EuropeAid
Reforming Technical Cooperation
__________________
The Backbone Strategy
on TC & its core elements
__________________
EUROPEANCOMMISSION
EuropeAid
2
Main challenges __________
Supply-driven
Not enough focuson results
Mixed standardof experts
quality
Overreliance onnorthern commercial
providersParallel PIUs- outside country
structures – absorb resources and
do not develop capacities
Unsatisfactory tracking
of TA performance …
EuropeAid
International Aid Effectiveness commitments – Paris indicators:
Indicator 4: 50% of TC implemented via coordinated programmes
Indicator 6: reduce by 2/3 the stock of parallell PIUs
EU targets:
Provide all capacity building assistance via coordinated programmes and increasing use of multi donors arrangements
Avoid the establishment of (parallel) PIU
3
Drivers of change __________
EuropeAidEuropean Court of Auditors on TA (2006) __________
Recommended areas of work:
improve design + result orientation
promote new sources/types of providers
better selection of expertise/revision of evaluation criteria
enhance coordination among donors
performance tracking/database
more ownership
4
EuropeAid
5
Improved effectiveness and sustainability of EC development assistance, based on:
Provision of “quality TC” that supports country-led
programmes, based on partner demand and focused
on sustainable results
Provision of support through partner-owned project
implementation arrangements, with a
substantial reduction of Parallel PIUs
Vision __________
EuropeAid
6
7. Avoid use of Parallel PIU & promote effective Project ImplementationArrangements
ECTechnical
Cooperation
1. Primary aim is Capacity Development
2.Demand led approach where TC is not provided by default
8. Consider innovative options for TC provision
3.Strong result orientation
6. Work through harmonized and aligned actions
5. Take account of country/sector requirements
4.Country owned & managed TC processes
Eight guiding principles __________
EuropeAidIn line with the Accra Agenda for Action (AAA) __________
Donors’ support for capacity development will be demand-driven and designed to support country ownership
Developing Countries and Donors will : i) jointly select and manage technical cooperation ii) promote the provision of technical cooperation by local and regional
resources, including through South-South Cooperation
Donors will strengthen their own capacity and skills to be more responsive to developing countries’ needs
7
EuropeAid
8
Four purposes of Technical cooperation __________
EuropeAid
9
1. Strategic dialogue
2. Improve design management & accountability
3. Improve tendering, contracting & other procedures
4. Communication, knowledge management, training
5. Implementation and monitoring of the Strategy
The five working axis __________
EuropeAid
10
At country level – menu of interventions: Support sector/national policies on TC and PIU Support plans for capacity development at sector level Address public sector reforms Promote dialogue on "top up“ Inform other donors on TC operations in the pipeline engage in joint/co-financing
HQ level: participation in ongoing dialogue at international level promote joint guidance organize joint training/sector seminars
Axis 1: Strategic dialogue on TC and PIUs __________
EuropeAid
11
Axis 2: TC design, management and accountability __________
Better design - Guidelines on TC:
Assess demand for TC Consider/adapt to context Assess existing capacity Optimize harmonization Result oriented design Get the right inputs – Dos
and Don’ts in ToR Monitor/evaluate results … beyond PIU towards
implementation arrangements
Process wise:
Partner countries involvement in project design and management
accountability of TC providers to partner countries
Better monitoring and performance assessment systems
EuropeAidA summary of the Guidelines in 6 lines __________
1. Convert ownership into practice : results, roles, inputs to be defined both for partners and donors
2. Assess/adapt to demand, to context and to existing capacity – and harmonize
3. Let results be the driver
4. Analyse options, look for the right type of provider
5. Track / monitor results, ensure domestic accountability
6. …… think in terms of project implementation arrangements
12
EuropeAidFocusing on the partner’s programme __________
Don
or
TC
inp
uts
&activ
ities
is wrongly assumed leading to
Sustainablecapacity and
results
“may” lead toSustainable
capacity and results
Activities by partner and by
donor TC inputs, under
partner leadership
Partn
er-o
wned T
C su
pp
ort
13
DonorTC inputs &activities
EuropeAidLook for results beyond TC deliverable __________
Resu
lt-orie
nte
d T
C su
pport
14
EuropeAid…Programme implementation arrangement… __________
Five key parameters:
1. Governance and accountability
2. Management set-up
3. Logistical autonomy
4. Relations between TC experts, partners and the EC
5. EC’s and other donors’ roles
More autonomous or more integrated depending on purpose / nature of the programme and changing over time
!! No blueprint solutions – help partners to
get it right and flexible
Pro
gra
mm
e im
ple
men
tatio
n a
rrang
em
en
ts 15
EuropeAid
16
Quality Matrix in a snapshot__________
1. Demand,
adequate ownership and capacity of partners
2. Fits the
context and existing capacity
3. The
support is harmonised and sustainability of benefits considered
4. Link to
outputs and expected outcomes
5. The
programme implementation arrangements are appropriate
•Commitment and demand
•Partner participation
• No critical constraints
•Existing capacity enable absorption
•Similar programmes/TC support has worked
• Synergies and harmonisation options explored
•Stand-alone TC support clearly justified
•Results defined beyond TC deliverables
•Partner inputs are specified
•PIA is adequate for results
•Managerial autonomy is adequate
•Partners lead and are accountable to domestic stakeholders
EuropeAid
17
Quality Grid: self assessment at country level __________
1. How have key stakeholders express
their demand (…) ?
2. How does the context analysis confirm that TC is the appropriate aid response (…) ?
3. What synergies and harmonization options have been explored (…)?
4. How are outputs and expected
outcomes defined (…)?
5. How is the PIA design based on results
to be achieved (…)?
To be attached to the Action Fiche for “significant” TC operations and all TC focused programmes
EuropeAid
18
Axis 3: TC procurement, contracting and other procedures __________
Objectives:
More ownership of Partner Governments
Facilitate co-financing and delegated cooperation
Mobilize public sector expertise, including of MS
Improved quality of experts
… These objectives are possible with the existing rules and procedures!
EuropeAidA menu of options __________
Three levels to consider during
Identification and Formulation
Procedures that support the TC
reform
Results
Who is financing?
Co-financing:preferably pooled funding under national leadership
Better harmonisation of TC
Who is managing the action
Delegated Cooperation: preferably the Partner (Decentralised management)
More ownership
What contractual forms
Possible modes of execution (service contract, grant...)
Better CD result
19
EuropeAid Who will be managing the action? __________
20 !! Don’t forget national leadership
EuropeAidHow to contract expertise (public administration expertise as example) __________
21
Service contract Grant
Negotiated procedureor others tendering
Direct award orcall for proposal
EuropeAidWhen justified…. __________
Direct award of a grant:
« Actions with specific caracteristics which require a particular type of body on account of its technical competence, its high degree of specialization or its administrative power » (PRAG)
Well proven competence in the AAP/financing decision
Informal call of interest to MS
Negotiated procedure:
« Where services are entrusted to public sector bodies or to non profit institutions /associations and relate to activities of an institutional nature or designed to provide assistance in the social field » (PRAG)
Informal call of interest to MS
22
EuropeAidGood practices for more quality
CONTENTS PROCESS
Drafting good term of reference take time. Plan ahead!More 14 days necessary for good expertise.
Has the partner be the leader in the drafting? Or at least be involved/consulted?Evaluation grid: specify the
competencies needed (related to local expertise) as a criteriaCheck references
Evaluation of tenders/standard practices: - organise interview for mid term position (telephone, video)-check references
Is the partner responsible for the evaluation? If not how is he involved as a voting member in the evaluation? If not key experts must be approved by partner country. They can ask replacement of key experts.
Monitoring: assess /fill up forms + creation of a database to monitor TC performance
Is the partner supervising the TC activities?
23
EuropeAid
24
EuropeAid
25
Revision of PRAG (finalised end of 2008) __________
Recruitment of individual consultants
Interviews and references of experts
Mobilisation of public expertise
Partner Government ownership (design, evaluation, reporting..)
Suspensive clause for EDF
Mid-term actions:
Database on quality experts Further develop twinning
EuropeAid
26
Axis 4: Communication, knowledge management and training __________
Ongoing broad in-house campaign
Address broader audience at country level
Mobilize and equip internal "strategy communicators/focal points“
Map knowledge centers
EuropeAidwww.capacity4dev.eu: Facilitating exchanges, collaboration and learning __________
Users: EC family the rest of the world, including partner countries, Member
States, other donors, academia and civil society
Content: Advanced knowledge management and search capability User empowered (share knowledge, peer support, upload
material comment, rate, tag etc) Online work groups, collaboration spaces and tools: both
Internal (EC Only) and Public Spaces Dedicated editorial team for high value contents : news,
interviews, hands on practical info, cases studies
Launch: April 09
27
EuropeAid
DRAFT
28
EuropeAidwww.capacity4dev.eu: Structure__________
Contribute to capacity !Upload contents at www.capacity4dev.eu
or send us ideas: [email protected]
Vertical navigation:
1. Capacity development
2. Public Sector Reform
3. PFM
4. Governance
5. Working with TC
6. TC and Reforms
Horizontal access by: Region / Country Sector (DAC) Type of Content Keyword / Tag Date, by Author / submitter…
29
EuropeAid
30
… and training open to other donors and partners __________
Basic training on TC:
Hands-on training kit HQ - Syslog - 1,5 day (+ 0.5
days coaching) (FR) 13-14/05/09 (EN) 22-23/06/09
Country level – for pilot programmes
E-learning – in progress Promote use of internal
trainers
…..and more:
New course on Capacity Development within SWAP at country /sector level
More training on Public Sector Reforms and on PFM reforms
Check on Syslog for upcoming trainings!
EuropeAid
31
Axis 5: Implementation / monitoring of the strategy __________
Implementation Framework set up with identified responsibilities at
HQ and in Delegations
External evaluation of TA launched by the end of 2009
The Panel - Reach out to external partners to dialogue on TC,
including partner countries
European Court of Auditors announced follow up
EuropeAid
32
Implementation at country level __________
January 2009
Mapping of “significant” TC and parallel PIUs
Concise Country Action Plans Redress “policy gaps” in significant TC operations Phase out parallel PIUs existing by 2010 Improve project implementation arrangements Frame the preparation of TC operations and PIUs Grasp opportunities for enhanced coordination
Modulate / specify the strategy at country level
EuropeAidDelegations tasks __________
Dialogue and communication Focus on design and management of programmes –
Apply the Guidelines and their quality criteria Look carefully at the annex on procedures – Plenty of
new options ! Follow up on the mapping of TC and your action plan Contribute/use the platform « Capacity4dev.eu »
Organize training (hands on kit)
Call for Directorate E / HQ support
Identify innovative programmes and communicate
around them to Headquarters
33
EuropeAidHow can headquarters support you __________
A menu of possible activities :
Tailored training and learning/coaching events
Presentations and working sessions with country stakeholders
Identification/support to innovations - ad hoc assistance and coaching
Promotion of the web platform www.capacity4dev.eu including collecting
your views on the platform, etc...
Peer support among delegations at regional / sector level and/or partner
countries, including reviews of mapping and action plans.
EuropeAid
37
Thank you for your attention! __________
For further information:
Internet: www.ec.europa.eu/europeaid/what/delivering-aid/aid-
effectiveness/index_en.htm
www.capacity4dev.eu
Intranet: www.cc.cec/dgintranet/europeaid/activities/adm/
technical_cooperation/index_en.htm
Functional mail box: [email protected]
EuropeAid
38
Glossary / Annexes __________
DAC definition: Technical Cooperation
DAC definition: Coordinated TC
DAC definition: Parallel PIU’s
Project implementation arrangement
ECA recommendations on TA
EuropeAid
39
DAC definition of “Technical cooperation _______
Technical cooperation (also referred to as technical assistance) is the provision of know-how in the form of personnel, training, and research, and associate costs.
It comprises: donor-financed activities that augment the level of knowledge skills technical know-how or productive aptitudes of people in
developing countries and Services such as consultancy, technical support or the
provision of know-how that contribute to the execution of a capital project.
The DAC survey of the Paris Declaration uses this definition and adds that “TC should include both free-standing TC and TC that is embedded in investment programmes or is included in programme based approaches”.
EuropeAid
40
Coordinated TC meets both criteria below:
1. Have relevant country authorities (government or non-government) communicated clear capacity development objectives as part of broader national or sector strategies? (Y/N)
2. Is the technical cooperation aligned with the countries’ capacity development objectives? (Y/N)
… and at least one of the criteria below:
3. Do relevant country authorities have control over the technical cooperation? (Y/N)
4. If more than one donor is involved in supporting country programmes, are there arrangements involving the country authorities in place for coordinating the technical cooperation provided by different donors? (Y/N)
DAC definition of “Coordinated TC” __________
EuropeAid
41
DAC definition of Parallel PIU __________
A PIU is parallel when it is created and operates outside existing country institutional and administrative structures at the behest of a donor. PIUs are said to be parallel when there are three or more “Yes” to the four questions below (anything less counts as integrated):
1. Are the PIUs accountable to the external funding agencies/donors rather than to the country implementing agencies (ministries, departments, agencies etc)? (Y/N)
2. Are the terms of reference for externally appointed staff determined by the donor (rather than by the country implementing agencies)? (Y/N)
3. Is most of the professional staff appointed by the donor (rather than the country implementing agencies)? (Y/N)
4. Is the salary structure of national staff (including benefits) higher than those of civil service personnel? (Y/N)
EuropeAid
42
Programme implementation arrangement __________
Generic term adopted by the EC for the organizational set-up
that any project needs for implementation, whether supported by donors or not. A PIA may focuses on how both donor and country partner inputs will be organized and managed
Five parameters to consider when defining the PIA: 1. Governance and accountability 2. Management set-up3. Logistical autonomy of the PIA 4. Relations between TC experts, partners and the EC 5. EC’s and other donors’ roles in the PIA
EuropeAid
43
European Court of Auditors' Report: 8 recommendations on TA__________
1. Country Strategy Papers to include analysis of institutional
weaknesses & capacity needs.
2. Develop TA guidelines.
3. Improve design of capacity development projects.
4. Review TA procedures for preparation/start-up to allow
more time for implementation and more flexibility.
EuropeAid
5. Review evaluation criteria in TA tenders to reflect
quality and previous experience.
6. Consider more options/choices in procuring technical
expertise, e.g. public institutions and beneficiary
country/region.
7. Increase use of TA through coordinated programmes and
apply implementation arrangement that encourage local
ownership.
8. Assess systematically TA performance (management
information system).
European Court of Auditors' Report: 8 recommendations on TA__________
44