The 2006 Survey on Monitoring the Paris Declaration was undertaken in 34 countries

Transcription

1 2006 Survey on Monitoring The Pris Declrtion Country Chpters BENIN The 2006 Survey on Monitoring the Pris Declrtion ws undertken in 34 countries tht receive id. The results of the survey re presented in two volumes. Volume 1 provides n overview of key findings cross 34 countries. Volume 2 presents the seline nd key findings in ech of the 34 countries tht hve tken prt in the survey. This chpter is sed primrily on the dt nd findings communicted y government nd donors to the OECD through the Pris Declrtion monitoring process. A more detiled description of this process, how this chpter ws drfted nd wht sources were used is included in Volume 1, Chpter 2. Both Volume 1 (Overview) nd Volume 2 (Country Chpters) of the 2006 Survey on Monitoring the Pris Declrtion cn e downloded t the OECD wesite: A second round of monitoring will e orgnised in the first qurter of 2008 nd will e n importnt contriution to the Accr High-Level Forum on Aid Effectiveness in Septemer 2008.

2 4 BENIN THE POPULATION OF BENIN, estimted in 2006 t 7.8 million, hs per cpit income of out USD 510 (gross ntionl income, 2005). Approximtely 33% of the popultion flls elow the ntionl poverty line (2001). Benin hs endorsed the Pris Declrtion, nd oth the government nd the mjority of the donor community endorse the Declrtion. DIMENSIONS BASELINE CHALLENGES PRIORITY ACTIONS Ownership Low-Moderte Overlpping responsiilities within the executive, dupliction of effort, poor dissemintion of informtion on poverty llevition pln mong key plyers. Clrify government gols nd responsiilities towrds donors nd sectorl/themtic groups. Formulte prticiptory id policy. Finlise nd improve sectorl strtegies. Strengthen Poverty Reduction Strtegy system. OVERVIEW Box 4.1 Chllenges nd priority ctions Alignment Moderte Government led is still wek. Donor id is insufficiently cptured within the udget. Follow dministrtive nd institutionl reforms s outlined in the Pulic Expenditure Review. Mke technicl improvements to id mngement system. Donors should give government timely nd ccurte id informtion. Hrmonistion Moderte Project id is sometimes ligned on pper ut not in prctice. Consolidte progrmme-sed pproch in ll sectors. Identify comprtive dvntges of donors in ech sector. Use Poverty Reduction Strtegy Pper s proxy for joint ssistnce strtegy to reinforce complementrity etween donors nd ntionl priorities. Mnging for results Moderte The current udgetry mngement system is not functionl t ll levels nd in ll sectors. Implement monitoring nd evlution system y ensuring sufficient resources, clrifying roles nd responsiilities, nd llocting decision mking functions clerly. Donors should put in plce necessry procedures so tht they cn follow ntionl monitoring nd evlution system. Mutul ccountility Low There is no id effectiveness mtrix. Develop nd gree joint nnul progress pln. Pln n independent monitoring function SURVEY ON MONITORING THE PARIS DECLARATION, BENIN - OECD

3 Net officil development ssistnce (ODA) to Benin in 2004 ws USD 378 million, representing 9.34% of gross ntionl income. The five mjor externl prtners, contriuting pproximtely 73% of ODA in , re Frnce, the Europen Union, the World Bnk, the United Sttes nd Germny. A totl of 15 donors responded to the 2006 seline survey, ccounting for pproximtely 67% of officil id flows to Benin. Notle non-respondents included the United Sttes, whose Millennium Chllenge Account (MCA) in Ferury 2006 grnted USD 307 million to Benin, figure tht represents 81% of totl id to the country in INDICATOR 1 OWNERSHIP OWNERSHIP IS CRITICAL to chieving development results nd is centrl to the Pris Declrtion. It hs een defined s country s ility to exercise effective ledership over its development policies nd strtegies. Achieving this especilly in countries tht rely hevily on id to finnce their development is not simple undertking. Nor, of course, cn it e mesured y single indictor. For donors, it mens supporting countries ledership, policies, institutions nd systems. This is commonly referred to s lignment (see elow). Donors re in etter position to do this when governments set out cler priorities nd opertionl strtegies (the min focus of Indictor 1 of the Pris Declrtion). According to the World Bnk s Aid Effectiveness Review (AER), the government of Benin s efforts to led overll development ssistnce re rther limited. The Ministry of Development, Economy nd Finnce is the locus of government ctivity, ut most work on hrmonistion comes from externl prtners, nd some sources hve noted n unwillingness on the prt of key government officils to tke the reins nd ssert control of their development process in the fce of donors. Sectorl working groups originlly set up y the government hve lost their impetus: for exmple, during the development of the Poverty Reduction Strtegy progress report in 2004, nine government cross-sectorl themtic groups hd to e revived in order to provide inputs. Although the UNDP hd chired roundtle meetings to discuss development id, these meetings hve een discontinued. However, the government is plnning second edition of the Poverty Reduction Strtegy nd this hs spurred some ction the government plns to host workshop to vlidte the strtegy. Developmentl oversight is mnged y externl prtners, nd 17 prtners meet monthly through 12 sectorl or themtic working groups. At the prtners suggestion, some of these working groups re now chired y the relevnt ministry. Further, s prt of the second Poverty Reduction Strtegy plnning process, Poverty Reduction Strtegy working group hs een estlished to co-ordinte inputs from the themtic groups. Indictor 1 of the Pris Declrtion mesures the extent to which country hs n opertionl development strtegy to guide the id co-ordintion effort nd the country s overll development. The score for Indictor 1 is sed on the World Bnk s 2005 Comprehensive Development Frmework (CDF) Progress Report. In the CDF s terms, n opertionl strtegy clls for coherent long-term vision nd medium-term strtegy derived from it; specific trgets serving holistic, lnced nd well-sequenced development strtegy; nd cpcity nd resources for its implementtion. Benin is considered to hve some of these elements nd not others, nd is consequently plced, long with 58% of the countries covered, in ctegory C of the CDF descending scle running from A to E. Only countries in ctegories A or B re considered to hve n opertionl strtegy. Benin is, however, considered to hve coherent long- nd medium-term vision nd strtegy for encting development policy. The Ministry of Plnning developed the long-term vision, entitled Benin 2025: ALAFIA ( Pece nd Hppiness ). The vision is supplemented y Government Action Pln for s well s Poverty Reduction Strtegy, the Document de Strtégie de Réduction de l Puvreté (DSRP), for nd n interim DSRP Progress Report SURVEY ON MONITORING THE PARIS DECLARATION, BENIN - OECD 2007

4 (completed Decemer 2004). The DSRP, which contins detiled progress indictors, is considered the principl reference point for development prtner ctivities in Benin. The four DSRP pillrs re to: strengthen the mcroeconomic frmework over the medium term; develop humn cpitl nd environmentl mngement; strengthen good governnce nd institutionl cpcity; nd promote employment nd strengthen the poor s ility to prticipte in the decision mking nd production processes. The government lso prepred second DSRP or Growth nd Poverty Reduction Strtegy for in which gender equity is prticulr priority. The Strtégie de Croissnce et de Réduction de l Puvreté (SCRP) is sed on five principles: economic growth; infrstructure development; strengthening of humn cpitl; good governnce; nd lnced development of ntionl frmework. An ction progrmme (sed on the SCRP) identifies priority sectors : eduction, sic helth, infrstructure (wter nd snittion, energy, telecommunictions nd trnsport), rurl development, micro-finnce nd smll-medium enterprise development, socil protection, justice nd lw reinforcement, environment, ccelertion of dministrtive reforms nd decentrlistion. In ddition, Ntionl Development Pln will replce the Government Action Pln nd will serve s the mndte of the government, which cme to office in April Additionlly, three-yer Mid-Term Evlution Frmework (MTEF), updted nnully, ws lunched in 2001, nd will link results trgets, policies nd expenditures. The ltest MTEF for chnnels spending in line with DSRP gols: the udget lloction for DSRP priority sectors ws incresed from 10.9% of gross domestic product in to 12.1% in (though the PSRP udget trget ws slightly higher t 12.4%). The MTEF currently under preprtion will lso reflect SCRP gols. Opertionlistion of the DSRP ws t first hmpered y multiplicity of overlpping plnning units: responsiility for DSRP formultion ws shred etween the Ministry of Plnning nd Development, nd the Ministry of Finnce nd Economy. A new institutionl frmework ws introduced in Ferury 2004, under which Commission Ntionle pour le Développement et l Lutte contre l Puvreté (CNDLP) (Ntionl Commission for Development nd Fight ginst Poverty) within the Ministry of Finnce nd Economy ws estlished to tke forwrd the DSRP, lthough responsiility for vrious tsks is still shred mong five seprte deprtments. Although the MTEF helps uild the cpcity of line ministries to develop their udgets, government udget plnning overll is still considered to e wek. The government does not issue consolidted udget, nd the links etween poverty reduction ojectives nd udget lloctions re miniml. Monitoring of the udget is frgmented nd piecemel, nd cpcity t the municipl government level is very low. However, the line ministries re moving towrds resultssed udgeting, nd the centrl government level is dopting results-sed udgeting in its udget execution. The CNDLP now pulishes economic performnce indictors. Despite consulttions nd input from stkeholders (including civil society, municipl governments nd the privte sector) during DSRP formultion, implementtion of the DSRP hs een mrked y lck of involvement y key stkeholders. The process hs een hmpered y poor communiction of DSRP gols, s well s monitoring nd evlution system tht is still not fully opertionl. Wek institutionl cpcity to implement the DSRP (primrily in the re of stff resources nd skills), nd poor inter-ministeril co-ordintion lso hold up progress. The government is to e commended, however, for its efforts to give line ministries greter control nd responsiility over key DSRP items SURVEY ON MONITORING THE PARIS DECLARATION, BENIN - OECD

5 ALIGNMENT SINCE 2001, Benin hs mde considerle strides towrds improving its pulic mngement frmework, nd in recent yers hs hd some success in ligning id with government priorities. Tody, however, significnt prolems remin, which re compounded y lck of communiction mong line ministries, humn resource chllenges (in prticulr, retining nd pying good stff), nd donor prolems such s mission overlp. This clls for solid commitments for chnge oth y the government nd donors. INDICATOR 2 INDICATOR 2 BUILDING RELIABLE COUNTRY SYSTEMS The World Bnk s Country Policy nd Institutionl Assessment (CPIA) gives Benin current score of 4.0 modertely strong for the qulity of udgetry nd pulic finncil mngement. This is slightly ove verge for Interntionl Development Assocition (IDA) countries. Although t the eginning of the decde, mny donors pointed to lck of ledership nd politicl will of the government tht cused them to work t the sectorl or locl government level, the government is now ggressively pursuing improvements. A 2004 Pulic Expenditure Review (PER) found tht only two of the monitoring indictors chieved the highest score, while the mjority of others chieved low or very low scores. Chief mong the prolems to e tckled included the lck of: sectorl ministries ccess to monies outlined in the ntionl udget, relile udget trcking system, pulic ccess to informtion on udget spending, control over use of funds nd system of penlties for those misppropriting funds, nd cler lines of responsiility of the Executive to the Ntionl Assemly on use of funds. The PER emphsised the need for udget reforms to e coupled with dministrtive reforms, nd recommended ctions tht the government hs endorsed. These include steps towrd greter trnsprency, decentrlised finncil mngement, nd more integrted nd electronic finncil mngement system to e dopted y line ministries nd regionl governments. A new inter-ministeril pln ws set up t the end of 2005, nd new minister hs een ppointed to co-ordinte institutionl nd dministrtive reforms. A short- nd medium-term strtegy for pulic finncil reform clled the Cdre de Réforme de l Gestion Budgétire Axée sur les Résultts will no dout strengthen the pulic finnce system nd increse donor confidence. Procurement is prticulr re of concern, lthough numericl score for Indictor 2 (n ssessment of the qulity of the procurement system) is not currently ville. Benin rnks 121st out of 163 on Trnsprency Interntionl s Corruptions Perceptions Index. A 2004 Procurement Lw clls for etter procurement trnsprency, nd the government hs egun pulishing pulic tender results. The new government is now prepring n nti-corruption strtegy. ALIGNING AID FLOWS ON NATIONAL PRIORITIES Benin s Poverty Reduction Strtegy (DSRP) provides sis for externl prtners to lign their support in generl wy with the country s policies, lthough s mentioned, the government does not tke the led in this co-ordintion. An externl prtners working group hs een estlished to co-ordinte inputs from externl prtners to the plnned second Poverty Reduction Strtegy. The lrgest donors in Benin re Denmrk, the Europen Commission (EC), Frnce, Germny, Switzerlnd, the United Sttes nd the World Bnk, which together represent 69% of ll id to Benin. All of these countries id strtegies re ligned with the DSRP. The United Sttes Millennium Chllenge Corportion hs recently signed lrge id greement with Benin which rodly reflects DSRP priorities. Prtners re exploring the possiility of developing joint ssistnce strtegy, ut no concrete plns hve een mde. An Aid Hrmoniztion Technicl Committee, open to ll donors in Benin, is presided over y the government nd rings together the EC, Denmrk, Hollnd, Switzerlnd, UNDP nd USAID SURVEY ON MONITORING THE PARIS DECLARATION, BENIN - OECD 2007

6 Although some externl prtners hve mde preliminry efforts towrds greter decentrlistion of decision mking, more work is needed. The World Bnk nd French development gency oth hve Benin-sed Country Mngers, nd 40% of the World Bnk s projects re mnged from Cotonou. However, technicl stff re still mostly sed t centrl offices rther thn deployed to Benin, mking it difficult for them to prticipte in sectorl nd themtic working groups. One of the ostcles hindering joint country progrmming in Benin is the difficulty of reflecting donor finncil commitments fully nd ccurtely in the ntionl udget. This is the spect of lignment mesured y Indictor 3 of the seline survey. As the survey return notes, project support is not ccurtely reflected in the ntionl udget: while line ministries hold informtion on projects in their sector, this informtion is often not pssed on to the udget Director Generl. The generl trget for this indictor set y the Pris Declrtion (85%) clls for high level of udget relism on the prt of the country uthorities, ccompnied y high degree of willingness nd ility of donors to provide informtion in timely fshion nd in suitle form. Some work hs lredy egun on improving the ntionl udget mngement system nd in modifying the progrmme to trck donor id. The tle provides government s udget estimtes of id flows for fiscl yer 2005 (numertor) s percentge of id disursed y donors for the government sector for the sme period (denomintor). This rtio tells us the degree to which there is discrepncy etween udget estimtes nd ctul disursements. The discrepncy cn e in two directions: indeed udget estimtes cn e either higher or lower thn disursements. In order to hve single mesure of discrepncy tht is lwys less thn 100%, the rtio is flipped when udget estimtes re higher thn disursements. The seline vlue for Indictor 3 in Benin is 47%. Achieving the trget greed in Pris of 74% (hlving the gp) for this indictor will require concerted efforts y donors nd government. CO-ORDINATING SUPPORT TO STRENGTHEN CAPACITY Cpcity constrints significntly undermine the ility of country systems to cpture nd co-ordinte id flows more effectively. The Pris Declrtion commits donors to providing more co-ordinted support to cpcity development under country ledership, with trget of 50% provided in this form y The survey indictes tht currently 56% of reported technicl ssistnce is considered co-ordinted in this sense, which would imply tht there is no gp to close during the yers to However, eneth the numers, there is clerly still significnt work to do. For exmple, though some 25% of Benin s id comes in the form of trining or cpcity Are government udget estimtes comprehensive nd relistic? Government s Aid disursed udget estimtes y donors for of id flows government for FY05 sector in FY05 rtio* c=/ c=/ Africn Dev. Bnk % Belgium 0 6 0% Denmrk % EC % Frnce % Germny % Netherlnds % Switzerlnd % United Ntions % World Bnk % Totl % * rtio is c = / except where government s udget estimtes re greter thn disursements (c = /). INDICATOR 3 Tle SURVEY ON MONITORING THE PARIS DECLARATION, BENIN - OECD

7 INDICATOR 4 Tle 4.2 uilding, the government currently hs no overll cpcity-uilding strtegy (relying for the most prt on externl prtners to suggest res of possile technicl ssistnce), nd the DSRP does not ddress the issue of cpcity uilding. No donors hve formulted co-ordinted pln to ddress cpcity uilding. The government is now developing ntionl policy on cpcity uilding, which is expected to focus on the division of lour mong donors tht is, ensuring tht the most techniclly pproprite donor provides trining in ech re. It is lso expected tht one of the second Poverty Reduction Strtegy pillrs will e cpcity uilding nd trining. Priority res will include griculture, mcro-economic policy nd development, udget mngement, locl dministrtion nd decentrlistion, nd helth, socil protection nd gender issues. In terms of the questionnire nd donors responses to this item, interprettion of the phrse cpcity uilding is clerly n importnt issue. There is no one exhustive list of cpcity-uilding ctivities in Benin; hence, donors responses were not mde using the sme informtion. In prctice, cpcity uilding often tkes the form of non-coordinted projects. Nonetheless, there re signs of progress. For exmple, sket fund ws recently set up y Denmrk, Switzerlnd nd Germny, to help co-ordinte monitoring nd How much technicl ssistnce is co-ordinted with country progrmmes? Co-ordinted technicl co-opertion Totl technicl co-opertion rtio c=/ Africn Dev. Bnk % Belgium 0 1 0% Denmrk % Europen Commission % Frnce 0 6 0% Germny % Netherlnds % Switzerlnd % United Ntions % World Bnk Totl % evlution trining tht will enle the government s Socil Chnge Oservtory to evlute the DSRP. Other specific exmples of more coordinted co-opertion include the Ministry of Mines nd Energy, whose cpcity-uilding progrmme is funded y mny donors; nd the Ministry of Development, Economy nd Finnce s results-sed monitoring progrmme, jointly funded y the Africn Development Bnk nd Denmrk. USING COUNTRY SYSTEMS Indictor 5 is mesure of the use of three components of country pulic finncil mngement systems y donors. According to the survey dt, 52% of flows mke use of ll three components in Benin, nd the verge rte of utilistion of the ntionl procurement system is 64%. All donors included in the survey mke t lest some use of the country s systems. Since Benin s Country Policy nd Institutionl Assessment (CPIA) score for pulic udgetry nd finncil mngement is 4.0, the trget for 2010 is to reduce y one-third the non-utilistion of country systems. Budgetry id, s provided y the World Bnk, the Netherlnds, Switzerlnd nd Frnce, is the most ligned form of ssistnce in Benin. There re multiple other projects nd progrmmes tht re prtilly ligned, such s projects of the West Africn Development Bnk, Frnce, Denmrk nd Germny. The West Africn Development Bnk nd Frnce use the government s procurement system ut not its pulic mngement system. Denmrk uses ntionl procedures, ut with sectorl vritions. Interestingly, there is gret vrition in tke-up rte mong the seprte id gencies run y Frnce nd Germny. Frnce s AFD, for exmple, uses more ligned procedures thn SCAC; while in Germny, KFW utilises more ligned procedures thn GTZ. These vritions clerly hve less to do with stted government priorities nd more to do with the susidiry id gency s own mngement policies. Fully one-third of id is not ligned t ll with government systems, including the United Sttes (oth USAID nd the Millennium Chllenge Account), Belgium, Jpn, Cnd, the UNDP SURVEY ON MONITORING THE PARIS DECLARATION, BENIN - OECD 2007

8 How much id for the government sectors uses country systems? Aid disursed y donors for government sector Budget execution Pulic finncil mngement Finncil reporting c Auditing d rtio vg (,c,d) / Procurement Procurement systems e rtio e / Africn Dev. Bnk % % Belgium % 3 50% Denmrk % 22 66% Europen Commission % 34 71% Frnce % 6 55% Germny % 12 47% Netherlnds % 10 86% Switzerlnd % 1 100% United Ntions % 1 8% World Bnk % 30 54% Totl % % INDICATOR 5 Tle 4.3 nd Chin. The Millennium Chllenge Account hs proposed n entirely seprte reporting system for its recent grnt lloction of USD 307 million. Resons given for non-lignment include the need to see etter nti-corruption mesures in plce nd etter uditing procedures y the Benin government; nd lso the restrictions plced on the donors themselves y their centrl offices (s with Jpn, Belgium nd the EC). Lck of hrmonistion, prticulrly of the Millennium Chllenge Account which represents such huge funding source, is clerly very importnt issue. AVOIDING PARALLEL IMPLEMENTATION STRUCTURES The Pris Declrtion clls for sustntil reduction in the numer of project implementtion units (PIU) tht re prllel, where ppointment decisions nd ccounting reltionships involve the donor lone. The current seline figure for Benin is given s 29 such structures. However, the survey return suggests tht this numer does not reflect the true extent of prllel PIUs in the country: there my e s mny s 70 PIUs in the griculturl nd environment sector lone. Other donors use different pproches tht function in effect like prllel implementtion structure: Swiss id money, for exmple, is given directly in response to proposls from privte, non-governmentl orgnistions. How mny PIUs re prllel to country structures? Prllel PIUs (units) Africn Dev. Bnk 3 Belgium 3 Denmrk 4 Europen Commission 6 Frnce -- Germny 0 Netherlnds 0 Switzerlnd 2 United Ntions 4 World Bnk 7 Totl 29 There is cuse for optimism, though. For exmple, the PIUs of some of the World Bnk s id projects re now housed within the pproprite line ministries. Most of Benin s lrgest id prtners re phsing out, or re plnning to phse out, prllel PIUs. A significnt reduction in PIUs, however, will depend on progress towrds pulic dministrtion reform, nd more united rules nd regultions mong the donors governing their implementtion procedures. INDICATOR 6 Tle SURVEY ON MONITORING THE PARIS DECLARATION, BENIN - OECD

9 INDICATOR 7 Tle 4.5 Are disursements on schedule nd recorded y government? Disursements recorded y government in FY05 Aid scheduled y donors for disursement in FY05 Aid ctully disursed y donors in FY05 FOR REFERENCE ONLY rtio* c=/ c=/ Africn Dev. Bnk % Belgium Denmrk % Europen Commission % Frnce % Germny % Netherlnds % Switzerlnd % United Ntions % World Bnk % Totl % * rtio is c = / except where disursements recorded y government re greter thn id scheduled for disursement (c = /). PROVIDING MORE PREDICTABLE AID Predictility of id is wek, due mostly to the lck of centrlised id lloction informtion t the government level. Indictor 7 focuses on the government s ility to record disursements in its ccounting system for the pproprite yer, for which 53% is the totl recorded vlue for Benin. This figure, roken down y donor, revels high level of oth under- nd over-ccounting of disursements y the government, with the most significnt gps occurring in the EC nd Germny. Even donors own plnned schedules of id versus id ctully disursed cn vry widely: compre, for exmple, the Africn Development Bnk nd the EC s scheduled versus disursed id figures. Like Indictor 3 (id on udget) there re two mesures for Indictor 7. The first is sed on rtio nd provides good indiction s to whether government disursement records re less (rtio under 100%) or more (rtio over 100%) thn wht ws initilly scheduled y ech donor. The second is sed on mesuring the gp ( the predictility gp ). Indictor 7 on predictility hs een designed to encourge progress ginst oth of these ngles so s to grdully close the predictility gp y hlf y In other words, it seeks to improve not only the predictility of ctul disursements ut lso the ccurcy of how they re recorded in government systems n importnt feture of ownership, ccountility nd trnsprency. In Benin, this comined predictility gp mounts to USD 99 million (42% of id scheduled for disursement). Closing this predictility gp will require donors nd government to work incresingly together on vrious fronts t the sme time. They might work t improving: he relism of predictions on volume nd timing of expected disursements; the wy donors notify their disursement to government; nd the comprehensiveness of government s records of disursements mde y donors. The rel ojective will e to reduce significntly the spreds in oth directions, oth etween donor plns nd disursements, nd etween disursements nd their recording y the government. This will not e esy unless the government is le to ddress weknesses in the pulic finncil system overll, estlish ground rules tht moilise donors to provide id informtion in more timely nd ccurte mnner, nd ensure tht its own id SURVEY ON MONITORING THE PARIS DECLARATION, BENIN - OECD 2007

10 figures re more ccurte. Donors must ct to stremline the often widely vrint rules tht they pply to project id nd reform the urdensome nture of donor procedures tht ring disursement lgs in their wke. Encourgingly, the EC is helping the government to define procedure to integrte id grnts into the udget. Across the ord, externl prtners re trying to lign id with the government s nnul udget. UNTYING AID Donors re exploring how to increse the percentge of untied id to Benin. Yet, lrger shre of ilterl id to Benin is coming in the form of udget support, mking it unlikely tht untied id will increse. The Millennium Chllenge Account s ctions in this re will oviously e crucil. INDICATOR 8 HARMONISATION HARMONISATION of donor prctices nd procedures cn enhnce id effectiveness. Where possile, donors re putting in plce joint finncing nd reserch plns, using their own comprtive dvntge when they cn. A progrmme-sed pproch hs een tken in Benin, lthough of course, definitionl ostcles remin. The government hs found it chllenging to come to unified definition of hrmonistion tht fulfils OECD criteri, prticulrly since ech donor seems to hve its own definition of progrmme-sed pproch. A series of workshops in Mrch 2006 on the Pris Declrtion drove home the need to consolidte the progrmme-sed pproch in Benin. USING COMMON ARRANGEMENTS Progress hs een mde towrds use of common rrngements in Benin. In fct, some 17 different sectors hve now dopted progrmme-sed pproch. Under the Joint Approch Agreement for udget support, the government nd externl prtners shre common monitoring frmework to mesure structurl nd sectorl reform progrmmes. At the sectorl level, stkeholders re working to improve joint sector strtegies, progrmmes nd technicl ssistnce. For instnce, sket funding is now in use in the wter nd pulic finncil mngement systems; nd there re sket funds to finnce monitoring nd evlution trining in support of the new DSRP, s well s for griculturl reserch. However, no sector-wide pproches re currently plnned. How much id is progrmme sed? Budget support Other PBAs Totl c=+ Totl disursed d rtio e=c/d Africn Development Bnk % Belgium % Denmrk % Europen Commission % Frnce % Germny % Netherlnds % Switzerlnd % United Ntions % World Bnk % Totl % INDICATOR 9 Tle SURVEY ON MONITORING THE PARIS DECLARATION, BENIN - OECD

11 INDICATOR 10 Tle 4.7 INDICATOR 10 Tle 4.8 Actul results my e some wys ehind the improvements on pper. While mjority of project id is now considered in theory to e hrmonised within line ministries sectorl progrmmes, for exmple, the ctul chnges needed to mke them more ligned (reduction in PIUs, chnge in the multiple nd nonhrmonised dministrtive procedures, seprte monitoring undertken outside of the ntionl monitoring nd evlution structure, etc.) re yet to come in mny cses. The donor community How mny donor missions re co-ordinted? Co-ordinted donor missions (missions) Totl donor missions (missions) rtio c=/ Africn Dev. Bnk % Belgium 0 3 0% Denmrk % EC % Frnce % Germny % Netherlnds % Switzerlnd United Ntions % World Bnk % Totl (discounted*) % * The totl of co-ordinted missions hs een djusted to void doule counting. A discount fctor of 35% hs een pplied. How much country nlysis is co-ordinted? Co-ordinted donor nlyticl work (units) Totl donor nlyticl work (units) rtio c=/ Africn Dev. Bnk % Belgium % Denmrk % EC % Frnce % Germny % Netherlnds % Switzerlnd 0 5 0% United Ntions % World Bnk % Totl (discounted*) % * The totl of co-ordinted nlysis hs een djusted to void doule counting. A discount fctor of 25% hs een pplied. does not plce high priority on dividing up work sed on comprtive dvntge. From sector to sector, implementtion of the progrmme-sed pproch hs een uneven. In certin issue res nd sectors, such s decentrlistion nd griculture, the link etween progrmme udget nd strtegic vision remins frgile. Rel progrmmesed pproches will depend on consolidtion of sectorl strtegy. The true seline is therefore somewhere elow 61%, nd reching the Pris Declrtion trget for 2010 (66%) will e correspondingly hrder to chieve. CONDUCTING JOINT MISSIONS AND SHARING ANALYSIS The seline figure for co-ordintion of donor missions is just 14%, considerly elow the Pris Declrtion trget of 40%. However, nnul reviews of certin sectors re tken jointly mong donors, including wter, helth nd eduction, where donors develop joint mission schedules. A Hrmonistion Action Pln clls upon donors to pln more joint missions. However, the government does not yet hve forml mechnism for co-ordinting missions mong different donors, nd clerly there is room for much work. For exmple, in June 2006, in the decentrlistion sector lone, six prllel plnning missions were undertken y six different donors (Switzerlnd, Denmrk, the EC, Frnce, Germny nd Belgium). As positive sign, joint nlyticl work is ecoming more common, nd the seline proportion is 38%. The Africn Development Bnk, the UN system, the World Bnk, Denmrk, the EC nd the Netherlnds ll conduct joint exercises. There hs een joint dignostic work in the re of pulic finnce. The UN nd the World Bnk pooled their expertise in Common Country Assessment in 2002, while in 2004, the World Bnk nd Denmrk completed joint Pulic Expenditure Review. Four donors prticipted in the most recent Country Finncil Accountility Assessment. Joint sector reviews re conducted in the res of helth, eduction, wter, nd udget support. A country nlyticl wesite shred y donors now hs 21 documents posted. These encourging signs side, the trget of 60% joint work y 2010 will e mjor lep without renewed efforts on the prt of government nd donors SURVEY ON MONITORING THE PARIS DECLARATION, BENIN - OECD 2007

12 MANAGING FOR RESULTS THE PARIS DECLARATION urges prtner countries nd donors to work together to mnge resources on the sis of desired results, nd to use informtion to improve decision mking. This mens oth strengthening the cpcity to undertke such mngement nd helping to increse the demnd for focus on results. Indictor 11 trgets one component of this effort: the estlishment of cost-effective results-oriented reporting nd ssessment systems y the country. Benin hs received C rting in terms of the qulity of its results monitoring system ccording to the World Bnk s CDF Progress Report. This mens tht Benin rnks mong 42% of IDA smple countries tht hve some ut not ll of the elements of such system. This reflects prticulr strengths nd indequcies in three res: the qulity of the ville development informtion, the degree to which stkeholders hve ccess to it, nd the extent of co-ordinted monitoring nd evlution of the country s development efforts. The AER reports tht the vilility nd qulity of poverty-relted dt re improving. Dt for monitoring expenditures nd poverty is ville, nd the government is ttempting to strengthen its cpcity. The Ntionl Sttistics Institute collects nd nlyses dt, nd the government hs lunched Poverty Reduction Informtion System (BenInfo) sed on the 2003 Core Welfre Indictors Questionnire nd Poverty Assessment. The World Bnk commends progress on improving household living stndrds monitoring nd the prevlence of income poverty, which egn in Mrch 2004 when the government held workshop on this suject nd developed plns for improving household dt collection. The government s dt collection system is opertionl ut needs to e revmped. In terms of country-level monitoring nd evlution, the government nd donors re strengthening the system in plce, first y helping to clrify the roles of the two deprtments responsile for evlution nd identifying cpcity uilding needs in formlised pln. They re lso plnning seline household survey, nd three-yer monitoring nd evlution progrm to e mnged y the Socil Chnge Oservtory. Monitoring nd evlution units hve een estlished in most DRSP-relted line ministries. Until recently, the DSRP hs een distriuted informlly mong stkeholders. After initil delys, it ws lunched in Decemer 2004 with more forml communictions pln including wesite puliction nd pulic communictions of the DSRP. The pln hs een trnslted into English, though not into ny locl lnguges. INDICATOR 11 MUTUAL ACCOUNTABILITY THE PARIS DECLARATION clls for donors nd prtner countries to e ccountle to ech other for the use of development resources, nd in wy tht strengthens pulic support for ntionl policies nd development ssistnce. This in turn requires governments to improve country ccountility systems nd donors to e trnsprent out their own contriutions. Indictor 12 seeks to estlish whether there is countrylevel mechnism permitting joint ssessment of progress in implementing greed commitments on id effectiveness, including those in the Declrtion itself. The government of Benin is signtory of the Pris Declrtion on Aid Effectiveness. In 2004, the Hrmoniztion Technicl Committee developed Hrmonistion Action Pln, which is eing dopted y other donors. However, the government hs not prepred prllel ction pln. In Mrch 2005, workshops were held to develop frmework for development effectiveness, t which donors pressed to dopt the Pris Declrtion frmework nd indictors for mutul ccountility. INDICATOR SURVEY ON MONITORING THE PARIS DECLARATION, BENIN - OECD

13 Donors re working to include trgets of the Pris Declrtion into the second Poverty Reduction Strtegy. Additionlly, in Decemer 2006, n updte ws completed on the implementtion of the Pris Declrtion in Benin. A workshop rought together 60 government nd donor prtners who greed to estlish joint government-donor id effectiveness ction pln for Overll, it is considered tht Benin hs not chieved the work needed for mutul evlution. Nonetheless, the current inititive of government nd donors to estlish joint id effectiveness ction pln is expected to usher in plns for mutul evlution system. BASELINES AND TARGETS THE TABLE BELOW presents the 2005 selines nd the trgets for Benin. The seline vlues re tken from the discussion ove, which drws on vrious sources of informtion. The min source is the seline survey undertken in Benin under the egis of the Ntionl Co-ordintor (Rigoert Lourou). Tle 4.9 s nd trgets INDICATORS 2005 BASELINE 2010 TARGET 1 Ownership Opertionl PRS C B or A 2 Qulity of PFM systems Qulity procurement systems Not ville Not pplicle 3 Aid reported on udget 47% 85% 4 Co-ordinted cpcity development 56% 50% 5 Use of country PFM systems (id flows) 52% 68% 5 Use of country procurement systems (id flows) 64% Not pplicle 6 Prllel PIUs In-yer predictility 53% 77% 8 Untied id 79% More thn 79% 9 Use of progrmme-sed pproches 61% 66% 10 Co-ordinted missions 14% 40% 10 Co-ordinted country nlytic work 38% 66% 11 Sound performnce ssessment frmework C B or A 12 Reviews of mutul ccountility No Yes ACRONYMS AER Aid Effectiveness Review CDF Comprehensive Development Frmework CNDLP Commission Ntionle pour le Développement et l Lutte contre l Puvreté (Ntionl Commission for Development nd Fight ginst Poverty) CPIA Country Policy nd Institutionl Assessment DSRP Document de Strtégie de Réduction de l Puvreté (Poverty Reduction Strtegy) EC Europen Commission IDA Interntionl Development Assocition ODA officil development ssistnce MCA Millennium Chllenge Account MTEF Mid-Term Evlution Frmework PER Pulic Expenditure Review PIU project implementtion unit SCRP Strtégie de Croissnce et de Réduction de l Puvreté SURVEY ON MONITORING THE PARIS DECLARATION, BENIN - OECD 2007