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Governance Learning Program Review:A Participatory Action-Oriented Approach

WBI, October 25th, 2001

‘Through rigorous and participatory

action-oriented learning programs, to support stakeholders in concretely

improving governance capacity in their country, thus reducing poverty ’

Simple formula on the process: IG = KD + CB + CA + PW

(I mproving G overnance = K nowledge D eepening + C apacity B uilding

+ C ollective A ction + P olitical W ill)

For general information on the governance program, please visit http://www.worldbank.org/wbi/governance

For specifics on the governance program review: http://www.worldbank.org/wbi/governance/proglog.htm

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Presentation’s Outline and Key Issues

• Define, Unbundle & Operationalize Governance

• Challenge of Action-Oriented Country-Focus: The Key elements of the revamped Governance Program

• Program Components: Integration, and key Inputs to other programs (and to Mainstreaming of Governance)

• Partnerships within/outside the Bank as key vehicle

• “Learning Program Cycle” at Country level (and country strategy note) as key tools for action-learning

• Strategy for relevant Monitoring and Evaluation

• Some Unresolved Issues and Challenges

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Defining and Operationalizing Governance

• Governance is the process and institutions by which authority in a country is exercised:

(1) the process by which governments are selected, held accountable, monitored, and replaced;

(2) the capacity of governments to manage resources efficiently, and to formulate, implement, and enforce sound policies and regulations; and,

(3) the respect for the institutions that govern economic and social interactions among them

Each of these 3 components in Governance definition is unbundled into 2 measurable subcomponents (total of 6): Database and details: http://www.worldbank.org/wbi/governance/data_main.htm

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Question: W hich is the MOST important obstacle to the transparency and impartiality of the judiciary?

Source: Comprehensive Legal and Judicial Development Conference, June 6, 2000. Instant Survey Results, Sample Size 130.

18%

8%

18%

1%

30%

26%

6%

38%

13%

44%

0%

0%

0% 10% 20% 30% 40%

Absence of jobsecurity

Inadequate training

Inadequateremuneration

Absence of merit-based selection

process for judges

Political interference /Lack of independence

Powerful economicinterests / Elite

influence

Eastern Europe andFormer Soviet Union

DevelopingCountries

Percentage of responses

The Challenge of Country/Regional Adaptation:Survey Responses to: Largest Obstacle to Impartial and

Transparent JudiciaryTransition Economies vs. Developing Countries

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Enormous Variation in State Capture across countries (selected countries

in transition)

0

5

10

15

20

25

30

35

40

45

% of firms

directly

affected by

capture

Hungary Estonia Russia Ukraine

Parliament Votes Pres. Decrees Courts“Purchase” of:

Source: WBI/ECA/EBRD research on State Capture. See F&D synthesis at http://www.worldbank.org/wbi/governance/pubs/seizestate.htm

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Governance Learning Program – The Evolution and Restructuring

The Past…

1. One-off/Stand alone activities2. Generic course participants3. WBI on its own4. Awareness-raising5. Face-to-face only6. High-cost deliveries7. Focus on bribery/corruption

8. National vs. subnational9. Client vs. staff learning10. Traditional classroom11. Softer content/qualitative

12. Anti-corruption “silo”

13. Basic evaluation14. Stand-alone within WBI

…to Present and into the Future

Strategic program cycle approachCountry focus/selectivity (“G-5”)Partners as preconditionConcrete impact on the groundWith IT and DL tools (VC/web)Unit cost efficiency On Governance; Effective Use of Public Resources and

of Policy-Making; state captureNational and subnational and urban governanceClient with staff learningAction-learning approachR&D/Empirics/quantitative indicators/diagnostics

Good Governance for Anti-Poverty and Input to Sectoral Reform

Rigorous impact evaluationIntegrated: Input to other WBI programs and to

regions

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Parliaments Misgoverned or Honest Institutions?

35/35

30/3042/4215/2235/36

17/2034/42

32/4312/22

27/36

8/32

20.0

30.0

40.0

50.0

60.0

70.0

80.0

90.0

100.0

Cambodia Latvia Georgia Honduras Argentina Romania Paraguay Slovakia Peru Columbia Ecuador

Rank of Parliament within country, by households

% w

ho

bel

ieve

th

at P

arli

amen

t is

cor

rup

t

Good Bad

Source: WBI diagnostics and survey data; various countries; 1992-2001Note: The chart shows percentage of respondents reporting that Parliament is dishonest institution. The number at the top of each bar reflects the ranking of Parliament relative to other,pre-defined government institutions.

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Illustration of Evolution (in One Program): Strengthening Parliaments

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Another Illustration: Governance in the Effective Use of Public

Resources ProgramFrom• Traditional PEM -

budget design, rules, professionalization of bureaucracy

• Traditional classroom course, 2-weeks, WBI stand-alone, F2F

To• Focus on how public

resources are governed and used, e.g. governance in budget execution & procurement

• Training activities integrated into overall Bank operations, using DL, F2F, web-based

• Also, New Programs: judiciary reform; governance and the poor; anti-corruption and the youth; confronting state capture; new empirical tools, etc. (for catalog of learning activities, visit http://www.worldbank.org/wbi/governance/proglog.htm#catalog )

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Governance Program Components

• National and Sub-National Governance• Effective Use of Public Resources• Legal and Judicial Learning Program• Media Development and Accountability• Parliamentary Strengthening• Private - Public Sector Governance Nexus• Governance R&D as Key Input to all

Operational Learning Components above

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Effective Use of Public

ResourcesPREM · OCPS

AFR · ECA

Legal and Judicial Learning Program

PREM · LAC · AFR · ECA

LEG

Media Development & Accountability

PREM · LAC EXT · AFR

Private – Public Sector Governance

PSI · EAP · ECA · INTBE · PREM · ISG

HRS · LEG

Parliamentary Strengthening

OCPS · EXT AFR · PREM

National and Subnational GovernancePREM · LAC

AFR · INT

Governance

Governance R&D as key input to all operational

learning components

DEC · ECA · LAC AFR · ASIA

PREM

Governance Programs& WBG Partners

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Attacking Poverty

CESI

Fiscal Decentralization

Market Solutions

Knowledge for Development

Education

Health

Social Protection

HIV/AIDS

Staff Learning

with PREM

Sustainable Development

Governance in Budget

Covering Budgets and Government

Spending

Diagnostics, Empirics,

R&D

Transparency in

Infrastructure

Participation in Municipal Governance

Participation in National

Governance

Corporate Responsibility

Investigative Journalism

Parliaments, Governance

PRSP

Governing Municipalities

Governance and Anti-

Corruption for Youth

Governance

Governance Modules: Input to Learning Programs

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Improving Judiciary

with LEG/PREM

Municipal Governance for LAC and Africa

with EP/Decentralization

PROCUREMENTWorkshopsWith OCPS

GOVERNANCE

SHAPING AND IMPLEMENTATION

OF RULES

NATIONAL AND SUBNATIONAL

EFFECTIVE USE OF PUBLIC

RESOURCES

Illustrations of Joint Programs

StaffLearningAnd WBGSeminar Series

(w/ PREM & ECA)

Statistical/Data Gathering&Analysis Capacity-BuildingInitiative w/DEC

Anti-corruptionFor the youthw/EXT-AFR

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Examples of Mainstreaming Governance: Collaboration in

Staff Training & RelatedEmpirical Analysis & Design of Governance Reforms:

– New Tools and Methodologies for Governance Analysis (with ECA, DEC, PREM)

– Governance and the Shaping of the Investment Climate (incl. State Capture): Using Empirical Tools in the Design of Reform Strategies (with ECA, PREM, PSI, DEC)

– Governance and Poverty: Use of Empirical Tools in the Design and Implementation of Poverty Reduction Strategies (with PREM, APP)

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External Partners (Illustrations)

Country Partner Country Partner Norway Ministry of Foreign Affairs NORAD

Argentina Centro de Estudios Económicos de la Regulación, UADE Mongolia State Property Committee and the Manager/Coordinator for the Enterprise

Restructuring Project Benin Unv. Nat. Du Benin

West African Newsmedia and Dev. Centre Programme de Developpement Municiipal (PDM) (West Africa)

Paraguay Centro de Análisis y Difusión de Economía Paraguaya

Bosnia-Herzegovina Management and Information Technologies Center

Brazil ESAF Fundacao Joao Pinheiro

Canada Radio Canada CIDA

Philippines Institute of Corporate Directors University of Asia and the Pacific Institute for Solidarity in Asia Asian Development Bank

China Research Center for Regulation and Competition Chinese Academy of Social Sciences Whuan Univeristy

Commonwealth Commonwealth Press Union Commonwealth Broadcasting Association Commonwealth Parliamentary Association

Russia Press Development Institute, Moscow Graduate School of International Business Higher School of Economics, Baikal institute of Business and International Management

Cote d'Ivoire CREMIDE--Centre de Recherches Microeconomiques du Developpement

Denmakr General Danish Deve. Assistance Fund – Min. of Foreign Affairs

Singapore Singapore Institute of Directos Civil Service College of the Institute of Public Administration and Management National University of Singapore

Spain Ministry of Foreign Affiairs Instituto Ortega & Gassett Instituto Internacional de Gobernabilidad (IIG)

Sri Lanka

Institute of Policy Studies Sri Lanka Institute for Administrative Development

France OECD IBFI (Institut Bancaire et Financier International) / Banque de France ADETEF (Ministère de l’Economie et des Finances) BDPA – Institut Forhom HEC / CEBC (Centre d’Etudes sur le Blanchiment et la corruption) IIAP (Institut International d’Administration Publique) SOPEL International World Association of Newspapers

Germany Transparency International (TI)

Thailand

Chulalongkorn University - Distance Learning Center Thai Institute of Directors Association

Global Inter-Parliamentary Union Parliamentary Centre

The Netherlands European Journalism Center Amsterdam Institute for International Development Ministry of Foreign Affairs

UK Reuters Foundation Department for International Development (DFID)

Ukraine Institute for International Business Development

India Administrative Staff College of India National Institute of Educational Planning and Administration National Institute of Urban Affairs State Bank of India Staff College Tata Energy Research Institute New Delhi National Institute of Public Finance and Policy National Council of Applied Economic Research

Japan

Council for Better Corporate Citizenship Mitsubishi Research Institute, Inc.

Kazakhstan University of International Business (formerly International Business School)

Kyrgyz Republic State Commission Under the Government of the Kyrgyz Republic on Securities Market

US Harvard Business School Ethics Officers Association International Federation of Accountants Agencia Internacional para el Desarrollo (USAID) Banco Interamericano de Desarrollo (BID) Casals & Asociados Federal Bureau of Investigation (FBI) Fundación para las Américas Organización de Estados Americanos (OEA)

Macedonia Trajkovski & Partners Consulting CPI OKO Faculty of Economics, University of "St. Ciryl and Methodius" Uzbekistan Tashkent State Economic University

México Instituto Tecnológico y de Estudios Superiores de Monterrey Secretaría de Contraloría y Desarrollo Administrativo

Mongolia School of Economics of the Mongolian State University

Zimbabwe Municipal Development Program (East and Southern Africa)

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An illustration in a Core Course:

Learning Program Cycle for Results on the Ground:

1. Joint Governance Empirical Diagnostic2. Participatory Formulation of Action Program3. Capacity Building: Specialized Learning Programs4. Collective Action Workshop; Adoption of program5. Adoption & Implementation (Operations, w/networks)6. Monitoring, Evaluation, Feedback Mechanisms

of A-C course

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Country Learning Strategies: Key for Country Focus

• Country Strategy formulation process for collaborative action-orientation on the ground

• Complement with: i) ‘G-5’ approach to learning events, and, ii) action learning program cycle

• Classifying Countries: selectivity is key– Category 1: High Priority (10-12)– Category 2: High Risk-High Potential (10-12)– Category 3: Others with strong demand (10-15)

• Joint Design of Draft Country Learning Strategies– Based on Bank strategy documents (CAS, etc);

interface with colleagues (country teams, etc) diagnostics/empirics; specific commitments

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Tanzania: An Example of a Country Strategy

• Designed for FYO2, w/ implications for FY03-04.• Primary Objective- to assist the Support

Accountability, Transparency, and Integrity Program (ATIP) - $40m loan for national framework for good governance

• Includes--empirical diagnostic work; strengthening oversight and watchdog institutions; governance monitoring; and media capacity building

• Drafted with input from the TTL Tanzania AFTI2

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Strategy for Monitoring and Evaluation

• Key Substantive Challenge: Convergence between WB approach to M&E and how we recommend clients to do M&E (performance-based, continuous, quick feedback for changes, rigorous, affordable)

• Features– Level I and Level II – of course, but beyond…– Action programming – Official approval of action

plans– Capacity building – Creation of communities of

practice, procedural guidebooks, spin-off training activities

– Development of methodologies – Web-site hits/downloads; outside publications (ref), SSRN, etc.

– Mainstreaming – number of governance modules used in non GF-sponsored activities

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Challenges and some Issues for Debate

1. Implementing Selectivity in an Umbrella Program:

i) saying No to work in some countries; ii) Say No to many components/topics within a country; iii) key complementarities vs. prioritization, and, iv) resisting simplistic participant-days bean-counting only…

2. Mainstreaming Governance in all programs: political sensitivities, still some unease?

3. Quality Assurance on Knowledge Deepening: ensuring quality at entry; M&E; analytical rigour

4. Frontier M&E, aligned to PSM approach5. Further deepening of partnerships 6. Resource Constraints: Implications http://www.worldbank.org/wbi/governance/proglog.htm