Pro-Poor, Planning, Budgeting and Monitoring Project (P3BM ...

Pro-Poor, Planning, Budgeting and Monitoring Project (P3BM) – 2012 Progress Report
Summary Information
Status
Task Team Leader
Executing Agency
Start date to Closing
Date
Geographic
Coverage
Approved Budget
Being activated
Hans Antlov, hantlov@worldbank.org
Kemitraan – The Partnership for Governance Reforms
February 1 2013 to December 31 2013, to be extended to 24 months
total after PSF extension
National
US$1,665,000
1) Project Rationale and Overview
The objective of the Pro-Poor Planning, Budgeting and Monitoring Project (P3BM) is to improve
poverty targeting of local government expenditures and local government responsiveness to
community needs through the scale-up and institutionalization of the P3BM Toolkit. PNPM
Mandiri has been successful in improving participatory planning and building assets at the
community level. To further accelerate national poverty eradication efforts there is also a need
to ensure that poverty targets and community priorities are properly accommodated in districtlevel
operations. P3BM is a set of tools and instruments that local government officials can use
to ensure and assess that local budgets and plans are pro-poor and sensitive to socio-economic
inequalities and that can be used to track the execution of such plans. The underlying
development assumption is that the availability and use of reliable evidence and data can make
planning decisions more pro-poor and responsive to local needs.
Building on pilots implemented under Phase One of the Local Government Capacity
Development (LGCD) project (See: LGCD 2012 Progress Report), an independent assessment of
the program and consultations and coordination with project stakeholders, Phase Two will
scale-up and institutionalize the P3BM program with the aim of ensuring that local government
officials across the country have the information and instruments they need to produce work
plans and budgets that are pro-poor and sensitive to socio-economic inequalities, and that
citizens have access to monitoring tools to ensure that such plans are implemented.
Project activities include provincial cascade training (ToT) for master trainers; establishment of
provincial P3BM Joint Secretariats and support from the National P3BM Secretariat; technical
assistance to selected district governments; mainstreaming a new monitoring tool for Bappeda
and communities to assess district technical agency actual implementation against planning and
budgeting; and design of a strong information and monitoring and evaluation framework (see
also the section on Future Plans).
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The Phase Two of the P3BM project was approved by the JMC in April 2012 and will be
operational in January 2013, with Kemitraan/Partnership for Governance Reforms as
implementing agency, with Bappenas’ Poverty Reduction Unit providing strategic guidance.
2) Progress in Previous Years
The P3BM toolkit was originally designed in 2007-2009 by ADB and UNDP. Since 2010, the
P3BM program has been managed by Bappenas, who requested support from the PSF for
capacity-building and an initial series of pilots under the Local Government Capacity
Development (LGCD) project. During this first phase (2010-2012), training in the P3BM toolkit
was provided for 32 national master trainers and 60 provincial master trainers, who in turn
trained 213 officials from 29 local governments. P3BM trainings and workshops were
conducted in collaboration with PNPM-Urban and PNPM-Integrasi which resulted in a more
integrated approach in the local planning practice. A network of P3BM and MDG scorecards
practitioners was established, with the potential of raising awareness of the need of local
government to be more responsive to community needs. Following-up on the P3BM training,
the provincial and district governments in Banten, East Nusa Tenggara, Pekalongan, Bekasi,
Depok, East Belitung, Cilegon, and Serang financed a series of P3BM trainings to support the
rolling-out of the P3BM toolkit and improve pro-poor planning and budgeting. Outcomes in
these locations included the establishment of a database system on MDGs and local
development which feeds into the district planning and budgeting document. Poverty data has
been verified and validated through multi-stakeholder forum, while in Banten a P3BM Clinic has
been established through a Governor’s Decree to institutionalize pro-poor planning and
support village planning processes.
In 2011, an independent evaluation of P3BM was conducted in 10 districts to assess the
effectiveness of the toolkit to support local government to produce better targeting in their
planning and budgeting documents and also to identify barriers and challenges in the adoption
and institutionalization of such tools. The evaluation showed that P3BM has been beneficial for
target local governments in three main fields: poverty data management, providing directions
for pro-poor planning, and improvement of planning documents. Key results reported were:
a. Several target jurisdictions reported that their annual SKPD plans have been revised based
on poverty targets after applying P3BM;
b. District mid-term development planning and annual budgeting were revised based on MDG
targets, closing the gaps between various planning documents and ensure consistency
between planning and budgeting;
c. Large positive response from the regions (including provincial governments), with many
jurisdictions requesting advanced training and technical assistance;
d. TNP2K were referencing P3BM as a key tool for subnational governments in the planning
and implementation of GoI poverty reduction programs;
e. UNDP was committed to continue support for the institutionalization and alignment of
P3BM into national regulation and MDG policy, and support NGOs to use the monitoring
module to track development targets.
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With this positive outcome, Bappenas requested that the P3BM component under LGCD was
scaled-up under a separate trust fund.
3) Progress in 2012
The JMC endorsed the design for Phase Two in April 2012. With funding from the LGCD project,
a limited number of activities were carried out in 2012 to prepare for the launch of Phase Two.
A second batch of 25 national master trainers were trained in September 2012, and a refresher
course was provided for 32 master trainer originally trained in 2008-2010. To try-out the Phase
Two model, facilitation of P3BM training was provided in the provinces of Papua, West Papua,
Gorontalo and Bangka-Belitung and the districts of Lombok Tengah, Lebak, Pagar Alam, Kubu
Raya, Depok, Cilegon and Serang, funded by local budgets (APBD), Bappenas and UNDP.
Some of the weaknesses of the P3BM approach which were identified during assessments,
including an almost exclusive focus on planning (See also Lessons Learned section below), have
been addressed through this new design. Revisions include:
a. A new monitoring module will be tried out and implemented. This module will consist of
two parts: first, a third party monitoring and expenditure tracking tool for development
plans (including NGO, local universities and communities); and second, a part that will
allow tracking by local government authorities of SKPD expenditures. This will allow a
stronger focus on the quality of actual expenditure, not just what is in the plan.
b. The P3BM National Secretariat will work closely with Bappenas and TNP2K to explore
possibilities to provide incentives for local governments to make plans more sensitive to
MDG targets (and to use the P3BM toolkit). This will include providing public recognition to
high-performing districts and to provide additional financial support to certain areas to
meet the MDG targets, encouraging the use of P3BM. This endeavour to make local
government planning and budgeting pro-poor and sensitive to poverty targets is supported
by the recent Law no 13/2011 on “Management of the Poor”, encouraging subnational
governments to undertake pro‐poor programs with their own resources.
c. The target audience of P3BM stakeholders will be enlarged to include DPRD members.
Options will be explored for involving the DPRD Secretariat (Sekwan) and the DPRD Budget
Commission in training. DPRD members will also actively participate when the analytical
results of P3BM are being discussed by the government. This might contribute to greater
consistency between priorities in the planning and the budgeting process.
A mapping of various local governments’ pro-poor planning and budgeting instruments was
carried out, providing recommendations to Bappenas’ Poverty Reduction Unit. A coordination
meeting was held by Bappenas in April 2012 to discuss the mapping results and agree on
follow-up actions with regard to P3BM scale-up plans. A number of meetings were also
conducted to initiate closer collaboration with the MDG National Secretariat and TNP2K with
regard to the implementation of P3BM. Finally, during the 2012 Musrenbang development
planning cycle, the P3BM toolkit was piloted in a number of sub-districts in Serang (Banten),
showing very positive results in the type of village proposals were prioritized, with a strong
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focus on maternal and neo-natal health, which had been identified as a critical issue in Serang.
This approach will be incorporated into Phase Two.
The processing of the grant agreement with Kemitraan is progressing well and signing is
expected in early 2013.
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4) Key Results
Result
Indicators
Unit of
Measure
Baseline
Total Target
Before
2011
Targets (cumulative)
2011 2012 2013 2014 2015
Delivered
in 2012
(only)
Cumulative
Progress as
of Dec 31,
2012
Difference
with
cumulative
target for
2012
Comments
on
progress
PDO: To improve poverty targeting of local government expenditures and local government responsiveness to community needs through the scale-up and
institutionalization of the P3BM program.
11 LGs
# of local
adopted
governments
P3BM in
that have
2012 under
adopted
LGCD phase
11
poverty # of LGs
71 - - - 31 71 - - - -
one – 60
(2012)
targeting in
‘additional
annual
LGs’
development
planned
planning
under this
project
Increased
percentage
of direct LG
budgets
allocated for
MDG
targeting and
povertyrelated
spending
% of
budget
Baseline
survey
in early
2013
+7.5% (TBC) 0 0 0 5% 7.5% - - - -
Component 1: Provincial cascade training for Master Trainers and Technical Assistance for Provinces
# master
trainers
trained
# of
trainees
152
(2012)
432 - - - 272 432 - - - -
Increases
should start
materializin
g in 2013.
152
trainees
under
LGCD, 280
additional
planned
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under this
project
# of P3BM
provincial
clinics
established
# of CSOs and
community
groups that
use P3BM
instruments
to track
district propoor
expenditures
# of clinic
established
2 (2012) 17 - - - 12 17 - - - -
# of CSOs 0 60 - - - 30 60 - - - -
Component 2: Establish a National Secretariat and Provide Institutional Support
Business plan
developed
for the longterm
sustainability
of P3BM
District-level
MDG data
improved
# of
business
plans
Use of
database
0
Business plan
implemented
Database
rolled-out
nationally by
TNP2K &
Nat’al MDG
Secretariat
- -
- - -
BP
draft
ed
DB
prep
ared
BP
Impl
eme
nted
DB
rolle
d
out
- -
- - - -
2 clinics
established
under
LGCD, 15
additional
planned
under this
project
Activities to
begin in
2013
Activities to
begin in
2013
Activities to
begin in
2013
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5) Lessons learned
• P3BM needs to focus more on monitoring and quality of expenditure. To date, the
program has been heavily focused on planning, and is not linked to implementation and
spending quality of service delivery. This has limited the impact of the toolkit, since
there is a discrepancy between planning, budgeting and actual service delivery. There
are also important lessons with regard to the capacity of local government to adopt the
tools, the logistical constraints to actually have the data available to make the tool
effective, the political will in the district and in the technical agencies to actually use the
tool, and the lack of clarity on the platform (TKPKD) where this tool will be used.
Adjustments have been made for Phase Two to address these weaknesses.
• District-level poverty data and information needs to be better coordinated. Based on
pilots during Phase One, this will addressed during Phase Two through “Forum Data” at
the province and district level where consolidation of existing data on poverty and
MDGs status generated from the Central Bureau of Statistics (BPS), Bappeda and SKPD
will take place, agreed by local stakeholders, facilitated by the project. The provincial
P3BM secretariats will also be encouraged to collaborate with PNPM programs to
ensure that accurate poverty data are also made available at the community level.
TNP2K in collaboration with UNDP are also supporting the improvement of poverty data
at the sub-national level and discussions for collaboration in data collection and analysis
are taking place.
• In order to achive expected results, Bupati and DPRD must be invited during P3BM
socialisation and launching of program activities, getting their support to the analysis
conducted by government officials taking part in the P3BM training. Likewise, involving
Camat during sub-district training proved effective in terms of collecting more
comprehensive poverty data and to support the harmonisation of data from village to
sub-district level. The involvement of Camat also have been usefull in supporting
integration of participatory planning with regular planning.
6) Future plans
With the Grant Agreement to be signed with implementing agency Kemitraan during early
2013, Phase Two will fully launch during the first quarter of 2013. Key activities which will be
conducted include:
• Provincial cascade training (ToT) for Master Trainers. The scale-up of P3BM will continue
the cascade training began under Phase One. The national master trainers will train an
additional 280 provincial master-trainers clustered into six larger regional events. Training
of trainers will also be done at the national level to increase the number of National Master
Trainers to facilitate province and districts’ requests of P3BM training and technical
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assistance. Training will be done not only on P3BM, but also facilitation skills including
interactive training design.
• Packages of Technical Assistance for Provinces. These P3BM master trainers (national and
provincial) will respond to the needs of local governments to improve their planning,
budgeting and public service monitoring. They will provide continuous technical assistance
to district governments in terms of the utilization of the P3BM instruments to improve
their development planning. 15 provinces will be selected for further support, based on a
commitment to share costs for the training and technical assistance. In these 15 provinces,
“P3BM Joint Secretariats” will be established, consisting of the pool of Provincial Master
Trainers supported by a small secretariat. Activities managed by the subnational P3BM
Task Force (with support from the National Secretariat) include: (i) providing technical
assistance (but no funding) for district governments that have adopted the P3BM
approach, (ii) developing MDG information offices; and (iii) mainstreaming a new
monitoring tool for Bappeda and communities to assess local government technical
agencies actual implementation against planning and budgeting.
• Institutional Support and National Secretariat. A system to institutionalize and provide
national information about the P3BM will be designed that includes core support for the
National Secretariat, establishment of national P3BM task force (consisting of the national
master training who will provide support at the province level) and design of a strong
information and monitoring and evaluation framework. This will involve regular tracking of
the results of P3BM training, documenting best practices, and publicizing regular P3BM
newsletter and updates on national MDG/poverty targets.
7) Disbursement Performance
N/A: Implementation will start in 2013.
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