technical Assistance to the Ministry of Social Protection. Its objective was to strengthen the Ministry’s capacity to implement a coherent social protection reform that
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encompassed employment, training, health and social assistance for the poor and vulnerable. This component covered five key areas:
(i) labor market policies such as training, wage subsidies, and social assistance to the unemployed;
(ii) social assistance to vulnerable groups including young children, adolescents and the elderly poor;
(iii)a financial model of the Social Protection System (SPS); (iv) regional dimension of the SPS; and (v) monitoring and evaluation systems.
Component 2: Technical Assistance to the MEN. The objectives of this component were to strengthen the MEN’s capacity to implement key reforms with a focus on four specific areas:
(i) Implementation of the education reform provisions of Law 715; (ii) Analysis of the mechanisms for revenue sharing between national and local governments
(Sistema General de Participaciones, SGP); (iii)Evaluation, for different types of schools, of the organizational and pedagogical effects of
the integration of primary and secondary education in the same school and to propose actions for improvement; and
(iv) Evaluation of the abilities that five year old children should have in language, mathematics, natural science and civic education before beginning the first grade of primary education.
Component 3: Technical Assistance to DNP. Support the DNP’s capacity to strengthen citizen monitoring, evaluation, transparency and social accountability, in particular by supporting:
(i) An evaluation of the mechanisms for revenue sharing between national and local governments (SGP), and
(ii) The design and implementation of the social control system developed by the DNP. 1.6 Revised Components The Project’s components were not revised during implementation.
1.7 Other significant changes There were two significant changes to the Project3:
3 During the implementation of the Project, the Government also requested the preparation of an amendment to the legal agreement that would allow for greater flexibility in the selection of a Fiduciary Agent through a competitive process. The amendment was prepared and approved by the Country Director in June 2006, but the Government decided not to proceed with the amendment.
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(1) At the time of preparation, the activities related to: a) the management and implementation processes of the Component 1 in the Ministry of Social Protection; b) the coordination of all Project activities, and c) the consolidation of information about financial and disbursement processes, were in charge of the Project Implementation Unit (PIU) which existed in the MPS (this PIU was managing other IDB Projects, and was deemed adequate by the Bank after an assessment of its capacity by the Financial Management team), for which the MPS hired an additional support staff. In 2006, when the IDB Projects and their PIU were closed, the Ministry decided not to create a new implementation unit for this Project, but rather to mainstream the management of the Project, as preferred by the World Bank under the auspice of a Project manager in the front office of the Technical Vice-Minister of Social Protection. In April 2008, the Technical Vice-Minister of Social Protection himself took the responsibilities of Project Coordinator. While the mainstreaming of Project management in the Ministry resulted in some delays, it also is an important improvement in the Project, as it ensures greater coordination with other programs and activities, greater alignment with priorities, and builds the capacity of the Ministry itself to manage and implement projects. These are important elements for the sustainability of the reforms informed by the Project, and the arrangement preferred by the Bank.
(2) The closing date for the Project was originally December 30, 2007. The Government requested an 18 month extension, until June 30, 2009, because of delays in the execution of the first and third components of the Project. These delays were caused by a series of factors detailed below, most importantly by the institutionalization of implementation arrangements in the Ministry of Social Protection mentioned above and technical difficulties in the definition and contracting of the core activity of Component 3.
2. Key Factors Affecting Implementation and Outcomes
2.1 Project Preparation, Design and Quality at Entry
The Project design was consistent and coordinated with other analytical work and lending operations that supported the implementation of social and labor reforms during 2002-20064.Indeed, the Project was prepared during the period between the First PLaRSSAL I (Ln.7193) and Second PLaRSSAL II (7259), with the objective to inform the reforms, reduce implementation risks and promote the sustainability of reforms. Hence, the Project incorporated lessons from previous technical and financial assistance in Colombia, and was an integral part of the broader policy dialogue between the Government of Colombia and the Bank on the issues of the social and labor reforms. This Project was requested by the Government of Colombia, with a view to fill important analytical or technical gaps identified during the first phase of implementation of the PLaRSSAL I. This contributed to high degrees of ownership within the agencies, a critical element for the successful implementation of Technical Assistance projects. In terms of design, the activities
4 Social Sector Adjustment Loan Project (Ln. 7134), PLaRSSAL I (Ln. 7193), PLaRSSAL II (Ln. 7259).
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supported by the Project were identified and were consistent with the reforms supported by the PLaRSSAL Program, and the complete match between the needs and the activities ensured a very high relevance by the implementing agencies. The statement of development objectives for each component was appropriate in term of the nature of the activities of the Project. Project design was complex, with three implementing agencies and numerous activities that required coordination and collaboration. However, greater collaboration and coordination between the three implementing agencies – the Ministry of Social Protection, the Ministry of Education, and the National Planning Department – was also one of the key objectives of this Project. The assessment of risk was comprehensive and accurate for all components (see section 2.2 on implementation).
2.2 Implementation Technical implementation. As presented below in the section on outcomes, the Project reached its objectives of strengthening the capacity of three core Government agencies in the design and implementation of an ambitious social reform agenda. On the technical side, the Bank provided very close supervision and assistance to the agencies for the definition of Terms of Reference (TORs), the selection of consultants, and the review of their reports and recommendations. This, together with the strong interest and ownership of the agencies, led to a consistently high level of quality in the outputs supported by this Project. Many of the analysis and recommendations led directly to policy decisions, decrees, laws or regulations, highlighting their relevance and impact. In addition, throughout project implementation, the implementing Government agencies, with support from the World Bank, ensured inter-agency discussions and collaboration on key issues. As mentioned earlier, greater coordination among agencies is a key element of successful second-generation reforms, which focus on building systems and ensuring coherence, compatibility and coordination. While the dialogue between different Government institutions was not always easy, especially on complex reforms such as labor market reforms, training, as well as old-age pension, the Project’s activities provided an important platform for engaging in such dialogue. On the technical front, the only important difficulty resided in the design of the evaluation to assess the system of transfer of revenues to territorial entities and the contracting of the related consultancy (Component 3). The complexities of the subject to be evaluated and the mix of methodologies required to undertake the evaluation led to a longer process of elaboration of TORs than initially anticipated. In addition, during the procurement process, clarifications were requested by competing firms, which lengthened the selection process. Finally, the evaluation itself required more time than anticipated, because of the complex data collection and analysis process. The original timetable was very unrealistically ambitious, especially in view of the institutional coordination which was required and which turned out to be a key factor for the success of the Project.
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Project management and administration. In terms of the Project’s management, the main challenge faced during the implementation of the Project related to the coordination between the implementing agencies and delays in execution. The Operational Manual had defined rules and processes for inter-institutional coordination, but these did not prove sufficient and inter-institutional articulation was weak. This was partly due to weaknesses in the Project management group in the MPS. Another element which resulted in delays in implementation was the 2006 decision by the Government to prohibit the hiring of consultants during the pre-electoral period to avoid governance issues (known as Ley de Garantias). This law covered the four months prior to the elections held in May 2006. Procurement and financial management delays were overcome with the support of the Bank team which organized mini-clinics to train the Project team in application of Bank processes and provided intensive hands-on support. Component 1 faced additional delays related to two factors. First, once the MPS closed the IDB Projects, the implementation unit for this component was mainstreamed within the Ministry, as considered good practice by the World Bank, and put under the auspices of the Technical Vice-Minister. There were three successive changes in the Project Coordination over a period of a year, resulting in delays in the preparation of TORs, renewal of the contract with the National Fund for Development Projects (FONADE) for the financial management of the Project, and contracting of consultancies and services. Second, at the beginning of 2008, the MPS lacked the fiscal space to execute the Project. This was the result of the Reform to the National Budget, which eliminated the option for entities to set funds from a fiscal year aside for execution in the following year (Reservas Fiscales) in December 2007. The Technical Vice-Minister was eventually able to reallocate resources within the entity to fully execute the planned activities for the second semester of 2008 and first semester of 2009. Once the challenges were overcome, the agency managed to complete the implementation of the Component and reach its development objectives and targets in a satisfactory manner. In terms of costs, the actual administrative costs for the Project was nearly US$160,000 (around 8 percent of the total amount), four times the initially planned costs, as presented in Annex 1. The initial costs were largely under-estimated because of the unexpected mainstreaming of the administration of the Project within the MPS (while costs were orignilly expected to be covered by the project unit managing the IDB projects), the extension of the Project, and the lack of allocation of resources for the administration of Components 2 and 3. Even though the implementation of the Project experienced delays, at the time of its closing, the agencies had achieved its objectives, met its targets and executed 97 percent of resources (the 3 percent of funds that were not disbursed reflects important changes in the currently exchange rate, especially towards the end of the implementation of the Project). 2.3 Monitoring and Evaluation Design, Implementation and Utilization M&E Design. Some indicators of the first component were not fully defined and loosely formulated. In addition, even when the definition of intermediate outcome indicators was more adequate, the data collection instruments required to monitor progress were not always available during implementation. The M&E would have benefitted from a more rigorous design, with clear objectives, outcome and results indicators, and data collection mechanisms.
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M&E Implementation. In addition to monitoring indicators, the Bank team closely supervised the activities supported by the operation, as well as follow up on their use for policy design and/or implementation and for agency coordination as measures of their impact. Throughout the supervision, the Bank organized small workshops or seminars to review the findings of the activities with the core actors of the relevant sector, with a view to ensure their use in policy making. M&E Utilization . While the Project document itself faced the limitations mentioned above, the three implementing agencies continued their important efforts to increase their technical capacity to monitor and evaluation the implementation of its social and labor reforms during the Project period. Recently, the Inter-Institutional Evaluation Committee (supported by its secretariat in the National Planning Department) has agreed on an agenda of evaluations. Half of this agenda focuses on the social and labor programs under the MPS or the MEN, reflecting strong efforts by these agencies to monitor and evaluate their programs. The results of some of these evaluations have promoted discussions on a new wave of social and labor reforms which would address problems identified by the evaluations related to the coverage of the pension system, the alignment of health services package, and the expansion and qualification of early childhood development services. Furthermore, the MPS has led important efforts to design an integrated information system for social protection (articulated around the RUAF, a registry with all beneficiaries of all social programs), which opens the door for greater articulation, coordination and efficiency.
2.4 Safeguard and Fiduciary Compliance Safeguard Compliance. The Project did not trigger any safeguards, so no safeguard policies applied.
Fiduciary Issues.
The implementing agencies (MPS, MEN and DNP respectively for Components 1, 2 and 3) complied with the Bank’s fiduciary requirements. The executing agencies maintained an adequate internal control and accounting system. By June 30, 2009, the entities had committed 96 percent of the total resources, and effectively paid 97 percent of those commitments (the rest was paid during the grace period). By the time of this report, the entities complied with all the actions agreed during the last supervision mission performed during the first semester of 2009. The final audit report was unqualified.
The high rotation in the project management team resulted in delays in the presentation of procurement plans. Throughout the project, the Bank provided very intense hands-on support to the management team, which allowed for the quick resolution of minor issues as they arose. Four ex-post reviews were undertaken during the implementation of the Project, with satisfactory results.
2.5 Post-completion Operation/Next Phase
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During the implementation of this Project, in 2006, the Government also requested the World Bank to analyze informality in labor markets with a view to explore policy options for greater workers’ welfare and firm productivity. The results of the analysis were widely discussed at high-level policy forums in Colombia, and some of the options proposed are currently contemplated for the next wave of reforms. In 2008, the World Bank has also developed a programmatic Non-Lending Technical Assistance that focuses on helping the Government in designing selected elements of the various branches of its social protection system – namely social promotion (targeted at the poorest), response to the crisis, social insurance coverage, and labor markets. The program focuses mostly on the reform areas covered by the Project reviewed in this document, revealing the continuity of reform in the social and labor areas. The Government has also requested support to further its evaluation agenda, through a Project on Strengthening Public Information, Monitoring and Evaluation for Results Management, which supports the design of institutional arrangements for the more systematic monitoring and evaluation of key programs, as well as the implementation of a core national agenda of evaluations (Ln. 7620). Finally, during the fall of 2009, the Government of Colombia has requested the preparation of a Development Policy Lending (DPL) operation in Social Protection. The operation is currently under preparation. This operation’s objectives follow directly from the efforts supported by the Project in the area of the overall Social Protection System (its information systems, its targeting mechanisms, its institutional articulation, etc.), the area of social assistance (support for the integral strategy of the Red Juntos, and support more generally for improved targeting, increased evaluations and greater efficiency of programs), the area of social insurance (support for the harmonization of incentives in the social insurance sphere to address some of the fragmentation of the labor markets and for more equitable health services), and the area of active labor market policies (training and intermediation services in particular). The DPL currently under preparation is part of a broader commitment by the World Bank to support reforms in the social protection system and social sectors more generally, which will comprise a mix of knowledge services, financial services, as well as strategy and coordination services in the coming years. The exact mix will be defined in light of needs and capacity, and each element would support the consolidation of earlier reforms and the design and implementation of the next generation of reforms. These requests highlight the value of the technical and financial assistance provided by the World Bank to the Government of Colombia, and highlight the continuity in reforms in Colombia over the past years.
3. Assessment of Outcomes
3.1 Relevance of Objectives, Design and Implementation
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The objectives, design and implementation of the Project were strategic for the implementation of the reforms and their sustainability. These objectives remain highly relevant, as the Government further consolidates the reforms supported by this Project and defines and implements the next generation of reforms. In particular, the Government of Colombia is currently promoting its strategy to address the situation of the extreme poor and displaced population (Juntos strategy), which is anchored in the provision of preferential access to core social services, and the articulation of these services. The reforms supported by this Project and the resulting institutional strengths and arrangements, legal frameworks, and information systems, are proving critical for the implementation of the strategy. More broadly, the Government is currently designing and/or implementing reforms to its social insurance system (pension and health) and to its training system, which continue to deepen the reforms supported by this Project towards the goal of an integrated social protection system. As mentioned earlier, this Project was requested by the Government of Colombia, and in particular by the three implementing agencies, with a view to fill important analytical or technical gaps identified during the first phase of implementation of the PLaRSSAL I. This contributed to high degrees of ownership within the agencies, a critical element for the successful implementation of Technical Assistance projects and for ensuring their relevance and impact. In terms of design, the Project components themselves were designed by the three implementing agencies. All the activities supported by the Project were identified were consistent with the reforms supported by the PLaRSSAL Program, and the complete match between the needs and the activities ensured a very high relevance by the implementing agencies. The statement of development objectives for each component was appropriate in term of the nature of the activities of the Project. Project design was complex, with three implementing agencies and numerous activities that require coordination and collaboration. However, greater collaboration and coordination between the three implementing agencies – the Ministry of Social Protection, the Ministry of Education, and the National Planning Department – was one of the key objectives of this Project. Indeed, many of the reforms of the broader social reform agenda, supported by the World Bank’s investment and policy loans, are “second-generation” reforms, which go beyond improvements of specific programs and focus more broadly on building coordinated and integrated systems. In such systems, one of the greatest challenges is the effective coordination of programs and policies, which requires inter-agency collaboration. The objectives of the Project are still are the core of the World Bank Country Partnership Strategy, which supports the implementation of the National Development Plan (2006-2010) through five areas of concentration including: peace, poverty alleviation and equity of opportunity, sustained equitable growth, environmental sustainability, and good governance. The objectives and reforms supported by this program are the cornerstones of the poverty and equity pillar, as well as the good governance pillar as it relates to social sectors.
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Various elements developed under this Project also contribute directly to the ongoing development of a Development Policy Loan (DPL) on Promoting an Inclusive, Equitable and Efficient Social Protection System (P106708), in particular in areas of targeting mechanisms, information systems, the strengthening of institutions, the coordination of programs, the financing of health insurance, and the promotion of active labor market policies.
3.2 Achievement of Project Development Objectives The Project’s objective was fully achieved in the three implementing agencies (Department of National Planning, Ministry of Social Protection, and Ministry of Education) and the Project played a critical role in strengthening the institutions and helping them design and implement key reforms, which have paved the way for further policy actions and reforms in the social protection, health and education sectors. The impacts of the Project and progress towards its objectives are presented below for each component (additional details are presented in Annex 2). In addition to the strengthening of the three implementing agencies, presented below, it is important to note the impact of the Project in promoting greater collaboration and coordination between the core agencies of social sectors in Colombia. As mentioned earlier, coordination is critical for the success of second-generation reforms, which typically focus on the development and/or consolidation of national systems, rather than specific programs. For instance, the Project supported Government in building strong national systems that focus on developing a national training system and promoting the national strategy for extreme poverty based on the joint delivery of services to the most vulnerable groups. These systems require extensive collaboration, coordination and harmonization across agencies, a very difficult task by definition. The Project contributed to this coordination between agencies, in particular in the three dimensions listed earlier in this paragraph. The target for the key outcome indicator, “Increase in number of social/labor programs under DNP, MPS, and MEN being systematically and rigorously monitored, evaluated and discussed with the public for citizens’ oversight and feedback from 3 to 13” was met (details on list of the evaluations and their use are provided in Annex 2). The evaluations led to a series of reforms or adjustments, ranging from the design of alternative schemes for the Conditional Cash Transfer programs in urban areas, the institutionalization of the Jóvenes en Acción program, the reform of the program for the elderly, and the closing of the program for labor support (PADE). The Project played an important role in strengthening of the capacity of core actors to design monitoring instruments or evaluation methods, even if it did not necessarily finance these evaluations. Component 1: To strengthen the MPS’s capacity to implement a coherent social protection reform that encompasses employment, training, health and social assistance for the poor and vulnerable.
Component 1, implemented by the MPS, fully achieved its objectives of strengthening the capacity of the ministry to design and implement a coherent social protection system. The diagnostics, analysis, information systems, instruments and draft regulations supported by the Project were critical elements in the design and implementation of a series of key reforms in training and labor markets, social insurance, social assistance and information systems. It also
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was critical in refining the understanding of remaining challenges and potential policy options. This section presents a summary of achievements: (A) In the area of training and other labor market policies, the Project contributed to the
development and consolidation of the national training system, which suffered from low quality and lack of coordination and to the diagnostic that will form the basis for the implementation of a reform of the unemployment system. Within this reform agenda, the Project supported the: a. definition of the certification process for “high quality” training institutions and
programs. This includes both the definition of a set of technical norms adopted by ICONTEC (the Colombian Institute for Technical Standards and Norms) and the definition of the institutional arrangements for the quality system, including the Ministry of Education, the Ministry of Social Protection, the national training institute (SENA) and ICONTEC;
b. definition of standards for health professionals, a key element of the efforts by the Ministry of Social Protection to increase the quality of health services and reduce costs; and
c. evaluation of the national unemployment subsidy program, for which the Government is currently exploring options for reform, as supported by the proposed DPL and the ongoing Non-Lending Technical Assistance.
(B) In the area of social assistance, the activities contributed to the design of options to broaden
the coverage of social insurance (pensions) and to develop the Country’s flagship social assistance program to reach the poorest and most vulnerable (Juntos strategy). In particular, the Project supported: a. A series of reforms to the solidarity pension fund, which had not been fulfilling
expectations in terms of coverage. b. The development of options to broaden the coverage of the pension system through
alternative mechanisms that would reach a larger share of the population. In particular, the activities supported by this Project included a series of analyses to explore options for a new program that would provide incentives for the poor to save for their old-age.
c. The development of the methodology for the articulation of social protection services for the new Government flagship program to reduce poverty, the Juntos strategy, which provides family support and preferential access to services to the poorest families and the displaced population.
(C) In the area of financing mechanisms for the social protection system, the activities
supported by this Project contributed to the design of a key set of policy reforms in the management of the public pension system. In particular, these include a. the consolidation of the providers of public pension into one single entity called
Colpensiones and established through Law 1151 of 2007; b. the creation of a special unit attached to the Ministry of Finance for the resolution of
pending cases of pension rights recognition and the supervision of the collection of social protection contributions.
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(D) In the area of regionalization of the social protection system, the activities supported by the Project provided the basis for the re-organization of the MPS, which would strengthen the Territorial Units of the Ministry and give them a much broader mandate of promotion of the Social Protection System, through decrees 1293 and 1294 of April 2009.
(E) Finally, in the area of monitoring and evaluation, the Project supported the design,
implementation and analysis of the information system called the Integrated Contributions Payment System (PILA), which has become the unique entry point for the payment of contributions to social security (thereby replacing a series of over 20 payment processes for each worker, reducing transaction and financial costs for both employers and providers).
Objective of Component 2: To strengthen the Ministry of Education´s capacity to implement education decentralization reforms mandated by Law 715, analyze primary and secondary school integration and evaluate the school readiness of 5-year old children.
Component 2, implemented by the MEN, met its objective of strengthening the agency’s technical capacity, through the development of instruments to complete the implementation of the ambitious reforms of decentralization of education services mandated by Law 715, the evaluation of the implementation of the Law 715, and the evaluation of alternative school organization/management schemes and the assessment of learning achievements for preschoolers. In particular: (A) The Project’s activities led to the establishment of a stronger registry, with mechanisms to
control the quality of schools’ information systems. This new system was critical in the implementation of the targeting system decided by Law 715, which switched from transfers of education resources to the territorial entities based on the number of teachers, to transfers based on the actual number of students attending school and existing coverage gaps.
(B) The Project permitted the evaluation of the decentralization reform mandated by Law 715,
which is currently under revision by the Government. The methodology used combined a series of tools and techniques, including a public expenditure tracking survey, facility surveys, and a series of longitudinal analysis using administrative data and household surveys. This assessment aimed at identifying potential bottlenecks or leakages in the education sector, assessing the criteria used to allocate resources; and evaluating existing incentives to increase of coverage and improve quality in the education sector.
(C) The Project validated the model of integration of primary and secondary schools, through
the analysis of the impact of this integration on administrative and education quality. It revealed that the most successful schools were those who involved their educational community in deciding the objective of the school, allocation of resources, pedagogical strategy, and management rules. It also found positive results in students’ performance, and helped the Ministry of Education accelerate the integration process focus its effort on increasing investments in inputs to improve quality.
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(D) Finally, the Project led to the development and implementation of the competency-based curriculum for children in the transition grade between pre-schools and primary school. This was developed on the basis of the diagnostic of the competencies of children entering pre-schools, the design of a testing tool to evaluate the basic skills of children in the transition grade, and the evaluation in 10 departments with 180 teachers and 4.200 children.
Objective of Component 3: To strengthen the National Planning Department´s capacity for institutionalizing periodic evaluation and monitoring of social programs for citizens’ oversight and feedback.
Component 3, implemented by DNP, reached its objective of strengthening the DNP’s capacity through the evaluation of the implementation of the Law 715 and through the definition of mechanisms for greater social control. In particular:
(A) The Project contributed to the evaluation of the implementation of the decentralization law in the sectors of health and education. The decentralization law of 2001 (Law 715) implemented the shift reflected in the 1991 Constitution, which promotes greater autonomy for local governments in the management of resources, a focus on results- or outputs-based management, as well as a stronger system for the monitoring and evaluation of results and impacts. The objective was to evaluate the extent to which this radical reform has had positive impacts on human development outcomes, as well as on the quality, efficiency and governance of service provision. As part of a broader evaluation effort, the Project supported the development of the methodology, which combined a series of quantitative and qualitative tools, and the implementation of the public expenditure survey, one of the tools of analysis. The Bank also provided extensive technical assistance during project implementation to help the Government in the design of the methodology, with the support from one of the leading world experts in this area. The main findings of the analysis have just been finalized and the Government is preparing recommendations for potential adjustments to the reform.
(B) The Project, along with support provided by the Bank through the preparation and
implementation of its Project on Strengthening Public Information, Monitoring and Evaluation for Results Management (Ln. 7620), contributed to the development of results-based management, transparency and accountability through the design and implementation of a series of tools for social oversight. This included the development and implementation of the SIGOB information system that provide updates on Government’s goals and progress, as well as the design and implementation of a perception survey to be repeated in 2009. It also included support to the “Colombia Leader” initiative to lead regular civil society sessions and the annual mayoral award.
3.3 Efficiency
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Since the Project consists exclusively of technical assistance, no efficiency calculation was made. However, the benefits from the activities supported by the Project are expected to be substantial. The benefits include improved coverage, equity and efficiency of core social programs through a more agile social protection system, a series of systems for the management of social programs, and through an improved system of transfer of resources to local level governments for the delivery of basic social services. The actual implementation of the various reforms informed or designed with the support of the Project’s activities during the recent years, and the ongoing efforts to continue the implementation of the ambitious reform program in social protection, show that the funds contributed to a series of sustainable changes
5
.
3.4 Justification of Overall Outcome Rating Rating: Satisfactory
Overall, the proposed rating for the overall outcome of the Project is Satisfactory because its objectives continue to be highly relevant and it has achieved its major objectives efficiently.
3.5 Overarching Themes, Other Outcomes and Impacts (a) Poverty Impacts, Gender Aspects, and Social Development
The objective of this Project was to strengthen the ability of core social agencies (the MPS which covers both health and social protection, the MEN, and the DNP) to implement a series of social and labor reforms. These labor and social reforms were expected to have large social impacts6.This Project contributed to these broader impacts. In particular,
• An increase in child well-being through attention to early-childhood development at the municipal level, both in terms of municipal policies as well as through improved allocation of resources to municipalities with the greatest early childhood development needs.
• Greater coverage of social protection programs through the creation of the information systems for Social Protection contributions, which is inter-operable with the broader information platform that allows to identify those who are eligible for but not receiving benefits and to redirect resources toward those most in need
• Greater quality of public programs through information and public feedback to enhance policy-making
5 These efforts have benefitted, and continue to benefit from World Bank support through the Social Sector Adjustment Loan Project (Ln 7134), PLaRSSAL I (Ln. 7193), PLaRSSAL II (Ln. 7259), new Colombia DPL on Promoting an Inclusive, Equitable and Efficient Social Protection System (P106708), and the upcoming Colombian Strengthening Social Protection I NLTA (P114558).
6 These are presented in details in the Implementation Completion Report of the series of operations supporting reforms in these areas –ICR for the Series of Programmatic Labor Reform and Social Structural Adjustment Loans I & II and a Labor Reform and Social Development Policy Loan III. (Report: ICR0000522).
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• Increased labor market access, earnings ability, and general well-being of Colombia’s future adults from an increase in education quality and quantity
• Greater labor market earnings and lower unemployment through improved National Job Training System
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(b) Institutional Change/Strengthening Institutional changes and capacity strengthening are the core objectives of the Project. Results in this dimension were presented in Section 3.2 of this document, describing outcomes. In addition to each agency’s institutional strengthening, an important outcome of the project highlighted earlier is the increased coordination of core actors in the area of social protection – an essential element for the switch from a series of un-coordinated programs to the development of a national system within which programs contribute to a national strategy and are coordinated or integrated. The Project and the technical assistance provided by the Bank team throughout its implementation were critical in bringing actors together on critical issues. (c) Other Unintended Outcomes and Impacts (positive or negative)
None.
3.6 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops Not applicable
4. Assessment of Risk to Development Outcome Rating: Low or Negligible The assessment of risk to development outcome in the Project is negligible to low. Indeed, the objectives of the Project are all still fully aligned with the operating environment in Colombia. Ownership by Government and other stakeholders is very high. In addition, the design and implementation of a series of information systems (the various systems of the SISPRO, many of which supported by the Project) and management systems (such as the national targeting system SISBEN) and the institutionalization of many of the decisions further reduce the risks to the various development outcomes of the Project. Finally, the Bank continues to support the implementation of key reforms, both through knowledge and financial assistance. In particular, the Bank is currently preparing a DPL which supports a series of policies and reforms that deepen the reforms supported by this Project. The Bank is also providing the Government with on-going technical assistance through a Non-lending Technical Assistance program covering the thematic areas supported by this Project. The continued progress in the areas supported by this Project – in terms of central information systems, national training system, pension, health insurance, and the strategy to address the situation of the extreme poor among others – underline the continuity of reforms and the low risk to the development outcome. The ongoing dialogue with the Bank continues to promote the further integration of analytical findings into the design of the next generation of reforms.
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5. Assessment of Bank and Borrower Performance
5.1 Bank Performance (a) Bank Performance in Ensuring Quality at Entry
Rating: Satisfactory
The Bank’s performance in ensuring quality at entry is evaluated as satisfactory for the following reasons. The Bank had long been providing assistance to social protection and related areas in Colombia, via substantial analytical work and investment and adjustment lending, and this is reflected in the quality of background analysis and the relevance of the activities supported by the Project (as measured by the actual implementation of the resulting recommendations). The Bank’s support for project preparation was broad-based, incorporating needed expertise and several staff and consultants with experience in the various areas of support. On technical aspects, the Project incorporated the lessons from a Structural Adjustment Loan and a Development Policy Loan in the sector, as well as a series of investment loans supporting the core social protection program. There were no shortcomings in the preparation of the project, and as a result the suggested rating is satisfactory. (b) Quality of Supervision
Rating: Satisfactory Bank performance is rated satisfactory for the following reasons. • First, the team focused on development impact, reporting regularly the performance on
indicators, including key outcomes. Close attention was paid to the results of the operation. The team provided extensive technical assistance to the Government teams, providing inputs to all TORs for all the activities financed by the Project, reviewing all products from a technical perspective, organizing ad-hoc seminars to provide feedback on selected pieces, and providing comments and suggestions in all sectors.
• Second, the Bank established a multi-thematic team for the various components – health, education, social protection – calling upon world experts for specific themes to ensure high quality supervision and parallel technical assistance.
• Third, in addition to the technical inputs, the Bank organized an intense supervision process, with 10 ISRs prepared between December 2004 and June 2009 (one every 6 months), which intensified towards the end of the Project and as necessary when issues arose to avoid impact on implementation. This was further promoted by well-coordinated transitions in its internal staffing for task management to avoid a detrimental impact on its supervision of the Project and the technical assistance that it provided to the client in that process. The placement in the field of a highly qualified consultant experienced with the various government institutions and actors, and with social programs, also facilitated ongoing dialogue and supervision.
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(c) Justification of Rating for Overall Bank Performance
Rating: Satisfactory Taking into account the detailed ratings in Bank performance, overall Bank performance is rated satisfactory.
5.2 Borrower Performance (a) Government Performance
Rating: Satisfactory The Borrower’s performance is considered satisfactory, from preparation through completion. From the earliest phase of project preparation, the Government has provided strong leadership in the area of social protection, to which it accords high priority. Project objectives were closely aligned to the goals of the National Development Plan. The Government also continued to give priority more broadly to their national agenda for monitoring and evaluation. Overall, the activities supported by this Project have fed into the Country’s reform agenda in social sectors. For instance, it has informed the development of the national training system now under full implementation, the development of the national network for the reduction of extreme poverty (Juntos) currently implemented in 80 percent of Colombia’s municipalities, the inputs for the forthcoming national policies for unemployment and human capital formation, elements for the pension reform which was decided in 2009 (Colpensiones and UGPP), the adoption and implementation of reforms in education. Many of the reforms of this next generation are currently supported by the World Bank’s forthcoming DPL. (b) Implementing Agencies Performance
Rating: Satisfactory The overall performance of the implementing agencies is evaluated as Satisfactory. The three agencies implementing this Project were highly committed to its objectives, as the activities were designed precisely to help them build knowledge and tools for the implementation of their planned reforms. This commitment is reflected in the achievement of all the objectives set out in the Project and the implementation of all planned activities. In addition, the three agencies have continued in the implementation of its core reforms, integrating the findings, lessons and tools supported by this Project. While the team required an extension to the Project to fully implement the activities, this came mostly about because of the change in the structure of project management, with the elimination of a specific project implementation unit (PIU) and the mainstreaming of project management within the Ministry of Social Protection. The internalization of the Project was an important change, which promotes greater sustainability of the reforms and greater integration of the Project within the broader reform agenda. (c) Justification of Rating for Overall Borrower Performance
Rating: Satisfactory
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The Overall Borrower Performance is considered Satisfactory, in view of the Government and the Implementing Agencies’ performance.
6. Lessons Learned The team learned a series of lessons from its engagement with the Government in Colombia in the social sectors, including from the design and implementation of the Project under analysis. In particular: • Promoting greater coordination is critical to second-generation reforms that seek to develop
systems (rather than programs). Though efforts to bring different actors together, promote collaboration, and develop the mechanisms to institutionalize coordination and harmonization are extremely time consuming, they are critical to the success of reforms that aim at building national systems rather than improving individual programs. The Bank’s ability to bring actors together, and bridge existing divides, is an important factor for success in the implementation of ambitious reforms to national systems. This ability is greatly enhanced by the engagement of the Bank through different instruments (SIL, DPL, TA).
• For institutional reforms, the difficulty mostly resides in the reforms’ implementation, rather than in their design or adoption. When reforms aim at bringing institutions to coordinate and articulate the provision of services, the greatest hurdles typically lie in the actual implementation of the reforms. Indeed, getting institutions to agree to a model might be within easy reach, but ensuring they effectively do implement it is much more complex, as incentives typically need to be re-aligned.
• The implementation of core reforms to the national training system takes many years, reflecting the complexity of the area. The development of a national training system, with numerous operators in the private sector, requires the definition of a common framework, but also the adoption of this framework as the regulatory norms for actors in the sector. Reforms in this area have been slow, but very significant progress has been made. A slower pace might have been key to ensuring full ownership.
• Constant engagement with the client is important via a rich technical dialogue and varied portfolio. The multi-sectoral team worked with the Government in a wide range of lending and non-lending activities, which facilitated the preparation of the Project in two key ways. First, the Government and Bank teams developed a good working relationship over many years. Second, the Bank team, through this continued relationship was well versed in the objectives, strategies, results-management, and outputs of the social sectors, allowing for a greater focus on strategy and implementation in the development of the program.
• A commitment by the clients to implement a well-designed Government program. The National Development Plan defined each social institution’s strategic objectives, thereby providing a base upon which to design the Bank’s program. The social institutions were committed to implementing the strategies and meeting the quantifiable targets and saw the value added of Bank support in the design, implementation, and evaluation of the strategy.
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• A strong program of analytical work and dialogue is crucial to underpin the operation. The program focused on policy and strategy, which required knowledge about Colombia and experiences elsewhere to help operationalize the strategies. The Bank’s knowledge was a crucial input to the more innovative strategies that the Government implemented, particularly in the areas of social protection, labor reform, training, M&E, health financing, and education service delivery to hard-to-reach populations.
• A large Bank team with varied skills is necessary in a broad and complex operation. The team consisted of economists, operations experts, and sectoral specialists from a wide range of sectors. This mix of skills allowed for quality work with the clients on defining and advancing the sectoral strategies, but also for cross-fertilization between sectors. The results were a more cohesive strategy that was not organized according to Bank silos and the Bank team’s contribution to encouraging partnerships across line Ministries.
• Strong coordinating institution on the Government’s side is necessary when many agencies are involved in the operation. While the Bank team worked with the three implementing agencies, and while one of the institutions took the leadership in the coordination of the Project and the reporting, the coordination revealed to be relatively difficult.
7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners (a) Borrower/implementing agencies
Government’s comments on a draft of this ICR were incorporated and reflected in the final document. Annex 5 presents the Government report on the completion of the Project in its integrality in Spanish. Two sections have been translated into English, as they present additional information not contained in the main text of this ICR. They are presented below:
“Evaluation of the World Bank’s role: During the design phase (satisfactory). In terms of the design, the Bank did not provide specific suggestions to improve the design. However, the support and advice of the Bank were important for the elaboration of Terms of Reference and the review of the outputs for the activities planned during the implementation of the Project. Lessons learned: The implementation and institutionalization of the Project took a long time, because they implied in some cases decisions by the national Government. Although the technical implementation of the Project was quite satisfactory, the institutionalization in the Ministry of Social Protection and the sector called for the elaboration of consensus and norms, which require significant time.”
(b) Cofinanciers N/A
(c) Other partners and stakeholders N/A
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Annex 1. Project Costs and Financing
(a) Project Cost by Component (in USD Million equivalent)
Project Cost By Component and/or Activity Appraisal Estimate
Actual
Percentage of
Appraisal
Component 1. Technical Assistance to MPS 1.A. Training and active labor market policies 162,196 256,931 158% 1.B. Improve social assistance programs 274,274 322,251 117% 1.C. Social Protection System Finance Model 165,066 125,016 76% 1.D. Regional Dimension 198,274 33,863 17% 1.E. Monitoring and Evaluation System for MPS. 258,649 177,079 68% Total Component 1 1,058,459 915,140 86%
Component 2- Technical Assistance to MEN 2.A. Improving enrollment data 250,000 313,322 125% 2.B. Study of impact, use, cost of the Transfer System 120,000 64,787 54% 2.C.Improving education efficiency and quality through integration 40,000 20,605 52% 2 D. Improving coverage and efficiency of pre-school education 40,000 54,035 135% Total Component 2 450,000 452,749 101%
Component 3- Technical Assistance to DNP 3.A. Improving revenue sharing transfer system 310,000 317,358 102% 3.B. Improving the social control system (SCS) 140,000 88,927 64% Total Component 3 450,000 406,285 90%
Administrative costs* 41,541 158,869 397% Total 2,000,000 1,933,043 97%
Note: *The actual administrative costs for the projects were around US$160,000 (around 8 percent of the total loan amount), almost 4 times the initially planned administrative costs (US$40,000). The initial costs were largely under-estimated for two main reasons: (1) Changes in the structure for the administration of the Project. The initial plan was that the coordination, administration, accounting and financial management for the Project would be undertaken by the unit in charge of implementing an existing operation with the IADB in the Ministry of Social Protection. In May 2006, as the IADB project closed, the Project had to set up its own project implementation group and to cover its costs, which had not been anticipated at the time of the design of the Project. (2) In addition, in August 2007, the Government requested an extension of the Project for an additional 18 months in order to complete the activities supported under component 1 and 3, led by the Ministry of Social protection and the National Planning Department. This required the allocation of additional resources for the administration of the Project. All the additional administrative costs were covered by the Ministry of Social Protection, through three reclassification processes, as reported in the ISRs. At the time of the change in implementation arrangements and of extension of the Project, the Ministry of Education had already committed all its resource. For the DNP, the variation in exchange rates over time did not allow the institution to contribute to these administrative costs.
(b) Financing
Source of Funds Type of Co-financing
Appraisal Estimate
(USD millions)
Actual/Latest Estimate
(USD millions)
Percentage of Appraisal
Borrower 0.00 0.00 .00 International Bank for Reconstruction and Development
2.00 0.00 .00
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Annex 2. Outputs by Component This annex provides details on the outputs and results of each component of this Project. It focuses on presenting the results of each activity, as well as the steps which the Government has taken as a result of the findings. Before turning to each component, the following Table summarizes the evaluations presented as evidence of the increase in the number of programs under DNP, MPS, and MEN being monitored, evaluated, and discussed with the public (PDO indicator). PROGRAMS
SECTOR TYPE OF
EVALUATION TYPE OF POLICY DECISION IMPLEMENTED
DNP-MPS 1. Familias en Acción in rural
areas Social Protection Impact Expansion of coverage
2. Empleo en Acción Social Protection Impact Lesson learned. Program was completed.
3. Jóvenes en Acción Social Protection Impact Institutionalization of program in SENA
4. Hogares Comunitarios (ICBF program)
Social Protection Impact Proposal to expand alternatives childcare schemes, updating of the pedagogic material and implementation of nutritional schemes adapted to each region.
5. Desayunos Infantiles (ICBF Program)-Monitoring growth
Social Protection Impact
6. Vivienda de Interés Social (Ministry of Environment)
Housing Impact Creation of a new component for the program, focusing on neighborhood development and titling.
7. Familias en Acción for the displaced population
Social Protection Impact Permanent inscription and expansion of coverage.
8. Program for labor support (PADE)
Social Protection Executive Program closed because of low execution due to design issues (amount, duration, criteria).
9. National Training System (SNFT)
Social Protection Education
Executive Identification of need to develop a framework to articulate actors and coordinate activities in this sector.
10. Programs for elderly poor (PPSAM – PNAM)
Social Protection Executive Reform of criteria for eligibility (CONPES 105/ 2007 and CONPES 3560/2009)
11. System of revenue transfers in health
Social Protection PETS In progress
12. Food security network (ReSA)
Social Protection Executive Program found to operate well.
13. Strategy to reduce extreme poverty Juntos
Social Protection Operational Adjustments to operational manual, development of methodological guidance.
DNP-MEN
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14. System of revenue transfers in education
Social Protection Education
Impact In progress
15. Audit of school enrolment information systems
Education Executive Recommendation Elderly Plan. In progress dialogue for loan operation
Component 1: Technical Assistance for MPS (US$1.1 million).
The Social Protection Component covered five key areas: (A) labor market policies; (B) social assistance; (C) Social Protection System financial model; (D) regional dimensions of the SPS; and (E) monitoring and evaluation systems. The most relevant achievement are presenting below. (A) Active Labor Policies. This subcomponent aimed at strengthening the Social Protection Ministry in its capacity to promote and regulate the labor market trough: (i) the development of norms and tools, and implementation of institutional arrangements for the National Job Training System; (ii) the review of the institutional arrangements for the unemployment subsidy program in order to identify options to improve their design and effectiveness; and (iii) a review of the institutional arrangements for the programs of wage subsidy and unemployment subsidy, to identify options to improve their design and effectiveness. (i) Development of norms and tools, and implementation of institutional arrangement for the
National Job Training System.
In 2002-2003, labor market analysis highlighted that some supply-side factors partly explained employment status. In particular, specific groups (youth and women) tended to have difficulty finding employment as a result of their low level of skills. This situation prevailed despite a large and well-funded public job training program. Analysis showed that the training “programs are not targeted to the poor, who most lack human capital, and the demand for job training is much larger, with more than 60 percent of job training services provided by the unregulated private sector, and another 20 percent provided through other public programs”7.
The analysis also questioned the quality of public training programs, and there were claims by employers and workers that publicly-provided job training programs were increasingly unable to provide competencies in emerging industries. A study led by the Government and the World Bank concluded that an efficient and effective national skills formation system requires a level playing field among the public and private providers based on quality conditions. Thus, in 2004, the Government defined the path for a comprehensive job training system, presented in the document 81 of the National Council of Economic and Social Policy (CONPES, 2004). The CONPES document defined the elements of a national, comprehensive, job training system, which would provide a common framework for public and private job training institutions, on the basis of a set of common norms and standards.
7 Project document PLaRSSALL II (Ln. 7259).
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The proposal for the National Job Training System included the following elements: a) a job training commission; b) the accreditation system for training programs and institutions; c) guidelines and regulations for the functioning of the system; and d) an information system to register programs and institutions, and monitor their quality relevance. During the early sessions, the Job Training Commission identified the need to develop criteria and norms to evaluate the quality of programs as one of the main challenges to the implementation of National Job Training System. The Project supported the hiring of experts to design a proposal for the quality-certification system for training courses and institutions, as well as draft the legal documents for its creation and implementation. By 2006, the Ministry of Social Protection enacted Decree 2020, which provides the legal basis for the creation of the System for the Management of the Quality of Job Training Institutions (Sistema de Gestión de la Calidad para Instituciones de Formación para el Trabajo, SCAFT). The SCAFT has four elements: the Commission of quality of the training system, responsible for the definition of the regulatory and legal decisions of the system; the Sectoral Committees, in charge of the definition of the quality norms of each sector; the evaluating institution, responsible for the verification of compliance with quality norms; and the Technical Secretary, in charge of the operation and coordination of the system. Between 2006 and 2007, a set of technical quality norms were defined and adopted, which define the standards for the “quality-certification” of institutions and courses. At the date, circa 100 entities have initiated the process to obtain their “quality-certification”. Complementarily, the Ministry of Education and the Ministry of the Social Protection defined a set of minimum standards and requirements for all training programs and institutions, and jointly designed the national registry for all training programs and institutions. Information on courses and institutions is verified and uploaded into the registry by local Education Secretaries, which have received specific training to implement this task. At the date of preparation of this report there were around 1,000 entities and 2,000 programs registered, which represent around 35 percent of all the entities and programs that initially registered at the time of the preparation of CONPES 81 in 2004. The challenges to consolidate the system are numerous, in addition to the full implementation of the registry and “quality-certification” processes. In particular, the Government is currently developing mechanism to assess labor market needs in terms of skills to better guide the development of training courses, and seeking options to improve the efficiency and quality of existing programs. (ii) Development of options to increase the efficiency and quality of health services an
improved human resources policy:
The Social Protection Ministry, which is also in charge of the health sector, identified the need for the regulation of some aspects of the health labor market, in order to guarantee the quality, relevance and financial sustainability of health service provision. To respond to this need, the Project supported activities to develop these norms and draft the relevant regulations. During the implementation of the Project, the Ministry of Social Protection prepared Law 1164, enacted in 2007, that regulates the standards of quality for the formation of
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human resources in the health sector, the measures of performance of health professionals, the code of ethics for health professionals, and the mechanisms to control and supervise the quality of health professionals and their performance. In addition, through the activities financed by the Project, the Ministry of Social Protection enacted a series of decrees for the application of the law, including decrees related to the conditions for the practice of medicine, the mechanisms for the election of the members of the health human resources commission, and the scheme to provide incentives that promote equity in the geographic distribution of health professionals. (iii) Review of the institutional arrangements for the unemployment subsidy program in order
to identify options to improve their design and effectiveness:
Under this sub-program, with support from the Project, the Ministry of Social Protection analyzed the unemployment subsidy program. In particular, the analysis reviewed the program’s consistency with broader labor market policies (and the extent to which it provides specific incentives), its role in terms of social insurance; and its financial sustainability. The main findings from the study suggested reforming the unemployment program in the following ways: (a) changes in the level and duration of the benefit, (b) targeting of the program to promote formality, and (c) articulation of the program with training programs and labor intermediation services. In terms of funding, the analysis proposes to articulate this program with the program for severance payments, and to design a payment scheme that provides incentives for the efficient implementation of the program. Finally, the Ministry of Social Protection built a general equilibrium model to simulate the financial implications of a transition from a scheme of unemployment subsidies to a scheme of unemployment insurance. This will feed into the ongoing discussions within the Government on options to develop a more comprehensive set of unemployment services. (B) Social Assistance The activities supported by the Project under this sub-component aimed at identifying options to increase the coverage, efficiency and impact of social assistance programs for vulnerable groups. This included: (i) the modification of criteria to benefit from cross-subsidies to enter the formal pension system, (ii) the design of a mechanism to expand old-age income security to the poor through a long-term savings program; and (iii) the design of options to strengthen the articulation of social assistance programs for the extreme poor. (i) Modification of criteria to benefit from cross-subsidies to enter the formal pension
system:
In 1993, the solidarity pension fund (Fondo de Solidaridad Pensional, FSP) was created, with a view to subsidize the contributions of low-income workers, in order to help them enter the public defined-benefit pension scheme. The idea was to help those that have contributed to the system
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over a long period, but are not able to fully meet the contribution criteria, to enter the formal system. After several years of implementation, and adjustments in the rules, the number of beneficiaries of the program remained very low. By 2007, the total numbers of affiliates receiving subsidies from the solidarity pension fund was around 200,000. According to the administrator, this number represented about 90 percent of the eligible population, and the program did not suffer from any significant drop out, as about 90 percent of those in the program kept contributing. The Project supported analysis, led by the Ministry of Social Protection, which showed that the number of potential beneficiaries for the solidarity pension fund was indeed very small, mainly because of the restrictions of the program in terms of age, and the requirement in terms of the minimum number of weeks during which the worker previously contributed to the main pension system. The Government amended the criteria for the pension solidarity fund through Decree 3771 and CONPES No.105, both in 2007. This reduced the numbers of required weeks of contribution prior to access to the subsidy from 650 to 500 weeks, and increased the duration of the subsidy from 500 to 750 weeks. The new regulation also created the option to suspend temporally the subsidy when the contributors experience higher payment capacity or when they lose their capacity to pay their share of the contributions. The initial results of this new regulatory remark show a small increase in the number of affiliated, with about 30,000 new poor persons affiliated during 2007-2008. The government is still monitoring the coverage of this fund to explore options for reforms to expand its coverage or reform its design.
(ii) Design of a mechanism to expand old-age income security to the poor through a long-term savings program:
The low level of coverage by the old-age pension systems has been a core concern in Colombia, which experiences very low levels of coverage, considering its level of economic development.
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Some of the core issues which limit the expansion of system are the inflexibilities of the labor market and pension systems. In particular, the minimum pension is pegged to the minimum wage, which has been set at relatively high levels by regional standards. This forces the pension system to only include workers who have relatively high earnings in the formal sector. While changes in broader labor market policies are explored, the Government has initiated its analysis of other options to expand the coverage of old-age pensions to low-income workers. The Project supported activities for the design of a proposal, called the Periodic Economic Benefits (Beneficios Económicos Periódicos, BEPs), which would be targeted at workers who have some capacity to save over the long term, but do not have regular earnings, are not in the formal sector, or have wages that are too low to contribute to the existing pension system. This program would mostly function as a program that provides an instrument for long-term savings for old-age, as well as incentives to establish a pattern of regular savings, and which converts accumulated savings into an annuity at retirement. According to simulations made by the Ministry of Social Protection, the BEPs could provide an annuity of almost half the minimum wage (which is also the minimum pension) and could benefit about 6.4 million Colombians. To prepare the legal framework for a potential BEPs program, the Government has enacted two decrees (2060 in 2008 and 1800 in 2009) to allow people who work less than full time to contribution (typically domestic or agricultural workers). In the coming months, the Government, including the Ministry of Social Protection, the National Planning Department and the Ministry of Finance, will continue to explore options for the implementation of programs that promote the expansion of coverage of insurance programs for old-age income risks.
(iii) Design of options to strengthen the articulation of social assistance programs for the extreme poor:
In 2006, the Government of Colombia established the Social Protection Network to Overcome Extreme Poverty, the Juntos strategy, as the mechanism to reduce extreme poverty. The main objectives of Juntos are to contribute to improving the living conditions of extremely poor families, ensure these families have access to basic social services, and ensure social services are adapted to their specific needs. About 15 public agencies have joined the Juntos strategy. In the sector of Social Protection, all public agencies providing social protection services, including the Ministry of Social Protection, now form part of the Juntos strategy. Hence, one of the first challenges of the Ministry of Social Protection in its role in Juntos was to define mechanisms to evaluate the relevance of the different entities’ social protection programs in term of targeting, access to the poorest, relevance of the services, and allocation of budget. The Project supported this effort by financing activities aimed at developing an inventory of social assistance programs. The objective of the inventory was to create a mechanism to articulate social protection programs (and monitor that articulation) in the implementation of the Juntos strategy. The inventory included information on a series of characteristics for each program, which permitted to evaluate the degree of articulation between programs managed by central and local governments; to assess the challenges for the articulation of programs both at
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the central and at the local levels; and to propose mechanisms for the allocation of resources for each of these programs. The outputs supported by the Project contributed to the development of a methodology for the articulation of services for the Juntos beneficiaries, both at the local and central levels and to the design of the information and monitoring system that will be used to monitor progress. The Government is currently finalizing the design of these elements, under the leadership of its Juntos Executive Committee, headed by the Ministry of Social Protection.
(C) Social Protection System financing mechanisms The objective of this sub-component was to provide inputs for the design of financing mechanisms that will ensure the sustainability of the overall Social Protection System, and in particular its social insurance components (health and pension in particular). The options developed with support from this Project included transformations that aimed at increasing the efficiency of social insurance system and options aimed at increasing their financial sustainability. In particular, recommendations from activities supported by this Project, concerned the reengineering of the institutional arrangements for the pension system, to seek greater efficiency, ensure more transparency and reduce the number of court cases related to pension claims. By 2007, the Government identified that the lack of consistency between pension agencies, in terms of criteria that define the entitlement to a pension and the nature of that pension were creating major bottlenecks in the system. In particular, the number of court challenges related to pension rights has increased dramatically, which has paralyzed the system and created important liabilities. In order to promote greater integration of administrative records, limit the diversity in the interpretation of pension rules, and reduce the number of cases of fraud and corruption, the Government adopted a series of reforms. In particular, Law 1151 of 2007 established the integration of the entities that operate the public pension system into a new entity called Colpensiones. It also established the need to liquidate the main agencies managing the public pension system (Cajanal, Caprecom and the part of the Social Security Institute that administers pensions). The Government has initiated the process with the liquidation of Cajanal and the transfer of its members to the Social Security Institute (later to be transferred to Colpensiones when the institution is functioning) through Decree 2196 of June 2009 and with the definition of proposal for an administrative structure and staffing for Colpensiones in September 2009. Furthermore, in order to proceed with the recognition of pension rights, which is heavily back-loaded due to court litigation and inefficient management, and increase the efficiency in the management of contributions, the Government has established the basis for the creation of a special unit responsible for overseeing the computation and collection of contributions (Law 1151 of 2007). The UGPP (Unidad Administrativa Especial de Gestión Pensional y Contribuciones Parafiscales de la Protección Social) is created in the ambit of the Ministry of
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Finance and will have administrative autonomy and independent patrimony. Amongst its function, it would carry out the recognition of pension rights arising from members of pension schemes that will close in the broader consolidation process. Decree 169 of January 2008 established the UGPP’s functions. The Government has finalized the technical study proposing a structure for the UGPP in October 2009 and is preparing the decree that will define its internal structure and staffing. (D) Promoting the Social Protection System at the regional level
To advance towards a comprehensive Social Protection system, one of the key challenges is to integrate and improve the coordination of social insurance and assistance programs. Since circa 60 percent of public social spending is executed at the local level, any progress requires a strategy to promote and articulate the social protection programs between the national and local levels. Thus, the Project included a subcomponent to design arrangements for the promotion of an integrated social protection system at the local level. The activities undertaken and their outputs include: (i) The proposal of a monitoring system of the territorial social councils to be operated by
Territorial Social Protection Unities:
This monitoring system would promote more technical interlocution and articulation between the Ministry of Social Protection and local level governments (both at the regional and municipal levels) for the design and implementation of social protection programs. The study supported by this Project found that the dialogue between policymakers from different governmental levels needs to be strengthened and systematized to improve the promotion of the Social Protection System at the local level. (ii) The plan to strengthen the Territorial Units of the Ministry of Social Protection:
The activity supported by this Project included the identification of the roles which the Territorial Units of the Ministry of Social Protection could play to further consolidate the development of social protection systems at the local level. Earlier efforts, supported by the World Bank, led to the development of regulations to govern the new functions of the ministries and its affiliated entities and design adequate information systems, and, more generally, foster the development of a national policy and strategy for the Social Protection System. Most of these efforts, though, were concentrated at the central level, and the local branches of the Ministry of Social Protection played a very limited role in the implementation of the broader national Social Protection strategy. Their activities were mostly limited to inspections of working conditions in local firms. Following the broader effort to strengthen the Social Protection System, the Government is in the process of reorganizing the Ministry of Social Protection by empowering its Territorial Agencies to promote the social protection system in general. The government issued Decrees 1293 and 1294 in April 2009, which set new mandate for the Territorial Agencies of the Ministry of Social Protection and creates new positions, respectively. Resolutions 2776, 2779 and 2605 allocate the
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staff across regions, modify the manual of functions, and create the working groups at the national and local levels respectively.
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(E) Monitoring and Evaluation system The objective of this sub-component was to strengthen the monitoring and evaluation system for the programs under the Ministry of Social Protection. One of the main challenges faced by monitoring system in the Social Protection sector was the lack of ability to keep track of beneficiaries, their benefits, and their contributions over time. To respond to this need, the government developed a strategy to consolidate a database that would track the payment of contributions and reduce the cost transactions associated with social protection payment. In consequence, the project financed activities to design and support the implementation of the Integrated Contributions Payment System (Planilla Integrada de Liquidación de Aportes, PILA), the information system that allows the definition and payment of all payroll contributions; defining its legal framework; and designing a set of indicators to monitor its implementation and functioning. Before this system, employers had to fill in about twenty formats for each employee to fulfill the process of payment of social protection contributions. Each social protection program had a different format. The process implied many bank’s transactions, which significantly increased the associated transaction costs. Finally, the complex and fragmented process made it very difficult to consolidate and update administrative registers to monitor contributions, the flow of funds, and entitlements. The PILA is an electronic platform that integrates the payment of contributions into one single process, thereby reducing transaction costs, facilitating the process, and consolidating information to monitor contributions and entitlements. The PILA is managed by operators which receive and process the payments and send the information to contributors, the Ministry of Social Protection Ministry and the administrators of the various funds and programs (health insurance, pension, etc.). The process of implementation started in 2006. Initially, the PILA only included employees of large firms. It then gradually included smaller firms, helping those that needed it to learn to use the system. In July 2008, a dramatic step was taken, when the system’s mandatory use was extended to self-employed workers. Finally, the last exceptions were removed in the Spring of 2009. In August 2009, the system included about 8,660,000 individuals, which represents a significant increase from the level of 6,810,000 in July 2008, considering most new additions are single-person enterprises, rather than large enterprises with numerous employees. The graphic below show the evolution in the implementation process of the PILA, the electronic sheet started with about 3 million of users during 2006 to August of 2009, the system had 8.5 users paying their contributions to Social Protection System.
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Numbers of contributors using PILA (2006-2009)
Source: PILA MPS, data to 31th August 2009.
The activities supported by the project in this sub-component complement activities supported by a component of the Social Safety Net Project (Ln. 7337-CO) approved in 2005, as well as activities supported by the preparation of the Project for the Strengthening of Public Information, Monitoring and Evaluation for Results Management (Ln 7620-C0) approved in 2008, and its implementation. So, while the activities focus mostly on the Ministry of Social Protection, they are part of a much broader effort by the Government to promote evidence and results-based policy making, greater transparency, and social control.
Component 2: Technical Assistance to the MEN (US$450,000).
Component 2, implemented by the Ministry of Education, aimed at strengthening the agency’s technical capacity, through the development of instruments to complete the implementation of the ambitious reforms of decentralization of education services mandated by Law 715, the evaluation of the implementation of the Law 715, the evaluation of alternative school organization/management schemes and the assessment of learning achievements for preschoolers.
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(A) Enrollment data and registries The analysis of accuracy of enrollment data and a proposal for improvement in registries were completed during the Project. The Project activities led to the establishment of a stronger registry, with mechanisms to control the quality of schools’ information systems. This new system was critical in the implementation of the targeting system decided by Law 715, which switched from transfers of education resources to the territorial entities based on the number of teachers, to transfers based on the actual number of students attending school and existing coverage gaps.
In order to implement the Law, the education system needed a strong sector information system, which local authorities would use mandatorily to report the information required by the central Government to define transfers. This system needs to provide reliable, timely information about the number of students enrolled in formal educational establishments, state-funded establishments and privately-funded schools. To establish this system, the Ministry of Education issued the Resolution 166 of 2003. The first step in the process was to conduct a series of audits of enrollment information reported to the Ministry of Education by local authorities. These audits applied to circa 20 percent of the educational establishments of the regions of Valle del Cauca and the Narino. A series of cases, where the information on registration (in official, subsidized and private schools) reported by local authorities differed from that collected by the audit, were brought to the attention of the players, so that the system could be adjusted and corrected. The following step was the development of a system of registries that allow for greater quality of data and systematic controls. The Ministry of Education assesses the quality of enrollment information through a series of cross-checking with data from the National Administrative Department of Statistics (Departamento Administrativo Nacional de Estadística, DANE) based on surveys and censuses, and applies special audits when the information is suspected to contain errors. The new funding formula based on the number of students rather than the number of teachers has started to pressure the territorial entities and their schools to enroll more children or risk losing money. This has resulted in greater incentives to broaden the coverage of education. To ensure that the incentive effect is maintained over time, good information and verification systems are being developed. Complementing this effort, the Ministry of Education is providing technical assistance to the local Secretaries of Education (in charge of the registry) to develop reliable databases for monitoring and evaluation purposes. The Ministry of Education has also entered into agreements with regional Secretaries of Education to help them restructure their education systems to increase productivity –concentrating rationalization efforts in 42 decentralized municipalities with over 10,000 residents (over 70 percent of the student population). Many of these agreements relate to the process of
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certification of municipalities, whereby Secretaries, once certified, will receive their education transfers in a form that allows them to have discretionary authority over those resources.
(B) Impact of decentralization The decentralization reform mandated by Law 715 was implemented and evaluated by the closing of the Project. The methodology used combined a series of tools and techniques, including a public expenditure tracking survey, facility surveys, and a series of longitudinal analysis using administrative data and household surveys. This assessment aimed at identifying potential bottlenecks or leakages in the education sector, assessing the criteria used to allocate resources; and evaluating existing incentives to increase of coverage and improve quality in the education sector. This activity was undertaken together with the activity of the sub-component (A) of Component 3, described below in more details.
(C) Improving the quality of education
This sub-component aimed at evaluating the impact of the strategy mandated by the Ministry of Education to integrate primary and secondary schools in order to reduce drop outs during the transition from primary to secondary schools. In order to shed light on the implementation of the scheme and on its impact on child performance, the study selected a sample of schools and analyzed the results from the standardized tests used to evaluate student performance. The Project supported the analysis of the impact of the regulation mandating the integration of primary and secondary schools on administrative and education quality. The main findings of this study are that the schools that were most successful in integrating primary and secondary levels, were those who involved the educational community in deciding the principles and objective of the school, defining the allocation of teachers and teaching materials, defining the pedagogical strategy, and defining the rules for the teaching and the management of the schools. In addition, the evaluation found positive results in students’ performance, as revealed by the learning test applied to 5th and 9th grade students before and after the integration process. The performance of the student improved about 3.2 and 4.5 between 2003 and 2005 for the 5th and 9th grade, respectively. These results are attributed to better relations between students, and to a greater sense of belonging within the schools. Finally, the evaluation found that parents perceived that after the integration, the schools increased their interest in working with students to improve their educational performance. With these results, the Ministry of Education accelerated the integration process of primary and secondary schools, as defined by Law 715/2001, and focused its effort on increasing investments in inputs to improve the quality of education.
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(D) Pre-school education testing These activities supported by this sub-component aimed at designing and testing a tool to evaluate and analyze the basic skills of children in the transition grade, between pre-schools and primary school. The evaluation was undertaken in terms of communication, civic education, math and science. The Project supported the design of instruments to assess the capacity of children, the testing of the instruments in 10 departments with 180 teachers and 4.200 children. The Ministry of Education finalized the evaluation instruments. The study of the results themselves showed that the activities proposed in the evaluation instrument were coherent with the physical and mental developments of children at that age group. After adopting the instrument, the Ministry of education developed a new curriculum for the transition grade, based on competencies, and started its application in pre-schools.
Component 3: Technical Assistance to DNP (US$450,000)
The objective of Component 3 was to strengthen the DNP’s capacity for institutionalizing periodic evaluation and monitoring of social programs for citizens’ oversight and feedback. The specific objectives were achieved, through the evaluation of the implementation of the Law 715 and through the definition of a mechanism for greater social control.
(A) Revenue transfers system. The first sub-component aimed at developing the methodology for the assessment of the system of revenue transfers for health and education. This activity was implemented jointly with the activity (B) of Component 2, which focuses on education. The objective was to provide a methodology for the systematic study of the current revenue sharing system mandated by Law 715 of 2001 for early detection of its impact on the patterns of education and health spending of territorial entities in terms of equity, efficiency, and their fiscal efforts. The evaluation of Law 715 was a very complex endeavor calling for a very complex methodology, because of the complexity of the reform, the large number of agencies involved at different levels of Government, and the fact that transfers from central Government are only one of the sources of funds for the delivery of health and education services by local Governments. This called for a methodology that would use a series of state-of-the-art techniques, including some which had never been applied in Colombia. The methodology used combined a series of tools and techniques, including a public expenditure tracking survey, facility surveys, and a series of longitudinal analysis using administrative data and household surveys. As part of the overall effort, also supported by Inter-American Development Bank and covering a broader range of sectors, the Project contributed to the development of the methodology to be used for the analysis. The Bank provided extensive technical assistance during Project implementation to help the National Development Department, sectoral agencies, and the
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consulting firm hired for the evaluation in the design of the methodology, with the support from one of the leading world experts in this area. In addition, the Project supported the implementation of the Public Expenditure Tracking Survey, one of the elements of the broader range of analytical methodology used for the evaluation.
(B) Social control system. The objective of this sub-component was to develop and implement a system for greater social control for the national Government. This component further developed elements elaborated during the preparation of the PLaRSSAL II, with support of a Japanese grant (PHRD). The Project, along with support provided by the Bank through the preparation and implementation of its Project on Strengthening Public Information, Monitoring and Evaluation for Results Management (Ln. 7620), contributed to the development of results-based management, transparency and accountability through the design and implementation of a series of tools for social oversight. In particular, this component financed the development and implementation of design and implementation of a Social Control System (SCS) for Colombia conformed by the promotion of civil society initiative as Colombia Líder and the design of mechanism to improve the quality of tools available for citizen oversight. Colombia Líder is a civil society organization which includes the Semana weekly publication, Asobancaria (Association of financial institutions, the foundation Antonio Restrepo Barco (Foundation for the promotion of rights and social development, with a focus on children, youth, health, education and social participation), Fedesarrollo (think tank for research in economics, political science and public administration), RCN (Colombian radio and television company), Duke Image (advertizing company), the United Nations Program for Development (UNDP) and the Fescol group (German foundation for the promotion of citizen’s understanding of political and social issues for democracy and plurality). This organization promotes the monitoring and oversight of Government’s policies and strategies to reduce the poverty and inequality. This Project supported activities by DNP that allowed for the establishment of this civil society organization. In particular, it supported the design of a set of indicators to monitor the Government’s strategy to reduce poverty and inequality and local-level policies and strategies (at regional and municipal levels). Since 2007, Colombia Líder has organized several sessions during which civil society monitors the Government’s strategy and policies, and rewards the performance of territorial governments. Some of these sessions are summarized below. Colombia Líder is currently working with the Juntos strategy (national network for the reduction of extreme poverty) to design a prize for the best mayor and governor in the implementation of the strategy.
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Name of session Objectives
Reward to Best Mayor and Governor Recognize the best performing territorial governments
Workshop about Public Information System Disseminate information on the information systems available to the public to monitor social programs
First Session of Dialogue on Poverty Open a national dialogue to share local good practice to reduce poverty
Second Session of Dialogue on Poverty Disseminate and discuss the reform of the decentralization system (allocation of central funds to local governments for the provision of services, Sistema General de Partcipación)
“Good Vote” Disseminate and discuss the platforms of candidates for territorial government elections
Childhood’s real witches Promote a dialogue on programs and strategies for early the early childhood development and poverty reduction among children.
The Project also supported a survey of users of the SIGOB, the national system for the monitoring of Government’s objectives, which monitors the implementation of key policies and programs and the progress towards reaching the targets set by the Government. The survey revealed that the principal users of the system are employees of the public sector, followed by researchers and private citizens. The average user visits the SIGOB website at least once a month, and the main reasons for visiting the site are to get information on the results of government policies. 90 percent of all those interviewed explained that they did find the information they were seeking on the side. 67 percent reported that the information was easy to find and 76 percent considered that information as good quality. Finally, 53 percent of the respondents thought that SIGOB was a good tool for the accountability of the Government to its citizens. The main criticism to the system related to the fact that the information was sometimes incomplete and obsolete, that access to an internet connection with sufficient capacity was not always possible. After the survey, the National Planning Department implemented changes to its SIGOB site and to its broader publication policy. This survey is currently followed up by a broader user’s survey for the entire Monitoring and Evaluation activities of the National Planning Department, as supported by the Bank operation in this area.
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Annex 3. Economic and Financial Analysis Since the Project comprises exclusively technical assistance, economic and financial analysis is not applicable.
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Annex 4. Bank Lending and Implementation Support/Supervision Processes
(a) Task Team members
Names Title Unit Responsibility/ Specialty
Lending Vicente B. Paqueo Consultant EASHD Co-TTL Wendy Cunningham Lead Specialist HDNCYCo-TTL Daniel J. Boyce Country Program Coordinator SACNA Eduardo Brito Sr Counsel LEGAF Legal
Jeannette Estupinan Sr Financial Management Specialist LCSFM Financial Management
Sonia M. Levere Language Program Assistant LCSHH Team Assistant Jose M. Martinez Senior Procurement Specialist LCSPT Procurement Mariangeles Sabella Sr Counsel LEGLA Legal Martha P. Vargas Program Assistant LCSDE Team Assistant
Supervision/ICR Wendy Cunningham Lead Specialist HDNCYTTL till March 2008 Aline Coudouel Senior Economist LCSHS TTL since April 2008Patricia Bernedo Senior Program Assistant LCSHS Team Assistant Elsa Coy Temporary Program Assistant LCCCO Team Assistant Sonia Levere Language Program Assistant LCSHH Team Assistant
Mylenna Cardenas Garcia Consultant, Financial Management LCSFM Financial Management
Jose M. Martinez Senior Procurement Specialist LCSPT Procurement Andrew Mason Lead Economist EAPSP Rafael P. Rofman Lead Social Protection Special LCSHS Andrea Vermehren Sr Social Protection Specialist SASSP Martha Laverde Sr Education Spec. LCSHE Claudio Rodrigo Garcia Verdu Economist LCSPP Diana Isabel Cardenas Consultant LCSHD Karla J. McEvoy Operations Analyst LCSHS Emanuele Baldacci Consultant LCSHS
(b) Staff Time and Cost Staff Time and Cost (Bank Budget Only)
Stage of Project Cycle No. of staff weeks USD Thousands (including
travel and consultant costs) Lending
FY05 27 130.25 FY06 0.00 FY07 0.00
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Staff Time and Cost (Bank Budget Only) Stage of Project Cycle
No. of staff weeks USD Thousands (including travel and consultant costs)
FY08 0.00
Total: 27 130.25 Supervision/ICR
FY05 8 55.30 FY06 17 95.83 FY07 21 81.55 FY08 26 98.26 FY09 14 50.17 FY10 8.3 49.91
Total: 94.3 431.02
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Annex 5. Summary of Borrower’s ICR and/or Comments on Draft ICR The completion report of the Government is included here in its integrality in Spanish.
PREPARACION DEL INFORME DE CIERRE
Proyecto de Asistencia Técnica para la Reforma Laboral y el Ajuste Estructural Social “Technical Assistance Loan 7260– T.A.L”
I. Objetivos originales de desarrollo del Proyecto y principales Indicadores
Los objetivos iniciales del Proyecto consistieron en: (a) ayudar al Prestatario en la ejecución de las actividades formativas de análisis, asesoría, y consenso dentro del MPS, MEN y DNP para promover la gestión con base en resultados; y (b) fortalecer la capacidad para poner en marcha reformas laborales y sociales del Prestatario, el cual se mantuvo durante su ejecución. Este propósito estuvo orientado principalmente a la provisión de asistencia técnica, con el fin de poner en marcha reformas coherentes sobre: i) Protección Social, abarcando empleo, capacitación, salud y asistencia social para la población pobre vulnerable.
ii) Descentralización de la educación ordenada por la Ley 715 de 2001, incluyendo, entre otras cosas, la evaluación del avance en la integración de la educación primaria y secundaria y el alistamiento escolar de los niños de cinco (5) años de edad.
iii) Iniciativa de retroalimentación e información con base en la sociedad civil, concebida para llevar a cabo una evaluación y monitoreo periódicos de los programas de asistencia social del Gobierno Nacional.
Resultados intermedios:
9 Componente Uno MPS
1. Implementación de los recomendaciones en los diferentes roles que conciernen a las agencias (e,g MSP, MEN y SENA) basado sobre las líneas guías propuestas en el reporte del Sistema Nacional de Entrenamiento NTS.
Este indicador se cumplió totalmente y los principales resultados se describen a continuación: Uno de los objetivos de este subcomponente se concentro en desarrollar e implementar un Sistema Nacional de Formación para el trabajo (SNFT), en el marco definido en la Ley 789 de 2002. Dentro de los resultados logrados cabe destacar:
� Ley 1164 de 2007, por medio de la cual se establecieron las disposiciones en materia de Talento Humano en Salud.
� Decreto Reglamentario No. 860 de marzo de 2008, por medio del cual se dictaron medidas transitorias para
la autorización del ejercicio del talento humano en salud.
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� Decreto Reglamentario No. 1730 de mayo de 2008, por medio del cual se reglamentan los mecanismos de escogencia de los representantes al Consejo Nacional de Talento Humano en Salud.
� Decreto No. 2006 de junio de 208, por el cual se crea la Comisión Intersectorial para el Talento Humano.
2. Diseño mejorado e implementación del salario subsidio y del programa de subsidios de desempleo.
Este indicador se cumplió totalmente, los principales resultados se describen a continuación:
� Diseño de Instrumentos de seguimiento y control de las funciones reguladores en el Sistema de Protección Social del ámbito de competencia del Ministerio en concordancia con el sistema de incentivos a la protección laboral, la cual incluye:
i) Cifras y estadísticas relevantes para el diagnóstico de los esquemas actuales de subsidio al empleo y promoción al empleo en general.
ii) Descripción de los roles necesarios en un seguro de desempleo y una propuesta de asignación de esos roles institucionales entre los actores actuales del mercado laboral.
iii) Lista de pasos a seguir para la implementación eficaz de la propuesta de seguro de desempleo. El MPS presentará para concertación antes las diferentes instancias de Gobierno, la ppropuesta Institucional de reordenamiento operativo y de regulación institucional de los programas activos de generación de empleo y protección laboral en concordancia con el diseño de incentivos y formas de financiamiento con recomendaciones para su implementación.
3. Integración de la red existente y la abastecedora de servicios para la población vulnerable dentro del Sistema de Protección Social.
Como tercer reto del Proyecto, se estructuro un indicador para propender por una estructura de financiamiento sostenible, anticíclica y articulada entre sus diferentes fuentes y usos, a partir de la evaluación de los esquemas de financiamiento, así como de sus posibles transformaciones y explorar la posibilidad de incorporar fuentes alternativas de financiamiento para lograr las características antes citadas en la estructura de financiamiento del SNPS. Se puede concluir que este indicador se cumplió parcialmente, considerando que el SNPS depende de los recursos disponibles para el financiamiento tanto a nivel regional como nacional, dentro de los principales logros se destacan:
� Estudio de revisión de cálculos actuariales de los procesos de normalización de pasivos pensiónales del Sistema General de Seguridad Social.
� Documento técnico análisis actuarial sobre las propuestas dirigidas a modificar el Fondo de Garantía de Pensión Mínima del Sistema General de Seguridad Social en Pensiones.
� Documento técnico sobre aspectos metodológicos de la aplicación de criterios actuariales en el diseño y monitoreo de programas del Sistema de Protección Social.
� Estudio Caracterización jurisprudencial de los derechos y la descripción de topologías de aplicación de los derechos con base en las acciones de tutelas, el cual incluyó comparación con la caracterización que se realiza en las sentencias de constitucionalidad más relevantes.
� Propuesta de un diseño de seguro de desempleo teniendo en cuenta las iniciativas existentes. Para este diseño se debe especificar las alternativas de financiamiento y la focalización sobre qué grupo o grupos poblacionales se puede aplicar.
� Documento revisión de los diversos mecanismos de intermediación laboral en Colombia, el cual incluyó análisis de las potencialidades, ventajas y desventajas de cada uno de ellos, identificando grupos poblacionales (tanto de empresarios como de personas buscando empleo) que utilizan estos mecanismos de intermediación laboral, analizando las opciones que tendrían los grupos más vulnerables de la población.
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� Documento revisión de la literatura acerca de retornos y calidad de la educación superior en Colombia y adicionalmente las estimaciones y los resultados acerca de los retornos y la calidad de educación superior en Colombia, así como sus implicaciones de política económica.
4. Promoción en el nivel regional, integrado y coherente con la coordinación de la gerencia pública y las políticas del Sistema Nacional de Protección.
Respecto a la promoción en el nivel regional, en el cual se baso en el diseño e incorporación dentro del proceso de fortalecimiento y consolidación del SNPS una estrategia que comprenda y articule el orden nacional y territorial, se puede concluir que este indicador se cumplió parcialmente, considerando que al cierre del Proyecto se continua en coordinación el Viceministerio de Relaciones Laborales - Dirección General de Inspección, Vigilancia y Control de Trabajo, en la implementación de la Política a nivel nacional, dentro de los principales alcances se pueden destacar:
� Documento técnico sobre los resultados de la evaluación de las finanzas territoriales y los modelos de cofinanciación más utilizados en Colombia.
� Concepto técnico sobre los requerimientos de normatividad o reglamentación que ayudarían en el
fortalecimiento de la administración pública regional del Sistema de Protección Social y los modelos propuestos de cofinanciación.
� Estudio Técnico de la Estrategia a seguir por el MPS, para articular en forma activa la participación de las
direcciones territoriales en conjunto con la nueva estructura del MPS, coordinada con el resto de entidades del sector que participan en el desarrollo del SPS en Colombia, el cual incluyo plan piloto en cinco Direcciones Territoriales.
5. Estrategia para consolidar la operación, la tecnología y las capacidades del SPS sus agencias y sus agentes.
Parte del diseño e implementación del sistema integrado de información de la protección social –SIIPS-, con énfasis en seguridad social, permitió aumentar la eficiencia en términos de impacto, utilización de recursos y focalización. Así mismo, diseño e implemento mecanismos para monitorear y evaluar la ciclicidad de la estructura de financiamiento del SNPS. Este indicador se cumplió totalmente, y dentro de los principales productos obtenidos se puede resaltar:
¾ Fortalecimiento de la Plataforma tecnológica del MPS.
¾ Fortalecimiento de los Sistemas de Información COINFO, RUAF, PILA. A través de este sistema integral el MPS ha logrado obtener:
� Estimación de la estabilidad fiscal del sistema pensional a través de la información de PILA. � Caracterización tanto de la población cotizante como el seguimiento de sus aportes al SSS. � Establecer las principales variables en el diseño del sistema de información. � Diseño de un sistema de información prototipo sobre pensionados basado en PILA. � Modelación del comportamiento de los ingresos y pagos del Sistema de Seguridad Social. � Seguimiento a la adopción de PILA de acuerdo a los Decretos 1931/2006, 1670/2007 y 728 de 2008. � Posible comportamiento de los aportes al SSS con base al comportamiento histórico de los mismos.
6. Numero de programas sobre el MSP siendo sistemáticamente supervisado, evaluado y discutido con el público (ciudadanos desconocidos) y retroalimentando la línea base.
Este indicador se cumplió totalmente, teniendo en cuenta que a grandes rasgos el objetivo se oriento en la revisión de los criterios que orientan la oferta pública existente de servicios de asistencia social, sus políticas, operación y
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cobertura, para establecer un nuevo portafolio focalizado en los hogares más vulnerables frente a los choques que generan un deterioro irreversible sobre el capital humano, dentro de los logros se destacan:
� Estudio sobre Mecanismos legales implementados para evitar la pérdida de subsidios en salud de población con Sisbén 1 y 2 con afiliación incidental en el Régimen Contributivo.
� Proyección de Presupuesto de ingresos del Fondo de Solidaridad Pensional en las subcuentas de solidaridad y subsistencia / Presupuesto ejecutado.
� Estudios técnicos realizados para determinar la posibilidad de utilizar las cesantías como mecanismo de protección laboral, y la viabilidad financiera de su posible aplicación como seguro de desempleo.
� Programas de protección social incluidos en la estructuración financiera. � Avance en la implementación de un sistema de información de pensionados en conjunto con la Dirección
de Seguridad Económica y Pensiones del MPS. � Reformas implementadas el esquema de seguridad social de las madres comunitarias � Estudio de recopilación y análisis de estados financieros de las EPS. � Estudio de Caracterización del mercado laboral de los independientes y afiliados no activos a pensiones. � Proyecciones de impacto fiscal de la implementación del programa BEPS. � Ley No. 1328 del 15 de julio de 2009, Art. 87 Reforma Financiera por medio de la cual se dicta normas en
materia financiera, de seguros y del mercado de valores, entre otras disposiciones.
9 Componente Dos MEN:
1. Mejorar la educación de primera Infancia: Atendiendo a las recomendaciones del estudio realizado en el 2006 por ICESI para evaluar el impacto del proceso de integración institucional sobre la organización, la gestión y la calidad de las instituciones educativas, de seguir fortaleciendo la integración del componente pedagógico y curricular desde preescolar hasta el grado once, con el objeto de buscar una mejor calidad y en relación con la atención de la población menor de 5 años, se presentan los siguientes logros: 1.1. Se sancionó la Ley 1098 de 2006 Código de la Infancia y Adolescencia Mediante que tiene como objeto
establecer normas sustantivas y procesales para la protección integral de los niños, las niñas y los adolescentes, garantizar el ejercicio de sus derechos y libertades consagrados en los instrumentos internacionales de Derechos Humanos, en la Constitución Política y en las leyes, así como su restablecimiento. Dicha garantía y protección será obligación de la familia, la sociedad y el Estado.
1.2. Para atender a este mandamiento legal, el Ministerio de Educación incorporó en su presupuesto un proyecto
de inversión que permitiera destinar recursos del presupuesto nacional a la atención educativa de la primera infancia.
1.3. Mediante Acto Legislativo 04 de 2007, se modificaron artículos 356 y 357 de la Constitución Nacional,
estableciendo que si la tasa de crecimiento real de la economía (Producto Interno Bruto, PIB) certificada por el DANE para el año respectivo es superior al 4%, el incremento de las transferencias de la Nación - SGP será igual a la tasa de inflación causada, más la tasa de crecimiento real, más los puntos porcentuales de diferencia resultantes de comparar la tasa de crecimiento real de la economía certificada por el DANE Y el 4%. Estos recursos adicionales se destinarán a la atención integral de la primera infancia.
1.4. Para garantizar la atención integral a los niños y niñas menores de 5 años, especialmente para aquellos
pertenecientes a los grupos poblacionales más pobres y vulnerables del país, el Ministerio de Educación Nacional (MEN) y el Instituto Colombiano de Bienestar Familiar (ICBF), lideran la implementación de la política educativa para la primera infancia. Esta política se centra en articular las acciones de protección, cuidado, nutrición y educación para propiciar el desarrollo integral de la niñez. La atención integral se presta en diferentes modalidades, tales como la Familiar, la Comunitaria y la Institucional.
En el periodo comprendido entre junio de 2008 y noviembre de 2009, se brindó atención integral a 174.445 nuevos niños y niñas menores de 5 años, con lo cual se llegó a un acumulado de 210.149 menores atendidos
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durante el presente periodo de gobierno. Con relación a los nuevos niños y niñas atendidos: 45.744 se atendieron en la modalidad comunitaria, 36.637 en la modalidad familiar y 38.683 en la modalidad institucional. Por su parte, 53.381 niños recibieron atención bajo las modalidades especiales. De otra parte, se suscribió un convenio con el Instituto Colombiano de Crédito Educativo y Estudios Técnicos en el Exterior (ICETEX), a través del cual se creó un fondo de administración para el fomento a la atención integral a la primera infancia, para subsidiar la atención integral de los niños y niñas menores de cinco años, hasta su ingreso al grado obligatorio de transición. En esta estrategia, los municipios aportan la contrapartida para los componentes de nutrición y cuidado, con los recursos del Sistema General de Participaciones, provenientes del crecimiento real de la economía superior al 4% de la vigencia 2007. A fin de garantizar la correcta articulación de los sectores encargados de la atención integral de la primera infancia, se destaca la capacitación de 800 profesionales en 44 Entidades Territoriales, en “Capacitación, validación, seguimiento y evaluación, de la Ruta Operativa para la prestación del Servicio de la Atención Integral de la Primera Infancia.” Adicionalmente, con el propósito de difundir los ejes básicos de la Política Educativa para la Primera Infancia en el marco de una atención integral, se diseñó una campaña de formación a través de medios de comunicación orientada a brindar herramientas al público en general en torno al cuidado de la primera infancia.
Finalmente, el Ministerio viene trabajando en conjunto con el ICBF, en la consolidación de proyectos de construcción de infraestructura en distintas regiones del país. A la fecha, se tiene previsto adelantar 62 proyectos de Infraestructura para la atención integral a la Primera Infancia, que beneficiarán a 26.850 niños y niñas con una inversión cercana a los $102 mil millones, provenientes de tres fuentes: MEN $40.770 millones, ICBF $29.824 millones y los municipios con recursos provenientes del CONPES 115, $31.431 millones. Los municipios aportarán el predio para la construcción de la infraestructura así como los recursos asignados por el CONPES 115, mientras que el Ministerio de Educación y el ICBF se comprometen a aportar recursos de contrapartida necesarios para financiar en su totalidad la construcción y dotación del mismo. A la fecha 6 infraestructuras cuentan con diseño arquitectónico.
Con la contratación de la Universidad del Valle, en diciembre de 2005, se logro obtener un documento de trabajo de elaboración y aplicación del “Instrumento Descripción de Competencias Básicas en el Grado de Transición”, que se realizo de manera conjunta entre el Instituto de Psicología de la Universidad del Valle, el Ministerio de Educación Nacional y 10 Secretarias de Educación se dio inicio a esta actividad. El propósito de este trabajo fue describir y analizar las competencias básicas de los niños en el grado de transición: comunicativas, ciudadanas, matemáticas y científicas. Cada competencia se define por un grupo funcionamientos mentales que representan un aspecto constitutivo de la competencia. El acceso a los funcionamientos mentales se logra a partir de descriptores que tipifican los desempeños de los niños en la ejecución de tareas que conforman el instrumento. Las conclusiones del estudio se pueden resumir de la siguiente manera:
Los resultados de las actividades de seguimiento permiten establecer la manera como las maestras han comprendido el instrumento y como se han apropiado de su uso y procedimiento de aplicación. Igualmente permiten establecer explícitamente las consideraciones alrededor de diferentes factores que intervienen en este uso y aplicación. El instrumento de descripción de competencias es una herramienta que según lo expuesto por las maestras posibilita establecer la línea base en la que se encuentran los niños con relación a cada uno de los funcionamientos mentales descritos, así como observar los avances de cada uno en el establecimiento de relaciones consigo mismo, con los otros y con el mundo en su totalidad. Al hacer comentarios sobre las tareas que deben ser revisadas, las maestras dirigen sus argumentos principalmente hacia la confusión que se presenta en los niños con las preguntas formuladas en la actividad “descubriendo el tamaño del ratón”. Con relación al número de preguntas consignas en algunas de las actividades del instrumento, las
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maestras en general dicen que son muchas y que al hacerlas todas en una tarea los niños se cansan, pierden interés o no contestan. Finalmente el apartado de otros factores implicados en la aplicación del instrumento, permite comprender una serie de condiciones que se deben tener en cuenta al momento de emplear el instrumento como lo son: El espacio físico, el número de niños, el tiempo de aplicación por tarea, el tiempo total de aplicación de las actividades por grupo, la colaboración en actividades y personal disponible para los niños que no están en la aplicación, así como también el tiempo que se deben tomar las maestras para conocer y comprender el instrumento. La mayor inquietud de las maestras se encuentra en el corto tiempo que tuvieron para apropiarse de las tareas, lograr una buena conceptualización y apropiarse de la metodología propuesta en el instrumento.
2. Mejorar la integración de los niveles de primaria y secundaria: Para que el país avance de manera rápida y sostenida en su proceso de desarrollo social y económico, el Plan de Desarrollo Educativo en el periodo 2006 – 2010 está ejecutando un conjunto de estrategias para dar respuesta a las necesidades de ampliación de la cobertura, mejoramiento de la calidad, pertinencia y eficiencia en la prestación del servicio educativo Con este propósito se han formulado cinco acciones fundamentales que están transformando la educación en Colombia. 2.1. Educación incluyente a lo largo de toda la vida. 2.2. Educación de calidad para innovar y competir. 2.3. Fortalecimiento de la institución educativa. 2.4. Modernización del sector. 2.5. Gestión participativa. Para el caso de los compromisos con el crédito y en la línea de respuesta al los indicadores acordados, la integración de los niveles de primaria y secundaria se desarrolla principalmente a través de la siguiente acción:
2.1. Educación Incluyente a lo largo de toda la vida
El objetivo principal de esta acción es el de ofrecer a todos los colombianos y especialmente a los más vulnerables, la posibilidad de acceder a mayores oportunidades educativas a lo largo de toda la vida, a partir de la integración de todos los niveles educativos, incluyendo esfuerzos desde la primera infancia, hasta la articulación de la educación para el trabajo y el desarrollo humano a la educación formal. Para lograr este objetivo se han diseñado e implementado programas como: 2.1.1. Acceso y permanencia de la educación preescolar, básica y media (5 a 16 años). Una de las principales metas planteadas en el Plan Sectorial es la de garantizar el acceso universal en todos los niveles de la educación básica y ampliar la cobertura en la educación media. Como resultado de las estrategias planteadas, en el año 2009 las tasas de cobertura bruta en educación secundaria y media registraron avances significativos. En el año 2009, se alcanzó una matrícula oficial de 9.440.478 alumnos y se generó un total de 191.871 nuevos cupos oficiales en secundaria y media. En el caso de secundaria, con base en el reporte preliminar con corte al 30 de septiembre de 2009, la matrícula oficial aumentó en 117.488 cupos. La tasa de cobertura bruta en este nivel registró un crecimiento de 3 puntos porcentuales al pasar de 98 % en 2008 a 101.7 % en 2009. Se logró superar en 2 puntos porcentuales la meta de la vigencia y en 1 punto porcentual la definida para el periodo de gobierno, garantizando en 2009 la universalización de la cobertura en este nivel educativo.
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En educación media se generó un total de 74.383 nuevos cupos oficiales, que representan un incremento en la tasa de cobertura bruta de 4 puntos porcentuales, pasando de 71% en 2008 a 75.6% en 2009. El Ministerio de Educación Nacional ha venido mejorando los sistemas de reporte de información del sector educativo, identificando y caracterizando a la población atendida de manera oportuna y precisa. A partir de 2008 las 80 entidades territoriales certificadas, junto con sus instituciones educativas, han hecho uso del sistema de información de matrícula SIMAT, el cual permite hacer seguimiento alumno por alumno. De igual manera, el Ministerio ha desarrollado la campaña Ni Uno Menos, con el propósito de sensibilizar a la comunidad educativa y a toda la sociedad en general sobre la corresponsabilidad e importancia del acceso y permanencia de los niños, niñas y jóvenes en la escuela. Esta campaña, que inició en 2005, se difundió durante los meses de noviembre y diciembre de 2008 y en los dos primeros meses de 2009. En noviembre de 2009 se realizaron nuevas piezas de comunicación masiva y se trabaja en acciones de movilización social en 33 municipios en 19 departamentos del país. En cuanto a la ampliación de Infraestructura escolar, para el incremento de cobertura pública, y en el marco de la política Anticíclica, el Ministerio ha establecido con las entidades territoriales, esquemas de ejecución para la construcción de infraestructura, mediante los cuales se tiene previsto ejecutar, entre 2009 y 2011, aproximadamente un billón de pesos provenientes de diferentes fuentes, tales como Ley 21, Presupuesto General de la Nación, Regalías (directas y FNR), créditos FINDETER y recursos propios de las entidades territoriales. Con esta estrategia se estima generar alrededor de 60.000 empleos directos y 90.000 indirectos. Durante el 2008 y lo que va corrido del 2009 con recursos Ley 21, el Ministerio de Educación ha entregado 1.525 aulas, beneficiando 96.686 niños y jóvenes con proyectos de ampliación de cobertura, atención a emergencias y plan fronteras El programa de acceso y permanencia de la educación preescolar, básica y media contempla las siguientes estrategias: ¾ Atención a la Población Vulnerable. Población en situación de desplazamiento, Sisbén 1 y 2, con necesidades
educativas especiales e indígenas. ¾ Atención a población en situación de pobreza. Con el fin de atender a este grupo poblacional se han venido
desarrollando estrategias de Gratuidad Educativa, Alimentación Escolar, Familias en Acción, Red para la Superación de la Pobreza Extrema – Red Juntos.
¾ Atención a población con necesidades educativas especiales – NEE. Este programa busca generar
mecanismos para hacer efectivos los derechos a la educación, la participación y la igualdad de oportunidades para todos, así como promover la inclusión de las personas con discapacidad en los diferentes grados de educación formal. En desarrollo del programa, desde 2008 se han beneficiado 263 instituciones educativas, 685 docentes capacitados y 70.536 estudiantes, de los cuales 3.646 presentan discapacidad y 239 talentos o capacidades excepcionales.
¾ Población rural dispersa. Con modelos educativos flexibles se busca garantizar la inclusión, acceso educativo y permanencia de los niños, niñas y jóvenes con características de vulnerabilidad al sistema educativo, especialmente para llegar a población dispersa en el área rural. Con ellos se da continuidad a la oferta educativa desde preescolar hasta la media y se atiende con calidad las necesidades educativas específicas de una población determinada. Durante el 2008 se atendieron con modelos como Escuela Nueva, Posprimaria, Media Rural, Aceleración del Aprendizaje, Telesecundaria, SER, SAT, Preescolar escolarizado y semiescolarizado, Círculos del Aprendizaje y Grupos Juveniles Creativos a 1.016.120 niños y jóvenes.
¾ Atención a niños y jóvenes afectados por la violencia. El sector educativo ha atendido de manera preferencial y prioritaria a la población en situación de desplazamiento con recursos del Sistema General de Participaciones y con recursos del Presupuesto General de la Nación destinados a la contratación del servicio educativo, a la implementación de modelos flexibles y a la construcción de infraestructura y dotación de
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mobiliario escolar. Con contratación de la prestación del servicio educativo se generaron en el 2008, 13.444 nuevos cupos para la población desplazada.
Adicionalmente estas estrategias se articulan con la oferta educativa para educación Superior.
2.1.2. Educación para el trabajo y el desarrollo humano (14 años y más) Articulación de la educación media con la superior. En el desarrollo de las competencias laborales específicas se está impulsando la estrategia de articulación de la media con el SENA, la educación superior y la formación para el trabajo y el desarrollo humano. Para garantizar la permanencia de los estudiantes de educación media en el sistema con ofertas académicas pertinentes al desarrollo de las regiones, se promueve la articulación de los estudiantes de grado décimo y once con programas técnicos profesionales ofrecidos por el SENA y por las instituciones de educación superior mediante el fondo de fomento a la educación media. A través de este fondo, en 2008 se financió la matrícula de 2.329 estudiantes de educación media de 73 instituciones educativas ubicadas en 32 secretarías de educación; en 2009 se han entregado 6.509 subsidios a nuevos estudiantes para iniciar su educación superior en programas técnicos profesionales que, con calidad y pertinencia, responden a las apuestas de innovación y competitividad del país; a través del SENA en 2008 se logró una cobertura de 263.127 estudiantes y a través de las instituciones de educación superior 9.529 estudiantes. 2.1.3. Alfabetización y educación básica para jóvenes y adultos (mayores de 15 años) El Programa Nacional de Alfabetización y Educación Básica y media de Jóvenes y Adultos, el MEN con el apoyo de las Secretarías de Educación, acorde con lo establecido en el Decreto 3011 de 1997, han atendido en ciclo 1 a 426.096 jóvenes y adultos iletrados entre 2008 y 2009, en 51 entidades territoriales, a través de la contratación de 3 modelos educativos y la capacitación 16.102 docentes. Para dar cumplimiento a esta actividad, el Ministerio de Educación contrató con la Universidad ICESI la evaluación del impacto del proceso de integración institucional sobre la organización, la gestión y la calidad de las instituciones educativas. El estudio proporcionó una gran cantidad de información que permite realizar un diagnostico de las instituciones educativas en los aspectos ya mencionados, que no necesariamente implica una relación causa-efecto con el proceso de integración pero que se considera muy importante para generar acciones de mejoramiento; por tal razón quedan incluidas dentro del estudio aunque las conclusiones se han centrado en aquellas variables sobre las cuales si se puede establecer una relación tanto cuantitativa como cualitativa entre el antes y el después del proceso de integración. Al culminar el Análisis del estudio sobre el Proceso de Integración de las Instituciones educativas y sus efectos en la Organización escolar, la Gestión y la Calidad educativa, se puede concluir que efectivamente en todos los municipios participantes se ha dado cumplimiento a la Ley 715 de 2001, donde ha ocurrido una nueva conformación de instituciones y se han generado para su funcionamiento procesos financieros, administrativos y pedagógicos de relativa unificación e integración. Los resultados que busca la implementación de esta Ley, en términos del Acceso de los estudiantes a las instituciones educativas, el aumento de la cobertura (en el sector urbano) y la permanencia en el sistema escolar, han sido positivos porque los datos cuantitativos y la información cualitativa obtenida en el estudio, así lo confirman. Paradójicamente otro fenómeno ha mostrado tendencia a su incremento y es la deserción y la repitencia, lo cual lleva a cuestionar las dinámicas internas que se están implementando para responder a una población escolar que presenta unas grandes afecciones sociales producto del desplazamiento masivo, la inestabilidad laboral y la desintegración familiar.
3. Auditorias a la Información de matrícula oficial reportada Con la contratación del proceso de auditoría de matrícula se lograron entre otros los siguientes resultados:
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¾ Verificar en campo poco más de un 20% del total de estudiantes reportados por las entidades territoriales certificadas en educación.
¾ Identificar inconsistencias y hallazgos de auditoría en el reporte de información de matrícula realizado por
las entidades territoriales. Se entiende por hallazgo de auditoría al estudiante reportado en la base de datos de matrícula, que al realizar la verificación presencial y/o documental del mismo, no pudo comprobarse su existencia.
¾ Realizar el descuento de recursos financieros asociado al número de hallazgos de auditoría, garantizando
una asignación eficiente de las transferencias del Sistema General de Participaciones.
¾ Depurar el reporte de información de matrícula, garantizando la estimación y publicación de estadísticas e
indicadores sectoriales veraces y confiables.
Los resultados obtenidos y la evaluación realizada al proceso llevado a cabo en esta vigencia permitieron adicionalmente reorientar la auditoría de matrícula para las siguientes vigencias, estableciendo parámetros y procedimientos más ajustados a los
4. Control de calidad de la información para implementar las reformas establecidas en la Ley 715: Con la contratación del proceso de auditoría de matrícula se lograron entre otros los siguientes resultados:
¾ Verificar en campo poco más de un 20% del total de estudiantes reportados por las entidades territoriales certificadas en educación.
¾ Identificar inconsistencias y hallazgos de auditoría en el reporte de información de matrícula realizado por
las entidades territoriales. Se entiende por hallazgo de auditoría al estudiante reportado en la base de datos de matrícula, que al realizar la verificación presencial y/o documental del mismo, no pudo comprobarse su existencia.
¾ Realizar el descuento de recursos financieros asociado al número de hallazgos de auditoría, garantizando
una asignación eficiente de las transferencias del Sistema General de Participaciones.
¾ Depurar el reporte de información de matrícula, garantizando la estimación y publicación de estadísticas e
indicadores sectoriales veraces y confiables.
Los resultados obtenidos y la evaluación realizada al proceso llevado a cabo en esta vigencia permitieron adicionalmente reorientar la auditoría de matrícula para las siguientes vigencias, estableciendo parámetros y procedimientos más ajustados a los requerimientos que en términos de verificación de información demandaba el Ministerio de Educación Nacional.
Componente Tres DNP:
9 Gravamen para el crédito del sistema para transferencias para la salud y la educación a entidades territoriales bajo ley 7 15.
En el primer semestre del 2007, el Departamento Nacional de Planeación (DNP) a través de la Dirección de Evaluación de Políticas Públicas (DEPP), decidió seguir apoyando al proyecto Colombia Líder (CL), organización de la sociedad civil, conformada por publicaciones Semana, Asobancaria, la Fundación Antonio Restrepo Barco,
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Fedesarrollo, FESCOL, RCN, Duque Imagen y el Programa de las Naciones Unidas para el Desarrollo –PNUD, que busco poner en marcha un sistema de monitoreo y control a las políticas y estrategias del Gobierno para la reducción de la pobreza y la desigualdad, basado en la experiencia y modelo de Bogotá Como Vamos, así como monitorear, evaluar y reconocer las mejores experiencias de programas y políticas de los gobiernos locales y departamentales.
Este apoyo se contemplo dentro de las estrategias de fortalecimiento del componente de rendición de cuentas y control social de la DEPP, con la conformación de alianzas estratégicas entre el Gobierno Nacional y Organizaciones de la Sociedad Civil para el diseño y puesta en marcha de esquemas de rendición de cuentas y seguimiento a las principales políticas del Gobierno. La construcción de una relación fluida y basada en la confianza mutua, garantizará una mejor gobernabilidad, mayores niveles de transparencia y mayor efectividad en la implementación de las políticas y programas del gobierno. Es de anotar que el documento Conpes 102 de septiembre de 2006, reconoció la necesidad del seguimiento y control social para el cumplimiento efectivo de las metas de reducción de la pobreza, y destacó el papel que puede cumplir CL en esta materia. En este contexto el objetivo era actuar de manera autónoma e independiente en la creación de un mecanismo de monitoreo, participación e información de los indicadores sociales, dirigido a la sociedad civil, a partir del seguimiento y monitoreo de los programas estatales dirigidos a la población más pobre y vulnerable.
Como coordinador del Sistema Nacional Evaluación de Resultados -Sinergia, se comprometió a proveer información periódica sobre los resultados y avances de los principales programas y políticas del Gobierno Nacional con el fin de facilitar el objetivo de CL, así como brindar apoyo técnico para el diseño de indicadores de resultado, que les permita cumplir con un efectivo control social que incentive la participación ciudadana y la rendición de cuentas. Así mismo, busco fortalecer el componente de gestión territorial para monitorear, evaluar y reconocer los programas y políticas de los gobiernos locales y departamentales, mediante el apoyo a la evaluación de las propuestas que se presenten en el marco de la Convocatoria del Premio a los Mejores Alcaldes y Gobernadores. Lo anterior permito hacer la sistematización y difusión de las experiencias exitosas, que logre hacer visible la buena gestión pública basada en resultados de los mandatarios locales y departamentales; la coordinación y orientación de las acciones de difusión, discusión y análisis de la información nacional y territorial disponible sobre la gestión de las entidades territoriales, teniendo como referencia a Sinergia y los sistemas de información y seguimiento de la Dirección de Desarrollo Territorial Sostenible (DDTS) del DNP; y la puesta en marcha de una metodología de intercambio y difusión de la información de los resultados producidos por Sinergia. A continuación se enumeran las diferentes acciones realizadas y los diferentes encuentros que CL ha organizo, con diferentes organizaciones del gobierno y de la sociedad civil, para promover diferentes temas enmarcados en sus objetivos. 1. Foro Taller sobre sistemas de información (mayo de 2007), con la participación del DNP, el Ministerio de Ambiente Vivienda y Desarrollo Territorial, el Instituto Geográfico Agustín Codazzi, PNUD, la Veeduría Distrital de Bogotá, la Gobernación del Atlántico, y el Programa de Desarrollo Humano. El propósito era conocer los diferentes sistemas de información con que tienen estas entidades, a partir de los cuales CL y diferentes entidades de la sociedad civil, pueden hacer control social de los programas y metas del Gobierno. Asistentes: 60 personas. 2. Diálogos con los protagonistas. La primera sesión (abril de 2007) se llamó “Lecciones aprendidas para la disminución de la pobreza”. Contó con la participación del Alcalde de Bucaramanga, representantes de diferentes instancias nacionales, la Misión para la Erradicación y Reducción de Pobreza y la Desigualdad, las organizaciones de CL, la academia, entre otros. El propósito era analizar las razones por las cuáles Bucaramanga ha logrado tener resultados satisfactorios en la disminución de la pobreza y que ha impedido que estas situaciones se den en otros entes territoriales. Asistentes: 35 personas. La segunda sesión (julio de 2007) se llamó “Reforma Constitucional al Acto Legislativo que modifica el Sistema General de Participaciones (SGP). Reforma a la ley de competencias y recursos”. Contó con el apoyo de la Fundación Konrad Adenauer Stiftung y la participación de los gobernadores del Atlántico y Santander, el Alcalde de Piedecuesta (Santander), asesores y funcionarios de 10 alcaldías, representantes de la Federación Nacional de Departamentos y la Federación Colombiana de Municipios, la Escuela Superior de Administración Pública -ESAP,
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diferentes medios de comunicación y el DNP. En esta sesión se analizó la posición de los entes territoriales frente a la reforma del SGP y cuáles serían las propuestas a partir de la presentación realizada por Oswaldo Porras, director de la DDTS del DNP. Asistentes: 40 personas 3. Proyecto Vote Bien. En este proyecto -que cuento con el apoyo de Caracol, Semana, PNUD, Fescol, Terra, Comprensa, Congreso Visible, GTZ y Transparencia por Colombia- CL tiene una columna, en la que semanalmente presento, cuáles temas bebían ser abordados por los candidatos a las alcaldías y gobernaciones para las elecciones de Octubre de 2007. 4. Solicitud de información a entidades del Gobierno Nacional con el fin de verificar la información contenida en las propuestas presentadas en el marco del Premio a los Mejores Alcaldes y Gobernadores. En esta acción se les ha solicitado a los ministerios, al DNP y a los organismos de control, la información reportada por los diferentes alcaldes y gobernadores que presentaron propuestas, relacionada con tasas de cobertura de salud y educación e informes de desempeño fiscal e integral, con el fin de poder hacer los análisis y la contratación pertinente. 5. Buenas prácticas de gestión. En coordinación con el PNUD, se trabajo en un documento publicado a finales del año que incluyó las mejores prácticas de gestión de los últimos cuatro años en las diferentes gobernaciones y alcaldías, con el fin de obtener una base para los nuevos gobernantes territoriales. 6. Convenio con la ESAP. Para capacitar a los nuevos alcaldes, con el apoyo de la ESAP, la Federación Colombiana de Municipios, la Fundación Konrad Adenauer, el BID y la Contraloría General de la República, se diseño el programa de capacitación que recibieron los nuevos gobernantes territoriales en el mes de noviembre. 7. Convenio con Educación Compromiso de Todos y Salud Como Vamos. .Ambos proyectos reconocidos por el seguimiento en educación y salud, establecieron convenios con CL, con el fin de trabajar coordinadamente en la obtención de la información para contrastar la información reportada por el sistema de seguimiento a metas del Gobierno Nacional, la información que reportan los ministerios y de esta manera realizar los análisis respectivos, en el marco del componente Observatorio de Reducción de la Pobreza y la Desigualdad. Durante la implementación de esta actividad se llevaron a cabo dos contrataciones con los siguientes fines:
i) Apoyar a Colombia Líder en la implementación del diseño técnico y metodológico del componente de Gestión Territorial. Esquema de difusión que contiene el diseño y coordinación de un foro sobre el desempeño territorial con base en la información nacional disponible y en especial de la información producida por la Dirección de Desarrollo Territorial y Sinergia.
ii) Apoyar a Colombia Líder en la Implementación del diseño técnico y metodológico del componente observatorio de reducción de la pobreza y desigualdad. Diseño de la encuesta de percepción ciudadana frente a la pobreza y la desigualdad.
9 Diseño, piloto que prueba, y puesta en práctica para un sistema de control social (SCS) para Colombia.
Sobre la base del objetivo planteado para este subcomponente se abarcaron las siguientes actividades:
• Apoyo del Departamento Nacional de Planeación a la creación y constitución de Colombia Líder – CL. , durante los años 2006 y 2007, por intermedio de la Dirección de Evaluación de Políticas Públicas – DEPP. Colombia Lider como organización de la sociedad civil, se conformó por publicaciones Semana, Asobancaria, la Fundación Antonio Restrepo Barco, Fedesarrollo, RCN, Duque Imagen y el Programa de las Naciones Unidas para el Desarrollo –PNUD, posteriormente a este grupo se unió Fescol. Su finalidad fue poner en marcha un sistema de monitoreo y control a las políticas y estrategias del Gobierno para la reducción de la pobreza y la desigualdad, basado en la experiencia y el modelo Bogotá Como Vamos, así como monitorear, evaluar y reconocer los programas y políticas de los gobiernos locales y departamentales.
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• Contribución por parte del Dirección de Evaluación de Políticas Públicas en la creación de los principios y principales líneas de intervención de CL. Posteriormente, apoyó la consolidación de las líneas de intervención establecidas mediante la financiación de dos consultorías a saber i) La primera consultoría sentó las bases del componente de monitoreo y control a la estrategia de los gobiernos para reducción de la pobreza y la extrema desigualdad y ii) la segunda consultoría, construyó el componente de seguimiento, evaluación y reconocimiento a las principales políticas y programas de los gobiernos locales y departamentales.
• Desarrollo de la primera encuesta de Percepción y experiencia Ciudadana sobre Transparencia y
Cumplimiento de Metas del Plan Nacional de Desarrollo desarrollada por el Centro Nacional de Consultoría – CNC. A continuación se presenta la ficha técnica.
Metodología Cuantitativa Técnica de Recolección Encuesta presencial con formulario estructurado
Fecha de Campo 1 y el 31 de julio de 2006 Perfil del Informante Mayor de 18 años Universo Población mayor de 18 años de las ciudades Bogotá,
Medellín, Cali, Barranquilla, Cartagena, Santa Marta, Pereira, Ibagué, Pasto, Popayán, Bucaramanga, Cúcuta y Villavicencio.
Muestra 2.025 encuestas Error 2.17% Nivel de confianza 95%
• Aplicación de la encuesta virtual en 2007 para conocer las opiniones de los usuarios del Sistema de Seguimiento a Metas – Sigog sobre el mismo. A continuación se presenta la ficha técnica de la encuesta.
Metodología Cuantitativa Técnica de Recolección Encuesta con formulario electrónico Fecha de Campo Enero - Marzo de 2007 Perfil del Informante Personas mayores de 18 años usuarias de Sigob Universo 6000 personas inscritas en la base de datos de usuarios
de la lista de distribución de la DEPP Muestra 220 encuestas
Acciones llevadas a cabo sobre Control Social a través de Colombia Líder
• Realización del Foro Taller sobre sistemas de información (mayo de 2007), con la participación del DNP, el Ministerio de Ambiente Vivienda y Desarrollo Territorial, el Instituto Geográfico Agustín Codazzi, PNUD, la Veeduría Distrital de Bogotá, la Gobernación del Atlántico, y el Programa de Desarrollo Humano. El propósito fue conocer los diferentes sistemas de información con que tienen estas entidades, a partir de los cuales CL y diferentes entidades de la sociedad civil, pueden hacer control social de los programas y metas del Gobierno. Asistentes: 60 personas.
• Realización de Diálogos con los protagonistas: La primera sesión (abril de 2007) se llamó “Lecciones
aprendidas para la disminución de la pobreza”. Contó con la participación del Alcalde de Bucaramanga, representantes de diferentes instancias nacionales, la Misión para la Erradicación y Reducción de Pobreza y la Desigualdad, las organizaciones de CL, la academia, entre otros. El propósito fue analizar las razones por las cuáles Bucaramanga ha logrado tener resultados satisfactorios en la disminución de la pobreza y que ha impedido que estas situaciones se den en otros entes territoriales. Asistentes: 35 personas. La segunda sesión (julio de 2007) se llamó “Reforma Constitucional al Acto Legislativo que modifica el Sistema
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General de Participaciones (SGP). Reforma a la ley de competencias y recursos”. Contó con el apoyo de la Fundación Konrad Adenauer Stiftung y la participación de los gobernadores del Atlántico y Santander, el Alcalde de Piedecuesta (Santander), asesores y funcionarios de 10 alcaldías, representantes de la Federación Nacional de Departamentos y la Federación Colombiana de Municipios, la Escuela Superior de Administración Pública -ESAP, diferentes medios de comunicación y el DNP. En esta sesión se analizó la posición de los entes territoriales frente a la reforma del SGP y cuáles serían las propuestas a partir de la presentación realizada por Oswaldo Porras, director de la DDTS del DNP. Asistentes: 40 personas.
• Proyecto Vote Bien: En este proyecto -que cuenta con el apoyo de Caracol, Semana, PNUD, Fescol, Terra,
Comprensa, Congreso Visible, GTZ y Transparencia por Colombia- CL tiene una columna, en la que semanalmente presenta, cuáles temas deben ser abordados por los candidatos a las alcaldías y gobernaciones para las elecciones de Octubre de 2007.
• Solicitud de información a entidades del Gobierno Nacional con el fin de verificar la información contenida en las propuestas presentadas en el marco del Premio a los Mejores Alcaldes y Gobernadores. En esta acción se les ha solicitado a los ministerios, al DNP y a los organismos de control, la información reportada por los diferentes alcaldes y gobernadores que presentaron propuestas, relacionada con tasas de cobertura de salud y educación e informes de desempeño fiscal e integral, con el fin de poder hacer los análisis y la contratación pertinente.
• Buenas prácticas de gestión: En coordinación con el PNUD, se está trabajando en un documento que será publicado a finales del año y que contendrá las mejores prácticas de gestión de los últimos cuatro años en las diferentes gobernaciones y alcaldías, y que sirvan de base para los nuevos gobernantes territoriales.
• Convenio con la ESAP: Para capacitar a los nuevos alcaldes, con el apoyo de la ESAP, la Federación
Colombiana de Municipios, la Fundación Konrad Adenauer, el BID y la Contraloría General de la República, se diseñó el programa de capacitación que recibirán los nuevos gobernantes territoriales en el mes de noviembre.
• Convenio con Educación Compromiso de Todos y Salud Como Vamos.
• Con ambos proyectos se está trabajando coordinadamente en la obtención de la información para los
análisis pertinentes, en el marco del componente Observatorio de Reducción de la Pobreza y la Desigualdad.
• Dos de las principales acciones de visibilización de estos componentes se han manifestado en el Premio de
mejores alcaldes y mejor gobernador, que CL entregó en el 2007, y el premio que entregará el próximo año para reconocer a los mejores alcaldes y gobernadores que mejor hayan implementado la estrategia Juntos, que busca disminuir los niveles de pobreza e indigencia en Colombia.
Resultados Encuesta de percepción
Esta encuesta fue un primer ejercicio de aprendizaje de levantamiento de línea de base, que permitió reformular y enfocar mejor algunas preguntas en la segunda versión que se repetirá en diciembre de este año.
Resultados Encuesta virtual Los principales resultados fueron:
• Las personas que más visitan Sigob son funcionarios públicos • La frecuencia que con mayor regularidad es visitado Sigob, es mensual • La razón más señalada para visitar Sigob, es para conocer los resultados de las políticas del gobierno, muy
seguida por interés personal • La gran mayoría de los encuestados si encuentra la información que busca, la califica como buena y cree
que consultar la información disponible es fácil
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• La mayoría de los encuestados considera que Sigob es una buena herramienta de rendición de cuentas del Gobierno Nacional a la ciudadanía y que cree que se cumplió entre un 60 y 80% de lo que prometió el Gobierno, seguido por los que creen que lo prometido se cumplió entre un 40 y 60%
II. Diseño, implementación y experiencia de la operación
¾ Contexto General del Programa El Programa Technical Assistance Loan - T.A.L se diseño como un proyecto de fortalecimiento institucional que permitió a las entidades participantes superar obstáculos de índole técnico y metodológico para llevar a cabo las políticas de mejoramiento de calidad de vida de los ciudadanos, a través de la implementación del Sistema de Protección Social (SPS). El objetivo principal del Proyecto consistió en ayudar al Prestatario en la ejecución de las actividades formativas de análisis, asesoría y consenso dentro del DNP, MEN y MPS para promover la gestión con base en resultados; y fortalecer la capacidad del DNP. MEN y MPS para poner en marcha reformas laborales y sociales del Prestatario. El Programa se financió a través del Contrato de Empréstito BIRF 7260-CO, en el cual se establecieron tres partes ejecutoras, con una participación distribuida de la siguiente manera:
Categorías del proyecto: 20 diciembre 2004
Categoría Parte
Monto (US$ Dólar )
% de
Participación 1. A. Ministerio de la Protección Social 1.060 53 2. B. Ministerio de Educación Nacional 450 23 3. C. Departamento Nacional de
Planeación 450 23
4. Costos Operativos 40 2 Total Monto (millones) 2.000 100
Los aspectos metodológicos que se utilizaron para el logro de las actividades de la evaluación fueron: i) Lineamientos básicos aplicados para el análisis institucional, del flujo de recursos y de operaciones y, ii) lineamientos referentes a la medición de impactos. El análisis se basó en la metodología de Encuestas de Seguimiento al Gasto Público (Public Expenditures Tracking Surveys-PETS)-, ya que son instrumentos que permiten recolectar información acerca de las características de las instituciones que proveen servicios públicos, del funcionamiento de los flujos financieros, de los sistemas de control y rendición de cuentas y de la magnitud y la calidad de los bienes públicos que se producen.
Aunque el proyecto de evaluación resulto ser de un grado de complejidad alta, es claro que la elaboración de la evaluación integral al Sistema General de Participaciones es satisfactoria, debido a que se lograron implementar con éxitos todas las herramientas metodológicas establecidas desde los términos de referencia.
III. F actores principales que afectaron la ejecución y los resultados
¾ Implementación Aunque la evaluación del Proyecto se considera como exitoso, se presentó atraso dada las condiciones de implementación a través de tres entidades del orden nacional, lo cual dificulto en algunas ocasiones el avance en el tiempo planeado.
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Parte A. Fortalecimiento del MPS Atendiendo lo establecido en el Contrato de Empréstito, Articulo III “Convenios Particulares”, Sección 3.01, y en el Manual Operativo del Proyecto, en el Numeral 3. Procesos para la ejecución del crédito, el Ministerio de la Protección Social celebró cuatro Convenios Interadministrativos con el Fondo Financiero de Proyectos de Desarrollo - Fonade para la administración del Proyecto, en los cuales se incluyeron un porcentaje como remuneración al Fondo por estos servicios, financiado con recursos de contrapartida nacional de acuerdo con el siguiente detalle:
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RESUMEN FUENTES DE FINANCIACION CONVENIO MPS – FONADE
Convenio No.
Adición No.
Recursos Crédito
Externo US Dólar
Recursos Contrapartida Nacional US
Dólar 429.907 17.913
1 0 3.5892 13.481 2.459
12 / 195004
3 389.819 17.976
238 / 197049 34.670 4.486
173 / 200814 89.722 15.163
368 / 200831 116.638 42.618
TOTAL 1.074.237 104.203
Fuente: UCP – MPS – Análisis Financiero a 30 de septiembre de 2009 TRM $2.012,67
Parte B. Fortalecimiento del MEN Atrasos considerables atribuibles al tiempo consumido en los alcances, más específicamente en la definición de los términos de referencia de la Evaluación. Dada su complejidad, los términos de referencia debieron responder no solo a las necesidades del Gobierno nacional sino también de los diferentes sectores involucrados. Se debió consumir mucho más tiempo del previsto, hasta que las entidades involucradas y los diversos comités dieran su aprobación. Atrasos considerables al tiempo consumido en los procesos precontractuales para la adjudicación de los contratos, especialmente por su condición de revisión ex – ante. Cabe mencionar que el proyecto de evaluación integral al Sistema General de Participaciones, fue un proyecto bastante complejo y requirió de mucho liderazgo por parte de la Dirección de Evaluación de Políticas Públicas (DEPP), para lograr la coordinación interinstitucional necesaria. De las actividades asociadas al proyecto la que requirió mayor trabajo técnico y operativo fue la del levantamiento de información y diseño de los instrumentos para la recolección de la misma. Lo anterior incidió en la duración del operativo de campo, el cual estaba programado para 1 mes y medio y resultaron ser 3 meses efectivos de trabajo. Lo anterior no incluye los casi 5 meses de construcción de formularios y rutas de campo.
¾ Plazo de Ejecución
El Empréstito se firmo en diciembre de 2004, contemplando como fecha de cierre el 29 de diciembre de 2007, pero su ejecución se extendió en dieciocho (18) meses más, dadas las siguientes circunstancias: 9 La Ley de Garantías Electores, con vigencia hasta el mes de mayo de 2006, no permitió la contratación directa
por parte de todos los entes del Estado. 9 Justificación presentada por el ejecutor de la Categoría 3. DNP, quien sustento aumento en los tiempos
requeridos por parte de la para desarrollar el cronograma de actividades para llevar a cabo la ejecución en la evaluación de impacto del Sistema General de Participación (SGP) y lograr el cumplimiento de los objetivos planeados del Proyecto.
9 Los cambios en la estructura inicial de la Unidad Coordinadora del Proyecto -UCP; toda vez esta se contemplo al inicio de la operación como parte de la organización del Programa de Asistencia a Reformas Sociales – PARS, ejecutado a través del MPS, sin embargo en el año 2006 este programa culminó la etapa de ejecución e
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inició la fase de liquidación, razón por la cual fue necesario replantear la organización para la UCP, solicitando continuar a través del Viceministerio Técnico.
9 Los cambios en la Coordinación Técnica del Proyecto, lo cual implico un proceso y tiempo de apropiación del proyecto.
¾ Recategorización de Recursos La participación inicial para las entidades ejecutoras, se modificó, teniendo en cuenta que para el desarrollo de la operación, se definió en el Manual Operativo, Numeral 1. Organización Institucional, que el MPS atendería esta condición a través de la Unidad Coordinadora del Crédito Externo del Programa de Apoyo a la Reforma de Salud – PARS. Sin embargo transcurrido más de un año de ejecución, en el mes de mayo de 2006, el Programa PARS, culminaba la etapa de ejecución e iniciaba la fase de liquidación, razón fue necesario replantear la organización para la UCP del T.A.L y solicitar ante el Banco Mundial una modificación al Manual Operativo proponiendo, que:
“El Ministerio de la Protección Social a través del Viceministerio Técnico, realizará la coordinación, ejecución y consolidación de las acciones que se desarrollen a través de los distintos componentes y ejecutores del proyecto. De esta forma esta unidad será la coordinadora del Proyecto TAL”.
Aceptada esta nueva estructura, se contempló contratar dos consultores para desarrollar las funciones de Coordinación Técnica y Asesora Financiera, Administrativa y Contable del Crédito. En el mes de agosto de 2007, evaluando los avances en la ejecución del proyecto se evidenció que aunque el empréstito se ejecutó con relativa normalidad presentó atraso en la Categoría 1. Fortalecimiento del Ministerio de la Protección Social - MPS y en la Categoría 3. Fortalecimiento del Departamento Nacional de Planeación - DNP; razón por la cual fue necesario solicitar una extensión a la fecha de cierre y reclasificación de recursos. Ante la nueva situación y con el fin de reducir los costos de ejecución la Dirección Ejecutiva consolido las funciones de la Coordinación Técnica asumiendo en su totalidad la responsabilidad técnica del Proyecto.
¾ Operación después del Cierre Los productos e insumos obtenidos financiados con recursos del Proyecto, en algunos temas fueron implementados y hace parte de los procesos de las entidades ejecutoras.
IV. Evaluación del rol de Banco
En el Diseño (satisfactorio) En relación con el diseño, no se presentaron sugerencias relevantes por parte del Banco que permitieran mejorar el diseño, sin embargo fue importante el apoyo y asesoría del Banco para la construcción de TDR, revisión de productor para las actividades planeadas durante la ejecución del Proyecto.
V. Lecciones Aprendidas
La implementación e institucionalización del proyecto requiere un largo período de tiempo, en la medida que implica en algunos casos las decisiones del Gobierno Nacional. Si bien, el desarrollo técnico del proyecto fue bastante satisfactorio, la institucionalización en el MPS y el Sector es un aspecto que implica un trabajo de concertación y normativo lo cual tomará un tiempo mayor.
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Annex 6. Comments of Co-financiers and Other Partners/Stakeholders Not applicable
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Annex 7. List of Supporting Documents Law 1164 of 2007 Law 1151 of 2007 Law 789 of 2002 Law 715 of 2001 Decree 2020 of 2006 Decree 3771 of 2007 Decree 169 of 2008 Decree 2060 of 2008 Decrees 1293 of 2009 Decree 1294 of 2009 Decree 1800 of 2009 Decree 2196 of 2009 CONPES 81 of 2004 CONPES 102 of 2006 CONPES 105 of 2007 Technical Quality Norms NTC 5555 and NTC 5581 Resolutions 2776, 2779 and 2605
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Map
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