Malawi Government Framework for Strengthening the Functions of the Ministry of Gender, Children and Social Welfare 2014 2018 April 2014
FOREWORD The Ministry of Gender, Children and Social Welfare (MoGCSW) has developed the Framework for Strengthening the Functions of the Ministry of Gender, Children and Social Welfare in response to various challenges the ministry faces in the implementation of its core business. This document presents the framework and an implementation strategy, an activity plan, and a monitoring and evaluation plan. The framework is intended to help the MoGCSW improve coordination across its programme areas; provide for more systematic staff development; mobilise and allocate resources more efficiently; and improve programme implementation, supervision, and monitoring. It addresses MoGCSW s roles of leadership and governance, coordination, workforce development, financing, and information management. The framework offers opportunities for meeting the ministry s short- and long-term national goals, as set forth in the Constitution of Malawi (1994), Vision 2020 (1998), the Malawi Growth and Development Strategy II (2011 to 2016), the Economic Recovery Plan (2012), the Joint Sector Strategic Plan for the Gender, Youth and Sports Sector Working Group (2012 to 2017), as well as the Millennium Development Goals (2000). The framework will enhance the ministry s capacity to fulfill its mandate and contribute to the country s economic growth. Therefore, the ministry pledges its full commitment to implementing the framework and to creating an environment conducive to stakeholders participation in that task. Since the framework requires adequate financial and technical support, it is my hope that development and cooperating partners will support the MoGCSW s implementation activities. In so doing, our partnerships will be strengthened. I urge all ministry staff, stakeholders, and partners to support implementation of this framework in order to improve service delivery and effectively contribute to the country s poverty reduction efforts, thereby improving the welfare of women, men, girls, and boys at all levels. Mary Clara Makungwa MINISTER OF GENDER, CHILDREN AND SOCIAL WELFARE ii
PREFACE The Ministry of Gender, Children and Social Welfare, in the execution of its mandate, has emphasised effective and improved service delivery. There is, however, consensus among stakeholders that a number of challenges are constraining improvements in the ministry s delivery of services. Some of these challenges include poor coordination within the ministry and with its stakeholders; human resource capacity gaps; inadequate financial and technical resources to effectively implement programmes and projects; and a poor and fragmented information management system. The ministry recognises that its success and that of its partners depends on adequate financial resources, efficient organizational systems and tools, a workforce with the requisite skills, motivated staff, and adequate infrastructure, equipment, and supplies. In the quest to strengthen coordination, leadership, governance, and management, the ministry has developed the Framework for Strengthening the Functions of the Ministry of Gender, Children and Social Welfare to guide, refocus, and strengthen its operations. The framework has five priority areas: leadership and governance; coordination; workforce; financing; and information. Each priority area has specific outcomes and objectives. The framework, accompanied by an implementation strategy, activity plan, and monitoring and evaluation plan, provides direction for MoGCSW to strengthen its operations in support of its policy and programme mandates and commitments, which are highlighted in the Joint Sector Strategic Plan for Gender, Youth and Sports. The ministry will lead implementation of the framework at all levels. Development of the framework was led by a taskforce of representatives from all ministry departments and included broad engagement of stakeholders from the public sector, development partners, the private sector, civil society, and communities throughout the country. On behalf of the MoGCSW, I would like to express my sincere gratitude to the taskforce and to the individuals and organizations that made valuable contributions during the development of the framework. The United States Agency for International Development (USAID) deserves special thanks for funding the development of the framework. Let me also thank the USAID-funded Health Policy Project, which provided technical and logistical support throughout the process. Dr. Mary Shawa SECRETARY FOR GENDER, CHILDREN AND SOCIAL WELFARE iii
ACRONYMS AND ABBREVIATIONS CA CHRMO CSC CSO DA DC DCD DCDO DCSO DGA DEC DHRMD DPR DSW DSWO HR ICT JSR JSSP LG LGFC M&E MGDS MoGCSW MoWCD MYDS NGO OPC PRO PS SWG TD TOR TWG USAID Chief Accountant Chief Human Resource Management Officer Civil Service Commission Civil Society Organisations Director of Administration District Councils Director of Community Development District Community Development Officer District Community Services Officer Director of Gender Affairs District Executive Committee Department of Human Resource Management and Development Director of Planning and Research Director of Social Welfare District Social Welfare Officer Human Resources Information Communications Technology Joint Sector Review Gender, Youth and Sports Sector Working Group Joint Sector Strategic Plan Local Government Local Government Finance Committee Monitoring and Evaluation Malawi Growth and Development Strategy Ministry of Gender, Children and Social Welfare Ministry of Women and Child Development Ministry of Youth Development and Sports Non-Governmental Organisation Office of the President and Cabinet Public Relations Officer Principal Secretary Sector Working Group Technical Directors Terms of Reference Technical Working Group United States Agency for International Development iv
TABLE OF CONTENTS FOREWORD...ii PREFACE... iii ACRONYMS AND ABBREVIATIONS... iv 1.0 INTRODUCTION... 1 1.1 MINISTRY OF GENDER, CHILDREN AND SOCIAL WELFARE MANDATE AND ORGANIZATION... 1 1.2 MoGCSW PROGRAMMES, SERVICES, AND STRATEGIC DIRECTION... 2 1.3 CHALLENGES AND OPPORTUNITIES... 3 1.4 PURPOSE OF THE INSTITUTIONAL FRAMEWORK IN RELATION TO KEY POLICIES... 4 2.0 BROAD DIRECTIONS OF THE INSTITUTIONAL FRAMEWORK... 6 2.1 GOAL... 6 2.2 EPECTED OUTCOMES... 6 2.3 KEY OBJECTIVES... 6 3.0 PRIORITY AREAS OF THE FRAMEWORK... 8 3.1 PRIORITY AREA 1: LEADERSHIP AND GOVERNANCE... 8 3.2 PRIORITY AREA 2: COORDINATION... 9 3.3 PRIORITY AREA 3: WORKFORCE... 10 3.4 PRIORITY AREA 4: FINANCING... 11 3.5 PRIORITY AREA 5: INFORMATION... 12 4.0 IMPLEMENTATION ARRANGEMENTS... 14 4.1 INSTITUTIONAL ARRANGEMENTS... 14 4.2 ROLE OF STAKEHOLDERS IN THE IMPLEMENTATION OF THE INSTITUTIONAL FRAMEWORK... 14 4.3 IMPLEMENTATION STRATEGY... 15 4.4 ACTIVITY PLAN... 15 4.5 MONITORING AND EVALUATION PLAN... 15 4.6 RESOURCE MOBILISATION... 15 4.7 REVIEW AND EVALUATION OF THE INSTITUTIONAL FRAMEWORK... 16 ANNE 1 IMPLEMENTATION STRATEGY... 1 ANNE 2 ACTIVITY PLAN... 1 ANNE 3: MONITORING AND EVALUATION PLAN & COSTINGS... 1 v
1.0 INTRODUCTION 1.1 MINISTRY OF GENDER, CHILDREN AND SOCIAL WELFARE MANDATE AND ORGANIZATION The Ministry of Gender, Children and Social Welfare (MoGCSW) is mandated to promote gender equality and protect the welfare of Malawian women, men, girls, and boys to become self-reliant and active participants in and beneficiaries of the national development agenda. It is responsible for putting in place systems, structures, policies, programmes, and services whose impact will culminate in the realization of national development goals. Its mission is to promote social economic empowerment and protection of women, men, girls, and boys using community and welfare approaches. The vision of the MoGCSW is Socially, economically, and politically empowered women, men, girls and boys. A functional review of the ministry recommended the establishment of two new directorates: the Directorate of Child Development Affairs and the Directorate of Social Support Services. These will augment the work of MoGCSW s three technical departments at the central level. The functions of the three technical departments are as follows: Department of Gender Affairs: To promote gender equality and safeguard the welfare and participation of women in the social, political, and economic development process Department of Community Development: To provide community development services to the Malawi nation Department of Social Welfare: To provide welfare services to vulnerable groups through the functional areas of family and child welfare, child development, child protection, social cash transfers, probation and after-care, and public assistance The technical departments are supported by departments of planning and research and administration. They have the following responsibilities: Department of Planning and Research: Facilitate policy, planning, monitoring, research, and evaluation Department of Administration: Coordinate, supervise, and provide management direction and logistic requirements for the ministry At the district level, the ministry has two sections: 1) Social Welfare, which is headed by a District Social Welfare Officer (DSWO), and 2) Community Development, which is headed by the District Community Development Officer (DCDO). At the district level, Gender Affairs programmes are managed within the Community Development section. The ministry has established the position of District Community Services Officer (DCSO) at Grade G (P7), whose incumbents oversee both the social welfare and community development sections. 1
During the environmental scan for this exercise, 21 DCSOs are operating in district councils. Placement of DCSOs in the remaining seven district councils is under way. 1.2 MoGCSW PROGRAMMES, SERVICES, AND STRATEGIC DIRECTION The MoGCSW implements the following programmes and services: i. Department of Gender Affairs a. Gender mainstreaming b. Economic and social empowerment (political, cultural, and human rights) of women ii. iii. iv. Department of Child Development Affairs a. Integrated early childhood development programmes b. Coordination of primary child protection services Department of Community Development a. Community mobilisation and capacity building b. Home management and nutrition c. Adult literacy Department of Social Welfare a. Probation and rehabilitation services b. Family and child welfare c. Generic social work d. Social cash transfers Implementation of these programmes is done within the context of decentralisation. The MoGCSW headquarters is responsible for policy direction, standards setting, guidance and oversight, national-level coordination and implementation, monitoring and evaluation, and capacity building. MoGCSW district sections are responsible for the implementation and coordination of programmes and services at the district level, serving as the primary link between the ministry, district level stakeholders, and the communities. In the recent past, strategic programmatic priorities of the ministry were guided by the Strategic Plan of the Ministry of Women and Child Development (MoWCD) (2006 2011). 1 1 The name of this ministry was changed from the MoWCD to its present name in 2009. 2
In June 2011, the MoGCSW and its partners in the sectors of Gender, Children, Youth Development and Sports embarked on the development of a joint-sector strategic plan for gender, youth, and sports to guide a sector-wide programme approach in support of the Malawi Growth and Development Strategy (MGDS) II. The Gender, Youth and Sports Sector Working Group Joint Sector Strategic Plan (JSSP) (2012-2017) serves to guide MoGCSW programmatic priorities. The MoGCSW, together with the Ministry of Youth Development and Sports, plays the lead role in ensuring that the sector is well-coordinated and that the programmes and key strategic partnerships under the JSSP are effectively implemented. 1.3 CHALLENGES AND OPPORTUNITIES Over the years, the ministry has faced a number of challenges in fulfilling its comprehensive and critically important mandate. These include uncoordinated management and delivery of programmes and services, inadequate financial and human resources, inefficiencies in resource allocation, weak management and supervision, and inadequate monitoring and evaluation (M&E). This generally has resulted in inferior operations and poor service delivery across all levels. Many of these challenges were acknowledged in the MoWCD strategic plan (2006-2011) and identified as critical factors in that plan s successful implementation. In the recent past, several initiatives, including an Organizational Development Strategy (2009), were launched to address these factors. None of these efforts was sustained, however, in part because resources have been directed to individual programme priorities rather than to crosscutting systems and operational needs. It is evident, however, that systematic and structural weaknesses continue to create bottlenecks and threaten the ministry s ability to fulfill its mandate and programmatic leadership role in support of the MGDS II. Stakeholder interviews and consultations conducted in 2013 revealed that the ministry still has challenges in coordinating its programmes, coordinating partners within the sector, allocating resources to its core programmes, providing effective guidance to implementing agencies, and keeping its staff well-motivated and productive. Stakeholders within and outside the ministry have called for immediate efforts to strengthen the ministry as an institution so that it is able to effectively implement all its programmes and coordinate key strategic partners as guided by the JSSP, as well as coordinate the programmes of the sector working groups (SWGs). The Framework for Strengthening the Functions of the Ministry of Gender, Children and Social Welfare responds to this call, providing a much-needed holistic view of the MoGCSW s operational needs. Together with the accompanying implementation strategy and action plan, it offers strategic guidance and a roadmap for strengthening MoGCSW organizational systems and functions critical to the realization of the ministry s overall goal of economically and socially empowered Malawian women, men, girls, and boys. 3
1.4 PURPOSE OF THE INSTITUTIONAL FRAMEWORK IN RELATION TO KEY POLICIES The framework s purpose is to establish priorities and guide the MoGCSW to strengthen its operations in support of its policy and programme mandates and commitments. This framework is critically important, in that its outcomes directly affect the achievement of a host of international commitments and national policy goals. These are summarised below. 1.4.1 International Conventions Malawi is a signatory to a number of gender, children, and social welfare-related international declarations, conventions, and instruments that promote gender equality and empowerment of women, protection and promotion of the rights of children, promotion of the rights of vulnerable individuals, and social support. These include the Convention on the Elimination of all Forms of Discrimination Against Women (1979); the African Union Protocol to the African Charter on Human and People s Rights on the Rights of Women in Africa (2003); the Beijing Declarations (1995); the Vienna Declaration on Human Rights and Rights of Women (1993); the Southern African Development Community Protocol on Gender and Development (2008), which Malawi signed in October 2009; the Convention on the Rights of the Child (1989); the International Labour Organisation Convention 182 on the Worst Forms of Child Labour (1999); the African Charter on Human and Peoples Rights (1986); the Millennium Development Goals (2000); Livingstone Call for Action on Social Protection; and the 2000 Dakar Framework for Action. 1.4.2 MGDS II (2011 to 2016) Programmes of the MoGCSW are part of the MGDS II under Theme 2: Social Development; Theme 3: Social Support and Disaster Risk Management; and Theme 6: Crosscutting Issues (subtheme one): Gender and Child Development, Youth Development and Empowerment. 1.4.3 Programme Policies The MoGCSW is the lead institution for policy development and oversight for the programmes governed by the ministry. These policies include the National Gender Policy (2011, in draft), the Early Childhood Policy (2006), the Orphans and Other Vulnerable Children Policy (2003), the Community Development Policy (2012, in draft), and the Social Protection Policy (2009). 4
1.4.4 National Instruments and Laws The instruments and laws that this framework supports include: the Constitution of Malawi; the Child Care, Protection and Justice Act of 2010; the Gender Equality Act of 2013; the Adoption of Children Act (1949); the Penal Code (1929); the Affiliation Act (1948); and the Wills and Inheritance Act (2010). Additionally, the framework links to and is subject to provisions in public-sector management policies such as the Malawi Public Sector Act and Malawi Public Service Regulations. 5
2.0 BROAD DIRECTIONS OF THE INSTITUTIONAL FRAMEWORK 2.1 GOAL The framework s overall goal is to improve the effectiveness, efficiency, and sustainability of MoGCSW operations, enabling the ministry to fulfill its mandates and its policy and programme commitments. By 2018, the strategic improvements in MoGCSW operations guided by the framework will result in a highly regarded ministry that provides strong national leadership in the areas of gender, child development, social support services, community development, and social welfare. 2.2 EPECTED OUTCOMES The framework aims to achieve the following outcomes: 1. Strong leadership and governance 2. Well-coordinated delivery of services 3. Vibrant and productive workforce 4. Adequate resources to implement the ministry s programmes 5. Quality, timely, and harmonised information collected, shared, and used 2.3 KEY OBJECTIVES The framework has fourteen objectives mapped to the five outcomes. These are: 1. Strong leadership and governance 1.1. To realign ministry structure and functions from headquarters to districts in line with the Decentralisation Policy 1.2. To ensure that all programmatic policies, guidelines, and standards are developed and disseminated 1.3. To strengthen advocacy and communication for all ministry programmes 1.4. To provide leadership for effective and efficient coordination and implementation of the JSSP and other key policies 2. Well-coordinated delivery of services 2.1. To strengthen coordination of programmes and departments within the MoGCSW 2.2. To strengthen partnerships for delivery of programmes and services 3. Vibrant and productive workforce 3.1. To strengthen MoGCSW human resource systems 3.2. To strengthen the performance of ministry staff at all levels 3.3. To strengthen the performance of all volunteer cadres in the ministry 3.4 To strengthen MoGCSW institutions 6
4. Adequate resources to implement the ministry s programmes 4.1. To mobilise adequate resources for the ministry and rationally allocate them across ministry programmes at all levels 4.2. To ensure cost efficiency, transparency, and accountability of MoGCSW finances 5. Quality, timely, and harmonised information collected, shared, and used 5.1. To generate and manage information for evidence-based decision making 5.2. To ensure information is shared and used by ministry staff and stakeholders 7
3.0 PRIORITY AREAS OF THE FRAMEWORK Based on its expected outcomes and objectives, the framework has five priority areas aimed at addressing the ongoing and emerging challenges identified by ministry management and staff and key stakeholders as critical to the ministry s success. The priority areas are: Leadership and Governance, Coordination, Workforce, Financing and Information. 3.1 PRIORITY AREA 1: LEADERSHIP AND GOVERNANCE Leadership and good governance aim to ensure that strategic policies exist and are combined with effective regulation, oversight, and accountability. Within the MoGC&SW, this includes policy development, implementation, and monitoring in gender, children s affairs, social support services, community development, and social welfare. The MoGCSW is well-positioned to lead efforts to develop and harmonise policies across these sectors and to provide leadership to other sectoral ministries and donor and civil-society partners for coordinated policy implementation, including devolution of policy implementation and decision making to the district level. While the ministry has had some successes, critical shortfalls remain, including policy gaps, failure to mobilise support for existing policies, and poor policy oversight and enforcement. Complex and poorly defined functions, relationships, and structures combined with poor communication between central and district levels within the ministry have led to duplication of efforts, inefficient and inequitable use of resources, and high levels of frustration among ministry personnel. These challenges are compounded by undue external influence and the silence of ministry leadership in advocating for ministry priorities. 3.1.1 Recommendations To address these challenges, the ministry should ensure the following: i. The operational structure of the ministry is strengthened to facilitate performance of its governance functions and delivery of its programmes and services in a streamlined and cross-sectoral manner. ii. The ministry devolves district functions being implemented at the central level and strengthens district offices to empower them to properly coordinate and direct service delivery. iii. Draft sectoral polices, guidelines, and standards are finalised and existing policies, standards, and guidelines are reviewed, harmonised, and updated; and all policies, standards, and guidelines are disseminated, implemented, and monitored. iv. Gender is mainstreamed within the ministry at headquarters, district offices, and institutions in order to protect the rights of men and women in the workplace, promote gender equality, and strengthen MoGCSW policies and programmes. v. The ministry mainstreams social inclusion and crosscutting issues, including HIV and AIDS, age, and disability in its policies and programmes. 8
vi. vii. viii. Technocrats advise politicians, other policy makers, donors, and civil society on the role and mandate of the ministry to promote clarity of mission, informed decision making, and support for MoGCSW policies, programmes, and services. The ministry strengthens its communication and advocacy functions, by establishing a public relations function, developing and implementing a communication strategy, and improving its relations and interface with the media. The ministry co-leads with the Ministry of Youth, Sports and Culture the launch, dissemination, and oversight of the JSSP, operationalization of the SWGs and Technical Working Groups (TWGs), and mobilisation of financial and technical resources for implementation of the JSSP. 3.2 PRIORITY AREA 2: COORDINATION Coordination of policies and programmes is an essential function of the MoGCSW, whose domain covers multiple, interrelated sectors. Potential opportunities for strong crossprogramme coordination and collaboration exist, given that programmes from multiple sectors are housed within the MoGCSW. However, the current lack of internal formal mechanisms and failure to promote coordination has resulted instead in overlap and duplication of efforts among departments and programmes, conflicting strategies for similar issues, and complex and competing reporting channels. Further, lack of integrated planning of programmes and operations has led to programme gaps in accordance with national and district plans, misallocation of resources, and personalization of projects. Unclear terms of reference (TOR) for departments and unclear division of labour between central and district staff have led to inconsistent messages to partners, inefficiencies in service delivery, role confusion, and compartmentalization of departments and units. The multisectoral nature of the MoGCSW also requires strong collaboration with other ministries and government entities. Clarity of roles and responsibilities among these players and mechanisms for systematic exchange of information are essential, but typically lacking. This has resulted in disjointed programming, competition for scarce resources, and poor accountability. The JSSP aims to address some of these challenges through joint planning and reporting. Its success, however, will depend on strong coordination among the various sectors and partners. Coordination of service delivery also is a critical function of the MoGCSW, whose mandate includes guidance and oversight of implementing partners in addition to direct service delivery. Thus, the success of the MoGCSW in ensuring equitable access to services and quality of services is largely dependent on the ministry s capacity to coordinate the work of many partners: government, development agencies, nongovernmental organizations (NGOs), civil society organizations (CSOs), and the private sector. Yet current systems and capacities to promote and sustain coordination among these partners are weak. 9
3.2.1 Recommendations To address the issues of coordination, the ministry should ensure the following: i. Mandates and terms of reference for each department in the ministry are clarified. ii. An internal communication strategy for the ministry is developed and operationalised. iii. Intradepartmental meetings are institutionalised, and the frequency and business of management meetings are rationalised. iv. Joint planning and review forums among the ministry s departments and units at central and district levels are implemented. v. Effective national- and district-level coordination structures are established to deliberate issues, share information, and enhance networking. vi. Joint planning and review forums for the ministry and its partners and stakeholders are institutionalised. 3.3 PRIORITY AREA 3: WORKFORCE A vibrant, productive workforce is fundamental to the successful operations of the ministry. However, numerous human resources (HR) challenges interfere with the effective delivery of services. For instance, the MoGCSW is operating at a staff vacancy rate of nearly 50 percent. The ministry is also hampered by low staff morale and confidence, uncertainty in career progression and upgrading opportunities, and inadequate capacity-building programmes for staff. These have resulted in low staff-retention rates. There is also an unsustainable reliance on volunteers for implementation of key programme activities at the community level. The lack of incentives for the volunteers may lead to volunteer fatigue, which would negatively affect the implementation of most of the ministry s programmes at the community level. In general, the HR system is poor, unresponsive to the need for staff motivation, and unsystematic in the deployment, development, and utilization of staff. The competencies of staff are therefore inadequate to effectively spearhead policy implementation, set standards, and supervise, monitor, review, and evaluate programmes and projects. The ministry, therefore, needs to improve the capacity and morale of its workforce and also ensure that it retains the skills and experience of both the employed and volunteer cadres of its workers. 10
3.3.1 Recommendations To improve the capacity, productivity, and effectiveness of the workforce, the ministry should ensure the following: i. The vacancy rate in the ministry s establishment is reduced. ii. The 2013 functional review is completed and implemented in line with the decentralisation policy. iii. All human resource practices and procedures are reviewed and aligned with current HR policies. iv. Human resources practices and procedures mainstream crosscutting issues of gender, disability, and HIV and AIDS. v. A capacity-building programme for ministry personnel is developed and implemented. vi. A staff performance appraisal system is implemented. vii. Incentives and compensation for all volunteers working for the ministry are reviewed and updated. viii. The capacity of volunteers working for the ministry is strengthened. ix. The community support system for volunteers is enhanced. x. Magomero College, other MoGCSW training centres, and reformatory and social rehabilitation centres are upgraded and adequately supported. 3.4 PRIORITY AREA 4: FINANCING The MoGCSW faces multiple challenges in the area of financing. First among these is the inadequacy of its financial resources, particularly from the government. Much of the funding for its programmes and projects comes from donor partners. However, typically, these external funds are restricted to specific, targeted programmes or projects for direct project activities, equipment, technical assistance, and monitoring and evaluation. Thus, the ministry faces a shortfall in funds, especially for its operations. Resource allocation also is problematic. Funding from the Ministry of Finance is not always based on plans and budget, which creates challenges for the ministry to allocate its resources in a transparent manner. To supplement its meagre financial base, the ministry relies on donors to support its initiatives. However, not all the ministry s mandated programmes align with donor priorities. Thus, projects such as social cash transfer, gender mainstreaming, gender equality and women s empowerment, and HIV and AIDS are adequately resourced, while others, such as early childhood development, adult literacy, and community development are extremely under-resourced. The ministry has no effective resource mobilisation strategy to fill the funding gaps. Financial management capacity within the ministry is inadequate due to staffing shortages, limited competent personnel, and inadequate systems. As a result, opportunities to contain costs and to improve cost efficiencies are overlooked. Due to its multiple funding streams, the ministry maintains parallel financial management systems that use different tools and software. Capacity within the ministry to support and use these different systems is limited. 11
3.4.1 Recommendations To address these funding shortfalls and financial challenges, the Ministry should ensure the following: i. A resource mobilisation strategy for the ministry is developed and implemented. ii. A resource allocation system for the ministry is developed and implemented. iii. Administrative costs of programme implementation are reduced. iv. Effective financial management procedures and practices of all ministry programmes and projects are established and adhered to; routine performance audits are conducted. v. Internal auditors responsible for running the ministry s programmes are knowledgeable and skilled in electronic financial management systems. 3.5 PRIORITY AREA 5: INFORMATION The generation and use of information for evidence-based decision making and programming is a core value and essential function of the ministry. Yet, too often, the MoGCSW does not have access to the information it needs, because most information is out of date or cannot easily be analysed, synthesised, and applied. The multisector nature of the MoGCSW contributes to the challenges. Separate information systems have been established for programme departments and projects using different platforms and different measures, often driven by different funding agencies. The need to harmonise these systems is recognised, but has not been acted upon due to limited capacity and resources. Evidence-based programming relies on research to guide programme design and evaluation. However, the ministry is guided primarily by the research priorities of funding partners, as it cannot champion a research agenda of its own due to financial constraints. Record keeping is poor at all levels within the ministry and feedback on reports that are produced is inadequate, particularly between central and district levels and with partners. Infrastructure to capture, store, manage, and retrieve information is necessary for information to be used. Yet, ministry hardware and software, including such basic equipment as computers and printers, are inadequate and outdated. Information use also requires staff knowledge and skills, which are lacking in many cadres. 3.5.1 Recommendations The Ministry should ensure the following: i. An integrated M&E framework for the ministry at national and district levels is developed and operationalised. ii. A functional MoGCSW management information system is established. iii. A research agenda for the ministry is developed and managed. iv. Functional information-sharing platforms for the ministry are established. v. Programme monitoring and reporting mechanisms are strengthened and streamlined. 12
vi. vii. The capacity of the MoGCSW information communications technology (ICT) unit to procure and manage ICT hardware and software and to provide user support is strengthened. The capacity of ministry staff in information systems and M&E is strengthened. 13
4.0 IMPLEMENTATION ARRANGEMENTS 4.1 INSTITUTIONAL ARRANGEMENTS The framework focuses on strengthening operations to enable the ministry to better fulfill its mandate and support of the JSSP, the MGDS II, and other key policy documents. Therefore, institutional responsibility for implementation of the framework shall mainly reside with the ministry`s departments at headquarters level, its district offices, and its institutions, as outlined in the JSSP. Other major stakeholders shall include Office of the President and Cabinet (OPC), Department of Human Resource Management and Development (DHRMD), central and line ministries, CSOs, donors and development partners, and the traditional leadership. The framework will also be implemented in line with government circulars and standard operating procedures. 4.2 ROLE OF STAKEHOLDERS IN THE IMPLEMENTATION OF THE INSTITUTIONAL FRAMEWORK The roles of stakeholders in the implementation of the framework shall be as follows: 4.2.1 Ministry of Gender, Children and Social Welfare The MoGCSW will be responsible for overall planning, implementation, monitoring, and reporting on the framework. Under the overall leadership of the Office of the Principal Secretary (PS), directorates will implement their respective areas of interventions in operationalizing the framework. The Directorate of Administration will be the lead in implementing the framework and the Directorate of Planning and Research will be the lead in monitoring implementation of the framework. District officers and institutions will manage the framework at their levels and will submit reports to MoGCSW headquarters. 4.2.2 Central Ministries (Including OPC, DHRMD, Ministry of Finance, Ministry of Economic Planning and Development, and Ministry of Local Government and Rural Development) The OPC and the DHRMD will provide policy guidance to the MoGCSW on implementing the framework. The Ministry of Finance and the Ministry of Economic Planning and Development will mobilise and provide financial resources and programme coordination for the framework. The Ministry of Local Government and Rural Development will provide guidance on decentralisation and local authority issues. Local councils will coordinate key partners in the implementation of MoGCSW activities at the district level, including district executive committee (DEC) members and district assemblies. 4.2.3 Line Ministries The line ministries such as Agriculture, Health, Education, Youth Development and Sports, and Disability and Elderly Affairs will provide technical assistance and support for the framework s implementation through gender focal points, TWGs, and SWGs. 14
4.2.4 Civil Society Organizations CSOs will lead in advocacy, resource mobilization, and implementation of the framework, particularly at the district level. 4.2.5 Development Partners Development partners will provide advocacy and financial and technical resources to support the implementation of the framework. 4.3 IMPLEMENTATION STRATEGY Implementation of this framework will be championed by the MoGCSW, working closely with government ministries, development partners, CSOs, and private-sector and other relevant stakeholders. The MoGCSW will operationalise the recommendations outlined in Section 3.0 above in line with the Malawi Public Service Regulations, the Decentralisation Policy, and other guidelines. The implementation strategy is presented in Annex 1. It includes a set of 40 strategies linked to the 14 objectives of this framework and identifies the lead responsibility and timeline for each strategy. 4.4 ACTIVITY PLAN Activities that will be undertaken to implement the strategies are presented in Annex 2. They are presented in table format and arranged by priority area, objective, and strategy. Key implementers of the activities and timelines also are provided. 4.5 MONITORING AND EVALUATION PLAN The ministry s Planning and Research Department will coordinate and lead the M&E process for the framework and ensure timely reporting and dissemination of results. The M&E Plan is presented in Annex 3. Outputs, performance indicators, targets, baselines, and data sources are given for each objective. The Planning and Research Department will develop and manage an M&E platform for this plan, as part its development of the ministry s larger M&E system (see Objective 5.1 of Annex 1, Implementation Strategy). All ministry personnel and stakeholders implementing programmes related to this framework at the national, district, and community levels will report periodically to the Planning and Research Department, in line with the developed M&E platform. Annual progress reports for the framework shall be produced and disseminated among stakeholders and through various communication products, meetings, and annual reviews. 4.6 RESOURCE MOBILISATION The MoGCSW will cost the activity plan: that is, it will develop cost estimates for the activities that have been identified to implement the framework. The ministry will solicit financial and technical resources for implementation of the framework from the Malawi government and funding and development partners. 15
4.7 REVIEW AND EVALUATION OF THE INSTITUTIONAL FRAMEWORK This framework will be reviewed and evaluated after five years. The ministry s Planning and Research Department will coordinate the evaluation. The ministry will commission an independent assessment of the framework s implementation and its results will be disseminated to respective coordinating, funding, and implementing partners. The results will be used to inform policy, programme, and institutional reviews. 16
ANNE 1 IMPLEMENTATION STRATEGY A1-1
1.0 INTRODUCTION The strategy that will be employed to implement the Framework for Strengthening the Functions of the Ministry of Gender, Children and Social Welfare (MoGCSW) is presented here. It includes supporting strategies for each objective within the five priority areas. These are given in Section 2.0. The implementation plan, which names the lead organization or individual responsible for implementing each strategy and the timeline for implementation, is presented in table format in Section 3.0. 2.0 STRATEGIES FOR PRIORITY AREAS The Framework for Strengthening the Functions of the MoGCSW includes 14 objectives across the five priority areas of Leadership and Governance, Coordination, Workforce, Financing and Information. These objectives and the forty strategies that will be implemented to achieve them are presented below by priority area. 2.1 Leadership and Governance Objective 1.1: To realign ministry structure and functions from headquarters to districts in line with the Decentralisation Policy Strategies 1.1.1 Devolve all ministry functions being implemented at the central level. 1.1.2 Streamline the structure at district level and harmonise the responsibilities of staff at all levels. Objective 1.2: To ensure that all programmatic policies, guidelines and standards are developed and disseminated Strategies 1.2.1 Finalise all draft policies, guidelines, and standards. 1.2.2 Develop relevant policies, guidelines, and standards that are not in place. 1.2.3 Disseminate the available policies, guidelines, and standards. 1.2.4 Mainstream gender and other crosscutting issues of HIV and AIDS, age, and disability in all of the ministry s policies, guidelines, standards, and programmes. Objective 1.3: To strengthen advocacy and communication for all ministry programmes Strategies 1.3.1 Institutionalise a public relations function within the MoGCSW. 1.3.2 Develop and implement an integrated communications strategy. 1.3.3 Increase interface with the media fraternity. A1-2
Objective 1.4: To provide leadership for effective and efficient coordination and implementation of the Joint Sector Strategic Plan (JSSP) and other key policies Strategies 1.4.1 Mobilise financial and technical resources for the JSSP and other key MoGCSW policies. 1.4.2 Launch and disseminate the JSSP and other key MoGCSW policies. 1.4.3 Ensure that the sector working group (SWG) and the technical working groups (TWGs) are active and productive. 2.2 Coordination Objective 2.1: To strengthen coordination of programmes and departments within the MoGCSW Strategies 2.1.1 Clarify mandates and terms of reference (TOR) for each department in the ministry. 2.1.2 Develop and operationalise an internal communication strategy for the ministry. 2.1.3 Rationalise the frequency and business of management meetings. 2.1.4 Institutionalise intradepartmental meetings. 2.1.5 Institutionalise joint planning and review forums among the ministry s departments and units. Objective 2.2: To strengthen partnerships for delivery of programmes and services Strategies 2.2.1 Establish effective national- and district-level coordination structures. 2.2.2 Institutionalise joint planning and review forums for the ministry and its partners and stakeholders. 2.3 Workforce Objective 3.1: To strengthen MoGCSW human resource systems Strategies 3.1.1 Complete and implement the 2013 functional review. 3.1.2 Reduce the vacancy rate in the ministry s establishment. 3.1.3 Review practices/procedures and implement them in line with current human resource (HR) policies, including crosscutting issues of gender, disability, and HIV and AIDS. A1-3
Objective 3.2: To strengthen performance of ministry staff at all levels Strategies 3.2.1 Develop and implement a capacity-building programme for ministry personnel. 3.2.2 Implement a staff performance appraisal system. Objective 3.3: To strengthen the performance of all volunteer cadres in the ministry Strategies 3.3.1 Review and update the incentives and compensations for all volunteers working for the ministry. 3.3.2 Build the capacity of all volunteers working with the ministry. 3.3.3 Enhance the community support system for the volunteers. Objective 3.4: To strengthen MoGCSW institutions Strategies 3.4.1 Upgrade Magomero College and other training centres. 3.4.2 Renovate existing reformatory and social rehabilitation centres. 2.4 Financing Objective 4.1: To mobilise adequate resources for the ministry and rationally allocate them across ministry programmes and institutions at all levels Strategies 4.1.1 Develop and implement a resource mobilisation strategy for the ministry s programmes. 4.1.2 Develop and implement a resource allocation system for the ministry s programmes and institutions. Objective 4.2: To ensure cost efficiency, transparency, and accountability of MoGCSW finances Strategies 4.2.1 Reduce administrative costs in the implementation of programmes. 4.2.2 Ensure that effective financial management systems and practices, including close financial monitoring, are in place. 4.2.3 Enhance the capacity of auditors, accounts personnel, and programme officers (especially for electronic financial records and management). A1-4
2.5 Information Objective 5.1: To generate and manage information for evidence-based decision making at national and district levels Strategies 5.1.1 Develop and operationalise an integrated monitoring and evaluation (M&E) framework for MoGCSW programmes. 5.1.2 Establish a functional MoGCSW management information system. 5.1.3 Develop and manage a research agenda for the ministry. Objective 5.2: To ensure information is shared and used by ministry staff and stakeholders at national and district levels Strategies 5.2.1 Establish functional information-sharing platforms for the ministry. 5.2.2 Enhance the ministry s capacity for information management and use. A1-5
3.0 IMPLEMENTATION PLAN Priority Area 1: Leadership and Governance Outcome: Strong leadership and governance Objective Strategy Lead Responsibility 2 Timeframe 1.1 To realign ministry 1.1.1 Devolve all ministry functions being implemented at PS 2013-2014 structure and functions from headquarters to the central level 1.1.2 Streamline the structure at district level and CHRMO 2013-2014 districts in line with the Decentralisation Policy harmonise the responsibilities of staff at all levels 1.2 To ensure that all 1.2.1 Finalise all draft policies, guidelines, and standards MoGCSW directors 2013-2014 programmatic policies, 1.2.2 Develop relevant policies, guidelines, and MoGCSW directors 2013-2016 guidelines, and standards standards that are not in place are developed and 1.2.3 Disseminate the available policies, guidelines, and MoGCSW directors 2013-2017 disseminated standards 1.2.4 Mainstream gender and other crosscutting issues DGA 2013-2017 of HIV and AIDS, age, and disability in all ministry policies, 1.3 To strengthen advocacy and communication for all ministry programmes guidelines, standards, and programmes 1.3.1 Institutionalise a public relations function within the MoGCSW 1.3.2 Develop and implement an integrated communications strategy PS 2013-2014 PRO 2013-2017 2 PS = Principal Secretary; CHRMO = Chief Human Resource Management Officer; DGA = Director of Gender Affairs; PRO = Public Relations Officer: DA = Director of Administration; DPR = Director of Planning and Research; DCSO = District Community Services Officer; CA = Chief Accountant A1-6
Priority Area 1: Leadership and Governance Outcome: Strong leadership and governance Objective Strategy Lead Responsibility 2 Timeframe 1.3.3 Increase interface with the media fraternity PRO 2013-2017 1.4 To provide leadership 1.4.1 Mobilise financial and technical resources for the PS 2013-2017 for effective and efficient JSSP and other key MoGCSW policies coordination and 1.4.2 Launch and disseminate the JSSP other key PS 2013-2017 implementation of the JSSP MoGCSW policies and other key MoGCSW 1.4.3 Ensure that the sector working group and PS 2013-2017 policies technical working groups are active and productive Priority Area 2: Coordination Outcome: Well-coordinated delivery of services Objective Strategy Lead Responsibility Timeframe 2.1 To strengthen 2.1.1 Clarify mandates and terms of reference for each CHRMO 2013-2017 coordination of department in the ministry programmes and 2.1.2 Develop and operationalise an internal DA 2013-2017 departments within the communication strategy for the ministry MoGCSW 2.1.3 Rationalise the frequency and business of DA 2013-2017 management meetings 2.1.4 Institutionalise intradepartmental meetings DA 2013-2017 2.1.5 Institutionalise joint planning and review forums DPR 2013-2017 2.2 To strengthen partnerships for delivery of programmes and services for the ministry s departments and units 2.2.1 Establish effective national- and district-level coordination structures 2.2.2 Institutionalise joint planning and review forums for the ministry and its partners and stakeholders PS 2013-2017 DPR 2013-2017 A1-7
Priority Area 3: Workforce Outcome: Vibrant and productive workforce Objective Strategy Lead Responsibility Timeframe 3.1 To strengthen MoGCSW 3.1.1 Complete and implement the 2013 functional CHRMO 2013 human resource systems review 3.1.2 Reduce the ministry s staff vacancy rate CHRMO 2013-2017 3.1.3 Review practices/procedures and implement them CHRMO 2013-2017 in line with current human resource policies, including crosscutting issues of gender, disability, and HIV and AIDS 3.2 To strengthen 3.2.1 Develop and implement a capacity-building CHRMO 2013-2017 performance of ministry programme for ministry personnel staff at all levels 3.2.2 Implement a staff performance appraisal system CHRMO 2013-2017 3.3 To strengthen the 3.3.1 Review and update the incentives and PS 2013-2017 performance of all compensations for all volunteers working for the ministry volunteer cadres in the 3.3.2 Build capacity for all volunteers working with the Technical directors for 2013-2017 ministry ministry social welfare and community development 3.3.3 Enhance the community support system for the DCSO 2013-2017 3.4 Strengthen MoGCSW institutions volunteers 3.4.1 Upgrade Magomero College to an institution of higher learning 3.4.2 Renovate existing reformatory and social rehabilitation centres PS 2013-2017 PS 2013-2017 A1-8
Priority Area 4: Financing Outcome: Adequate resources to implement the Ministry s programmes Objective Strategy Lead Responsibility Timeframe 4.1 To mobilise adequate 4.1.1 Develop and implement a resource mobilisation PS 2013-2017 resources for the ministry strategy for the ministry s programmes and institutions and rationally allocate them 4.2.2 Develop and implement a resource allocation CA 2013-2017 across ministry system for the ministry programmes and institutions programmes and institutions at all levels 4.2 To ensure cost efficiency, transparency, and accountability of MoGCSW finances 4.2.1 Reduce administrative costs in the implementation of programmes 4.2.2 Ensure that effective financial management systems and practices, including close financial monitoring, are in place 4.2.3 Enhance the capacity of auditors, accounts personnel, and programme officers (especially for electronic financial records and management) DA 2013-2017 CA 2013-2017 CHRMO 2013-2017 A1-9