Training Manual

on

Planning and monitoring of national development and poverty reduction

strategies

in the context of the Decentralization & Deconcentration reform

Kingdom of Cambodia

Nation Religion King

323

Ministry of Planning

May 2009

i

Table of content

Table of Content …………………………………………………………………..……….... i

Chapter 1: Introduction …………………………………………………………..………… 1

Chapter 2: Planning ………………………………………………….……………...……… 2

2.1 Planning in theory ………………………………………………………….. 2

2.2 Planning in practice ………………………………………………………… 2

2.3 Planning and public financial management ……………………………… 3

Chapter 3: The NSDP in Brief ………………………………………………………...…… 7

3.1 The context …………………………………………………………………. 7

3.2 The content …………………………………………………………………. 8

3.3 NSDP in practice …………………………………………………………… 19

Chapter 4: The MPSP in brief …………………………………………………………...… 22

Objective 1: To ensure implementation of the NSDP and progress towards the CMDGs …………………………………………….

23

Objective 2: To monitor and evaluate progress towards NSDP implement-tation and NSDP/CMDG outcomes ……………………………

23

Objective 3: To ensure that MOP and its partners implement actions required under the harmonization, alignment and results (HAR) agenda ……………………………………………………

24

Objective 4: To Prepared NSDP updated 2009-2013 ……………………… 24

Objective 5: To strengthen the local development planning process …….. 25

Objective 6: To create a coordinated and improved the national statistical system …………………………………………………………….

25

Objective 7: To strengthen the local development planning process ……... 25

Objective 8: Improved and informed and increased use of official statistics 26

Chapter 5: Decentralization & Deconcentration reform in brief ……………...………… 27

5.1 The context …………………………………………………………………. 27

5.2 The content …………………………………………………………………. 27

5.3 D&D reform in practice ……………………………………………………. 32

5.4 Remaining questions and challenges ……………………………………. 34

5.5 Planning in the context of D&D …………………………………………… 37

Chapter 6: Monitoring and Evaluation …………………………………………..……….. 39

6.1 Monitoring and Evaluation ………………………………………………… 39

6.2 Monitoring in practice: The NSDP Monitoring …………………………… 44

6.3 M&E results to date ………………………………………………………… 45

Chapter 7: Targeting ………………………………………………………………...……… 47

7.1 Introduction …………………………………………………………………. 47

ii

7.2 What is targeting? ………………………………………………………….. 47

7.3 Errors in targeting ………………………………………………………….. 48

7.4 Different tools for targeting ………………………………………………… 49

7.5 The role of targeted programmes in an overall development strategy .. 51

7.6 Identification of Poor Households in Rural Areas ………………………. 51

Chapter 8: Conclusions and Recommendations ………………………………..………. 55

Tables

Table 3.1: NSDP's macro-goals, targets and indicators …………………………………. 8

Table 3.2: Key macroeconomic data ………………………………………………………. 11

Table 3.3: Key projections in physical infrastructure …………………………………….. 13

Table 3.4: Targets and progress in agriculture …………………………………………… 14

Table 3.5: Targets and progress in agriculture …………………………………………… 15

Table 3.6: Targets and progress in education ……………………………………………. 16

Table 3.7: Targets and progress in health ………………………………………………… 17

Table 3.8: NSDP allocations 2006-2010 ………………………………………………….. 18

Table 3.9: Integration of macro policies and processes …………………………………. 20

Table 5.10: Overview of powers, duties and resources of different administrative levels

27

Table 5.2: Development assistance support to the Provinces ………………………….. 30

Table 5.311: Planning support roles and responsibilities …………………………………..

38

Table 6.1: Comparing administrative and population-based data ……………………… 40

Table 6.2: Relating data collection tools to indicators …………………………………… 41

Table 12: Comparing monitoring and evaluation ……………………………………….. 43

Table 13: Inclusion errors and exclusion errors …………………………………………. 49

Boxes

Box 7.1: The process for identifying poor households …………………………………… 52

Annexes

Annex 1: SUB-DECREE No. 55 SD. ES ON THE ORGANIZATION AND THE FUNCTIONING OF THE MINISTRY OF PLANNING …………………………

56

Annex 2: MPSP MATRIX …………………………………………………………………… 63

Annex 3: Revised NSDP indicators based on the outcomes of the JLE on M&E Workskop (Sihanoukville January 2008) and the workshop on M&E (Phnom Penh March 2008) …………………………………………………………………

75

Annex 4: Glossary …………………………………………………………………………… 97

Annex 5: Bibliography ………………………………………………………………………. 103

1

Chapter 1

Introduction

This manual has been elaborated by MoP staff for MoP staff, i.e. planning officers at all administrative levels, to help understand and implement planning in general and more specifically the National Strategic Development Plan (NSDP) and the Ministry of Planning Strategic Plan (MPSP) in the context of D&D reforms, i.e. how to plan and how to monitor the respective work.

This manual is therefore necessarily a multipurpose document summarizing major challenges in major policy arenas. It is also intended to be used by different target groups, i.e. by MoP officials in different positions and functions. In particular, it is intended for MoP officials at subnational levels who have to face major challenges and changes in the coming years. Therefore, the focus of the manual is – as much as possible - on practice.

It is hoped that the manual will also help government officials in other line ministries and other actors to understand and support MoP's work.

The structure of the manual is as follows:

It starts with an introduction of the concept of planning, in theory and in practice (chapter 2).

Then the main conceptual framework for development policies and poverty reduction efforts of the Royal Government of Cambodia (RGC) is summarized. The National Strategic Development Plan (NSDP) 2006-2010 is the one and only overarching, guiding and reference document for Government development policy from 2006 to 2013 (chapter 3).

The following chapter presents the Ministry of Planning's Strategic Plan (MPSP), a document that was prepared by MoP to focus the work of the MoP and its partners on the NSDP (chapter 4).

Then the ongoing D&D reform and its major elements and challenges are analyzed in Chapter 5. Remaining questions and challenges are explored and planning in the context of the ongoing D&D reform is being discussed.

In any planning system there is a need for a system for monitoring and evaluating Government activities to keep track of implementation and assess whether implementation is having the intended outcomes. Situation analysis, monitoring and evaluation are needed to provide Government officials at all levels with the information they need to make appropriate policy and planning decisions and use available resources with maximum efficiency. Chapter 6 outlines general principles for monitoring and evaluation (M&E), the particular needs for monitoring and evaluation of the NSDP, and some of the tools (e.g. surveys, administrative information systems, etc.) that are available for this.

Finally, Chapter 7 describes the basic principles involved in designing and administering targeted programmes. The chapter provides a brief overview of the rationale for targeted benefits; discussion of the costs involved in targeting and how to minimize targeting errors; and lists the main types of targeting mechanism. It then summarises the Government’s policy and processes for identifying poor households in rural areas.

To sum up, the manual summarizes the main messages and recommendations (chapter 8).

For better understanding of the sometimes technical language please refer to the glossary of the relevant terminology in chapter 9.

2

Chapter 2

Planning

2.1 Planning in theory

Planning is the process of drafting, implementing and reviewing a plan. A plan basically involves

issues (of strategic importance) to be addressed,

(realistic) (qualitative and quantitative) objectives to be met,

implementation strategies to be followed,

resources to be provided,

indicators to monitor progress.

The planning process is part of the overall policy cycle which consists of the following elements:

analysing the situation,

setting objectives (incl. goals and indicators),

developing policies and strategies,

costing programmes and determining where the funding is coming from,

implementing,

monitoring and evaluating.

In general, planning has the following main functions:

to clarify and focus issues and policy goals,

to provide a logical framework within which policies can be developed and implemented,

to offer a benchmark against which actual performance can be monitored and reviewed.

Planning thus helps to reduce complexity and to translate knowledge into action. It also helps to increase transparency and accountability. Good planning does not guarantee success, but helps to avoid failure. In Cambodia planning also has the function to mobilize resources (see MoI/MoP 2002 Art. 1 and Abrams: DSPP Guideline 2008:1).

Plans are formulated at all levels, from local administrations plans to sector Ministry strategies to the overall national development strategy. A plan can cover a variety of timeframes: local development plans may be prepared on an annual basis, while sector or national development plans typically cover medium-term (three to five year) or long-term (ten year) timeframes relating to the achievement of high-level objectives and broad prioritization of activities and resource allocation. The overall planning system should make sure that these various plans relate to each other in a coherent manner, with an appropriate level of detail at each level.

2.2 Planning in practice

Planning is nothing new in Cambodia. Medium-term national development plans were introduced in the 80s to guide the rehabilitation of the country. At that time the Government assigned the Ministry of Planning to prepare the so called Socioeconomic Rehabilitation and Development Program (SRDP). The first (1986-1990) and the second (1991-1995) Socioeconomic Rehabilitation and Development Programs were designed to guide a

3

centrally planned economy. Following the elections and the establishment of the new Royal Government of Cambodia (RGC) so called Socio-Economic Development Plans (SEDPs) were introduced. The first SEDP covered the period 1996-2000 and the second the period 2001-2005. The SEDPs took planning an important step further: for the first time, they were conceptualized as integrated medium term programs of national development within the context of a market economy. The primary development goal of the SEDPs was poverty reduction that was to be reached through economic growth and better governance. The plans recognized the important role of the private sector in development and employment generation. But the SEDPs did not yet provide any monitoring and evaluation (M&E) mechanism to track implementation.

Alongside these plans 3-year-rolling Public Investment Programs (PIP) where introduced (the first one for the period 1996-1998), which helped to channel and allocate planned investments (including development assistance) to priority areas (among sectors and within each sector). The process of preparing the PIP has continued every year since then. Although it was intended right from the very beginning to synchronize the PIP with the annual budget, this challenge remains to be tackled.

The current medium-term national planning document is the National Strategic Development Plan. It serves four purposes at a time: it is

the national 5-year-plan,

the National Poverty Reduction Strategy (NPRS),

the main CMDG document,

the implementation document for the Rectangular Strategies (I and II, (2004 respectively 2008).

The NSDP thus represents the single, overarching, guiding and reference document for pursuing prioritized goals, targets and actions for the coming years in Cambodia.

Beyond the NSDP other major frameworks that need to be taken into consideration are

the subdecree No. 55 on the Organization and Functioning of the MoP (see annex),

the Ministry of Planning Strategic Plan (MPSP) being the strategic planning document that was elaborated by the MOP for its own planning purposes and

the D&D reform documents (especially the Organic Law, see RGC 2007).

The following chapters deal in detail with these frameworks which will change planning in Cambodia fundamentally.

2.3 Planning and public financial management

Basic principles of public financial management

Public financial management (PFM) refers to the institutions and processes by which a Government:

obtains financial resources (through taxes and tariffs, borrowing, and official development assistance);

allocates these resources to goals, activities and Government institutions (through preparation of the annual budget, and in some cases also through a multi-year medium-term expenditure framework (MTEF) and / or Public Investment Plan (PIP));

executes and manages public spending in line with the budget (including the MTEF and the PIP);

accounts for and reports on the efficiency and effectiveness of revenue generation and public spending to Parliament and the general public; and

4

audits and submits to elected representatives for their review the final budget outcomes.

Public financial management needs to ensure that revenues are generated and spending is managed in ways that are consistent with macroeconomic development, support economic growth and facilitate poverty reduction. Levels and forms of taxation, the level of public sector borrowing, and the aggregate level of public spending relative to GDP need to be controlled in order to support macroeconomic stability and growth. Public spending should seek to ensure necessary service provision (eg. defense, education) where the market does not, promote the efficient operation of markets through regulation, and promote poverty reduction and equity goals. In general it should avoid tasks that are better achieved by the private sector operating within well-functioning markets.

The national budget is the Government’s annual financial plan, determining the level of public spending and the composition of that spending (in terms of the balance between different sectors and categories of spending). It needs to achieve three key functions:

controlling aggregate public spending in line with macroeconomic constraints (i.e. maintaining a surplus or controlling the budget deficit, by ensuring that spending does not exceed the resources available);

allocating public expenditure in line with the Government’s goals and policy priorities (which in Cambodia are laid out in the Rectangular Strategy and elaborated in the NSDP);

ensuring the economic, efficient and effective use of public resources in achieving these policy goals.

The composition of public spending

The composition of spending can be classified in a number of ways, with various different sets of trade-offs required. The first is between general types of sector (e.g. economic sectors vs. social sectors vs. general administration); specific sectors (e.g., amongst the social sectors, health vs. education; among the economic sectors, transport vs. energy); and sub-sectors (e.g. specific disease control programmes vs. primary health care systems). Here, the balance of spending outlined in the budget needs to reflect analysis of economic and social returns to different potential uses of limited public funds: for example, for given education objectives outlined in the NSDP, is the Government better off investing in building a school or building a road to allow children to get to existing schools? Or in paying for training more teachers? Or raising teachers’ salaries?

The second set of trade-offs is between capital expenditure (new investment, e.g. building a road) and recurrent expenditure (e.g. wages, or road maintenance). Capital expenditure creates both assets, which generate development, but also obligations for recurrent expenditure in future years to maintain the value of the new investments: In practice, however, capital and recurrent spending are often planned separately, resulting in (for example) the construction of roads without any budget for their maintenance. This imbalance and lack of connection between capital and recurrent spending can be a major source of inefficiency in public expenditure management.

Reflecting these different considerations in assigning spending, budgets can be classified in a number of ways. Typically, budget classification systems make it easier to design and monitor budgets according to the level of government or institution receiving the funds (administrative classification) or by the nature of spending - e.g. investment, wage, and non-wage recurrent or running costs – that spending supports (economic classification); but find it harder to relate spending to the objective that it is intended to achieve (programme classification).

5

Public financial management is particularly hard in countries where a large proportion of public spending is financed from official development assistance and public sector institutions are not yet strong. These two conditions result in requirements for donor-specific programming, reporting and financial management requirements, which results in considerable transaction costs for the Government, and makes it hard to integrate this spending with normal public financial management. This is particularly true for assistance that is delivered as projects; assistance that is delivered as support to the national budget provides much more flexibility. Given the focus of ODA on investment (capital) spending, ensuring sustainability can be difficult, particularly if insufficient funds are available from domestic revenue to maintain the infrastructure or services built with development assistance.

Institutional roles in public financial management

Public financial management in Cambodia is centralized, with the Ministry of Economy and Finance playing the lead role in both formulating and executing the budget, interacting with other central agencies (such as the Ministry of Planning, which prepares both the NSDP and the PIP); line ministries and agencies (which prepare their sector strategies with reference to budget allocations from MEF); and the National Assembly (which plays an oversight role and ensures that the budget has been spent in the ways intended and is achieving the results intended).

Internationally, the role that sub-national authorities play in public financial management depends heavily upon the structure of Government and varies considerably from one country to another. In centralized systems, all revenue is generated at the centre, and then allocated to sub-national levels with little discretion on how it is spent. In decentralized systems, sub-national authorities may be empowered to (i) supplement the funds allocated to them from the centre (inter-governmental fiscal transfers) with their own revenues generated through local taxation; and / or (ii) allocate spending with more flexibility (e.g. allocating more to roads in one District, and more to health in another) to respond to local circumstances and priorities. In Cambodia, these roles are likely to change over time as decentralization and deconcentration reforms are implemented (see chapter 5).

The Public Financial Management Reform Programme

In 2004, the Royal Government embarked on an ambitious Public Financial Management Reform Programme (PFMRP). This has four sequential “platforms” or stages, each aimed at achieving a different aspect of more efficient and effective management of public finances. In order, the objectives of the four platforms are as follows:

Platform 1 (2005-2008): Strengthened budget credibility. This phase has focused upon ensuring that the budget becomes more credible as an instrument of strategic and day-to-day management of public resources, by delivering a reliable and predictable flow of resources to service providers. The result should be that actual patterns of public spending at the end of each year reflect what was outlined in the budget at the start of the year.

Platform 2 (2009-2011) Effective financial accountability. The second stage builds upon the improved budget execution (achieved in the first stage) by improving internal control and accountability systems. With more predictable flows of funds, budget holders are made accountable for managing funds as intended and good practice is rewarded.

Platform 3: Policy-budget linkage resulting in a fully-affordable policy agenda. In this stage, the RGC’s budget is aligned to goals, making the budget the tool by which to cost, prioritise and deliver the Government’s policy agenda. This involves the Government developing techniques and capacities that allow policy-makers to

6

assess the budgetary impact of policies and to connect policy priorities and service targets to budget planning and implementation.

Platform 4: Managers become fully accountable for program performance. Having reinforced the stability, soundness and policy orientation of budget planning and management practices, the RGC will start to hold budget managers accountable for achieving results (rather than just for using funds correctly). Budget managers will be rewarded for achieving agreed objectives and standards of performance, resulting in greater external transparency and more effective policy formulation.

Based on reasonable progress to date, the programme has recently (i.e. early 2009) commenced the second stage, with a focus on establishing financial accountability.

7

Chapter 3

The NSDP in Brief

3.1 The context

30 years ago, in January 1979, Cambodia emerged from its darkest period in history. From the state of near total destruction of its assets (human capital, economic, educational and social institutions, government structures, physical assets in infrastructure) the country returned to normalcy including stability, reconstruction, a transition to a market-based economy and economic growth. The main challenge today is to lift the country's poor out of poverty. This is also goal no. 1 of the nine Cambodia Millennium Development Goals (CMDGs). Each CMDG has been furthermore disaggregated into several sub-CMDGs with clear targets.

When the Royal Government of Cambodia (RGC) started its third term in 2004, the very first major decision was to adopt the so-called Rectangular Strategy to address governance and socio-economic development issues and efforts in a holistic way. The second phase of the Rectangular Strategy issued in 2008 continues to emphasise the same priorities but also recognises the need to make further efforts to translate growth into a continued fall of the poverty rate (of at least one percentage point per year) and to further improve progress made in the social sectors, especially health, education and gender equity. The overall priorities can be summarised as follows:

Good governance (combat of corruption, public administration and D&D reforms as well as reforms in the legal and judicial sector and of the armed forces)

Enabling environment (peace, stability, global integration, partnership with the private sector, civil society and development partners, a favourable macro-economic environment)

Economic growth (promotion of agriculture, physical infrastructure, private sector expansion as well as capacity development and human resources management).

In 2006 the RGC adopted the National Strategic Development Plan (NSDP) 2006-2010 as the single, overarching document containing RGC's priority goals and strategies to reduce poverty rapidly and to achieve other CMDGs and socio-economic development goals for the benefit of all Cambodians. It synthesises and prioritises the goals of the CMDGs and as the national Poverty Reduction Strategy it is intended to guide sector strategies and to allocate national and external development partners (EDPs) resources. NSDP also operationalizes the Rectangular Strategy to achieve its intended goals.

The National Strategic Development Plan thus serves four purposes at a time: it is

the national 5-year-plan (following the former Socio-Economic Development Plans, SEDP I and SEDP II),

the main CMDG document,

the National Poverty Reduction Strategy (PRS) and

the implementation document for the Rectangular Strategies I and II.

In 2009 the NSDP will be updated to new NSDP namely NSDP updated 2009-2013 in order to align timeframe to the Government mandate.

8

3.2 The content

The NSDP is a the road map for taking the country from where it was at the end of 2005 to where it ought to be in 2010. Its goals and indicators are mainly based on the CMDGs.

Table 3.14: NSDP's macro-goals, targets and indicators (*) - CMDG goals and targets

Major Goals: Targets/Indicators 2005 2010 CMDG- 2015

Eradicate - Poverty & Hunger (*) 1* Poverty levels % of population -- 2004 34.67 25 19.5

2* Poverty levels % rural population -- 2004 39.2

3* People below food poverty line % -- 2004 19.7 13 10

Enhance Agricultural Production and Productivity 4 Paddy yield per hectare (tons) 2.48 2.80

5 Irrigated area – including supplemental irrigation., (% of rice area) 63 87

6 Land Reforms: Land Titles to farmers -- % of Total agri., land 15 24

Improvements in Health (*) 7* Infant Mortality Rate per 1,000 live births 66 60 50

8* Under 5 Mortality Rate per 1,000 live births 82 75 65

9* Maternal Mortality per 100,000 live births 472 243 140

10* Births attended by skilled health personnel -- % 44 55 80

11* HIV/AIDS prevalence, % of adults 15-49 0.9 <0.6 <0.6

12* Malaria Cases – treated at public health facilities –per 1,000 population

7.3 3.5

13* TB smear positive cases, per 100,000 269 214 135

14* Married women using modern birth spacing methods (%) 20.1 40 60

15 % of health facilities providing RH services 33 45 70

Improvements in Education (*)

16* Net Enrolment at Primary Schools (%): Total 91.3 100 100

Boys 93.0 100 100

Girls 89.7 100 100

17* Net Enrolment at Lower Sec. Schools (%): Total 31.3 50 100

Boys 32.1 50 100

Girls 30.4 38 100

18* Survival rate % : 1-6: 49.3 100 100

19* Survival rate % : 1-9: 26.3 50 100

20* 6-14 years out of school (%) 12.3 11 0

Rural Development 21 Rural Roads rehabilitated – Kms (out of total 28,000) 22,700 25,000 28,000

22* Access to improved drinking water -- % rural population 41.6 45 50

23* Sanitation access -- % rural population 16.4 25 30

Environmental Sustainability (*) 24* Forest Cover -- % of total area 59 60 60

25* Fuel Wood dependency: Households -- % 83.9 61 52

26* Access to safe water source -- % of urban population 35 75 80

27* Access to improved sanitation -- % or urban population 55 67 74

Gender Equity (*)2 28 Mainstream gender in all spheres

a Concerned ministries/institutions have formulated their Gender Mainstreaming Action Plan

2 27

b Concerned ministries/institutions have implemented their Gender Mainstreaming Action Plan

2 15 27

29* Female share of wage employment (%): agriculture 52.5 50 50

industry 53.5 50 50

services 27.0 37 50

30* Level of awareness that violence against women is wrongful behaviour and a crime (%)

4.5 50 100

a Court and administrative orders issued 0 90

b Access to services 0 500

Reforms 31 Accelerate Governance Reforms To be developed

Sustain high Macro-Economic Growth (*) 32 Annual GDP Growth at constant prices - % 13.3 7.0

33 Per Capita GDP at constant prices (000 Riels) 1,862 3,505

34 Rate of Inflation % 5.8 4.0

9

Major Goals: Targets/Indicators 2005 2010 CMDG- 2015

Improve Budget Performance 35 Total Government budget revenues - % of GDP 10.60 13.1

36 Total Government budget expenditure -- % of GDP 13.2 14.0

Accelerate Industrial Growth & Employment 37 Annual Growth in manufacturing - constant prices (%) 9.7 7.8

38* Working children aged 5-17 years -- % 22.3 10.6 8

Tourism 39 Annual Tourist arrivals nos -- 000s 1,420 3,200 5,000

De-mining, Victim Assistance (*) 40* Casualties (deaths and injuries) nos. 875 205 0 41* Area affected cleared of mines and UXOs -- % 50.3 77 100

Infrastructure 42 Length of paved roads (primary & secondary) out of 11,494- kms 2,100 4,100

Energy 43 Per capita use of electricity - Kwh/year 62 159

Source: Table 3.2 of NSDP MTR

Basic principles that need to be observed and to which the RGC is fully committed are:

strict adherence to democracy in governance,

respect, protection and fulfillment of all human rights,

peace,

political stability,

rule of law,

government at all levels to be fully responsive, responsible, effective, transparent and accountable,

government to ensure macro-economic stability, create and maintain key infrastructure as well as to provide a conducive climate and a regulatory framework for private sector to operate and flourish,

government to provide essential social services (health, education etc.),

government to ensure sustainable management of the nation's environment and natural resources (forests, fisheries, land, water, bio-diversity etc.).

A lot of progress has been made during the last years. Major highlights are:

the restoration of internal peace and security,

democracy taking root, both at the national and sub-national levels,

advances in public governance reforms,

steady macro-economic growth (at double-digit rates between 2004 and 2007),

better and steadily improving fiscal discipline and management,

accelerating integration of Cambodia within the region and the rest of the world,

steady reduction in poverty levels from 34.7% in 2004 to 30.1% in 2007,

impressive improvements in various social indicators such as: reduction of infant and child mortality rates, significant reduction in communicable diseases, especially in HIV/AIDS, expansion of primary education.

Recent years have also seen a significant improvement in the Government’s ability to collect and use socio-economic data to design and monitor its policies and plans. Improvements include a more frequent and stable Cambodia Socio-Economic Survey (CSES); a second Cambodia Demographic and Health Survey (SDHS) in 2005; and a second general population census in 2008 (the first took place in 1998). Better training, enumeration, data entry and processing are all providing the Government with a greater amount of more reliable information on which to base decisions (see chapter 7 on monitoring and evaluation).

But challenges remain that need to be addressed:

10

sector strategies and plans to align sector policies to NSDP and to make them pro poor need to be drafted and implemented,

NDSP, PIP and budget processes need to be harmonised,

EDP support needs to be aligned to NSDP priorities,

poverty needs to be further reduced,

social safety nets need to be provided and institutionalized,

land concentration and landlessness needs to be reduced,

economic growth needs to be maintained and diversified,

sectorally uneven economic growth needs to be broadened and deepened in order to be sustainable,

regionally uneven growth (i.e. largely urban based) needs to be directed to the rural areas,

reforms in governance (rule of law, public administration and D&D reforms, combat of corruption etc.) need to further progress,

over-age school enrolment and quality issues need to be addressed in the education sector,

provision of public health care needs to be further improved especially in order to reduce maternal mortality.

In more detail, the key features of the NSDP are the following:

Poverty reduction

A large proportion of people live below the minimum levels of consumption of goods and services needed to keep them above poverty. However, there has been a decline in poverty levels during the last years: overall poverty decreased from 34.7% in 2004 to 30.1% in 2007, representing a reduction of more than 1 percentage point per year. However, poverty continues to be high and therefore greater and more targeted actions (provision of social safety nets, provision of subsidies and labour intensive work etc.) need to be undertaken.

Good Governance

Under good governance, the five major reform areas are:

to fight corruption (approve the Anti-Corruption Law, provide an appropriate institutional framework and appropriate human and financial resources),

to speed up legal and judicial reforms (speed up the judicial reform process, enact the remaining eight fundamental laws including the Penal Code, ensure capacity development and improve access to the justice system),

to pursue the public administration reforms (enhance civil servants performance and accountability through better remuneration and capacity development, provide access to information etc.),

to implement the D&D reforms (finalize and implement the ten year implementation program for D&D),

to reform and enhance the capacities of the Armed Forces (implement the "Defense White Paper", i.e. demobilise, reduce spending, enhance the capacities etc.).

Economic Growth

Cambodia has witnessed in the past years robust and steady macro-economic growth. GDP at constant prices grew at double digit levels for some years but is expected to decline to 7% in 2009. The economic growth continues to be led by garments manufacturing, tourism and construction. Per capita GDP continued to increase, too and reached the nearly 600 USD (594 USD) in 2007 (up from 394 USD in 2004). Inflation escalated to over

11

20% in 2008 but is expected to come down again in 2009. The Riel-US$ exchange rate remained stable at about 4,000 riels to one USD. Budget revenues have been growing at the rate of 26% per annum in recent years. Even with increased budget expenditure, the budget surpluses continued to grow. So did the gross foreign reserves (doubling from less than 1 billion in 2005 to more than 2 billion USD in 2008. Most notably, foreign direct investments increased 7 times from USD 121 million in 2004 to USD 868 in 2007.

For the future it is intended

to ensure GDP growth at 7% or more,

to continue to implement the Public Financial Management Reform Program,

to maintain the exchange rate stability,

to contain inflation,

to properly fund the programme budgets for the 7 Priority Action Programmes (PAP) (MOEYS, MOH, MWA, MAFF, MRD, MLMUPC and MOJ),

to ensure progressive increases in allocations and disbursements to priority pro-poor sectors,

to encourage private sector investment in priority activities in the rural sector,

to ensure full transparency and accountability in all government transactions.

Table 3.15: Key macroeconomic data (In percent of GDP unless otherwise indicated)

Particulars 2005 2006 2007 2008

e 2009

f 2010

f 1 Annual GDP (constant prices) – bn. riels 22,009 24,380 26,868 28,736 30,607 32,759

2 Agriculture (%) 29.4 28.0 26.7 26.1 25.5 24.8

3 Industry (%) 26.8 28.6 28.1 28.3 28.5 28.9

4 Services (%) 38.5 38.3 38.3 38.7 39.1 39.6

5 GDP per capita ( '000 Riels) 1,862 2,108 2,416 2,892 3,217 3,505

6 GDP Per Capita (US$) 455 514 594 716 778 842

7 Real GDP (% change) 13.3 10.8 10.2 7.0 7.2 7.0

8 CPI Inflation (% Year-average) 5.8 4.7 5.9 20.0 10.0 4.0

9 Budget Revenue as % of GDP 10.6 11.4 12.1 12.5 12.8 13.1

10 -- of which Tax revenue 7.7 8.0 10.2 10.4 10.7 11.0

11 Budget Expenditure as % of GDP 13.2 14.1 14.8 14.6 14.3 14.0

12 -- of which Current 7.6 7.9 8.2 8.2 8.2 8.5

13 Budget Current Surplus (billion riels) 471.0 355.8 1,116.4 1,515.8 1,742.0 1,951.0

14 Contribution to FDI (exemptions) 5.2 5.6 5.5 5.2 5.5 5.5

15 Riel/US$ average rate 4,117 4,058 4,000 4,130 4,143 4,163

16 Gross Foreign Reserves (US$ m) 915 1,097 1,616 2,134 2,260 2,521

17 Foreign Direct Investment (US$ m) 381 483 868 944 718 825

Source: MoP: NSDP MTR 2008 based on data from NIS & MEF

e: estimates; f: forecasts

Rehabilitation of infrastructure

The four main features with regard to rehabilitation of the infrastructure are

the further construction of transport infrastructure,

the management of water resources and irrigation,

the development of the energy sector (including oil and gas) and electricity net work and

the development of information and communications technology.

12

Transport infrastructure

Cambodia has 11,494 km length of national and provincial roads, consisting of 2,097 primary national roads, 2,705 km of secondary national roads, and 6,692 km of provincial roads. Most national primary roads have been designated as Asian/ASEAN or GMS highways for facilitating international transportation, trade and tourism across borders. The major developments in physical infrastructure (including transport infrastructure and urban water supply) in the last two and half years have been:

Road transport continues to remain dominant in the transport sector. The total length of paved primary and secondary roads was 2,512 km in 2007, increasing from 2,100 km in 2005. Only 110 km of provincial roads are paved, the rest are laterite surfaced. The construction and improvement of all the roads (and bridges) was accelerated in 2006-2007.

Railway transport carries only a small part of passengers (persons/km) and goods (tons/km) but plans are underway to make this infrastructure more useful and productive, also in the context of the proposed regional railway network. A major achievement has been the reconstruction and re-connection of the rail link between Sisophon and Poipet which had been almost entirely damaged. Plans and estimates have been prepared for reconstruction of the entire length of the two main rail lines connecting Phnom Penh.

Inland waterway transport is not high. Dredging of all major waterways, particularly Mekong and Tonlé Sap rivers, has continued to facilitate river transport and will remain the immediate priority.

Progress has been made in developing the two international ports (autonomous Sihanoukville sea-port and the Phnom Penh river port). A total of 1.81 mt of goods was handled at Sihanoukville port in 2007, increasing by 21% from 2004; the total volume of containers was 252 TEU in 2007, an increase of 18.3% from 2004.

Upgrading of the three international airports has boosted further development of tourism sector, which contributes to socio-economic progress through its multiplier effects. Eight domestic airports were repaired and maintained. Compared to 2006, the number of passengers on international flights increased by 28% in 2007.

The management of water resources and irrigation

A Law on Water Management was adopted in 2007.

Rural water supply and sanitation: Progress has been made in access to rural water supply: In 2007 45,5% of the rural population had access to improved drinking water and 16,7% had access to sanitation.

Urban water supply and sanitation: Efforts have been made to expanding the capacity for providing safe from standardised supply system in 94 urban centres. The total volume of produced safe water of urban centres has increased from 9.7 million cubic metres in 2006 to 10.6 cubic metres in 2007 so that 40% of the urban population have access to safe water. In Phnom Penh safe water production has increased from 63.26 million cubic metres in 2006 to 79.70 cubic metres in 2007 so that 90% of Phnom Penh population have access to safe water. A sewage-water treatment plant in Sihanoukville has been established and the construction of another plant is ongoing.

Irrigation: Many of the existing irrigation and drainage systems have been rehabilitated and reconstructed, with irrigating capacity for 141,277 hectares. Surface water storage capacity has been expanded and water harvesting technologies promoted. The use of underground water through tube-wells for irrigation is increasing. Measures on mitigation and management of vulnerability to flood and drought have been developed and applied. Farmer Water User Communities have been strengthened and expanded with increasing membership and participation of women.

13

Development of the energy sector

Electricity supply, particularly in Phnom Penh and some other major population centres has improved with increased generation capacities and enhancement of transmission and distribution systems. New energy sources are being explored. Possibility of exploitation of offshore oil and gas resources has improved future prospects. Major developments in this sector during the last years were:

The Power Strategic Plan guides action in this sector and a Rural Electrification Master Plan has been launched.

Continued efforts have improved the country’s electrification situation. Electricity generation increased from 894.52 Gwh in 2005 to 1,505 Gwh in 2007. Electricity imported has also increased. Approximately 25% of all households have access to electricity (from all sources).

More in-country generation of energy will be needed.

High cost of electricity is of continuing concern.

Development of information and communications technology

Tele-communications and internet use have also expanded due to increasing competition of private operators. Important developments in the last two and half years and some challenges ahead are:

In April 2008 the total number of telephones in use was 2.932 million or more than 20% of the population (of which 98.7% were mobile phones). This is more than double of 2006 and more than three times of 2005. This exponential expansion has occurred especially in rural areas along with more access to e-mail and internet in all 24 provinces and municipalities.

Use of computer technology and internet are also spreading fast along with increasing expertise among young people.

Mass media (radio, TV and the press agency) have also expanded: About 70% of the Cambodian population are able to receive news, education, and entertainment through the existing mass media, both government and private.

Table 3.16: Key projections in physical infrastructure

Item Unit 2005 (est) 2010

Energy used: gasoline and diesel

tons 179,136 317,350

Electricity generated Gwh 759.7 1,346.0

Length of transmission network (115 KVA)

km 128.7 228.0

Household consumers no. 208,476 370,000

Per capita consumption/year

kwh 54.01 89.11

Primary and secondary roads: total (paved)

km 11,310 (2,100) 11,310 (4,100)

No. of international ports

no. 2 2

Tourism: visitor arrivals no 1,300,000 3,120,000

Tourism: foreign exchange earned

US$ million 600 1,500

Source: NSDP

Agriculture

Agriculture is crucial to improve the incomes, particularly the poor, in rural areas. Total production in crops, particularly rice, grew steadily resulting in exportable surpluses in recent years. Average paddy yield per hectare has grown, but is still below those in

14

neighbouring countries. A National Strategy for Agriculture and Water, 2006-2010, was developed through a consultative process and adopted in 2007 and several measures are underway to improve and diversify agricultural production. In forestry, many old concessions were cancelled for non-performance and new concessions granted with a strict condition to follow plans according to environmental and social impact assessments. For the forthcoming years the key challenges continue to be the following:

Improve the productivity in rice and other crops.

Increase and improve access to extension services, credit and inputs.

Increase irrigation.

Diversify the agricultural sector.

Strengthen and enlarge animal production.

Ensure better benefits for farmers through (improved) marketing.

Promote agro-industry (post-harvest processing).

Encourage and facilitate private sector involvement in agriculture and agro-processing.

Try out innovative grassroots oriented direct interventions to reduce poverty.

Aim for optimum use of land and other resources and ensure sustainable access of the poor to land and common property resources (especially in the fisheries sector).

Improve food security and nutrition.

Protect the environment and better manage the protected areas.

Conserve forests through sustainable management practices.

Continue removal of land mines and UXOs.

Table 3.17: Targets and progress in agriculture

Particulars 2005 2006 2007 2008 Est

2010 Targets

1 Rice Production (million tons) 5.98 6.26 6.72 6.98 7.25

2 Rice Yield per hectare, tons 2.48 2.49 2.62 2.60 2.80

3 Fish catch (Inland, Marine, Aquaculture) - MT 410,000 516,000 482,000 500,000 450,000

4 Irrigated area including supplemental irrigation (000 ha) 632 721 773 827 867

5 Land Reforms -- no. of titles issued to farmers -- % of total land

15 17 18.2 20.0 24

6 Forest area (% of total land area) 59 59 60

7 Fuel wood dependency (firewood, charcoal): households%

83.9 83.9 61

Source: MoP: NSDP MTR 2008 based on MAFF & MOWRM data

Rural Development

Since 2006, rural development is a priority sector among other 6 priority sectors of the RGC under PFMRP for budget allocations and timely disbursements. Rural infrastructure (construction, improvement and maintenance) is vital for any progress in rural areas - to bring extension services and inputs to the interior and to facilitate market access to outputs. In 2006 and 2007,

capacity development efforts extended to 23,404 people,

266 Village Development Committees were established,

new roads for a length of 1030 km were constructed,

1,604 km of rural roads were repaired; 3,761 km or rural roads were regularly maintained,

96 small bridges and 726 culverts were built,

54 new school were built and 3 old schools were repaired,

3 community markets were established,

15

3,022 of all types of water supply wells were constructed and 1,332 of all types of wells were repaired and 62 ponds were provided to rural communities in water scarce areas.

To further advance rural development, along with D&D, accent will continue to be on building rural infrastructure - much of it through devolution of funds to subnational levels. But efforts are also needed

to enhance access to rural credit and to bring down the prevalent high interest rates,

to strengthen the functioning of C / S councils and VDCs in order to promote participation of local communities in rural development,

to promote “one village one product”,

to maintain and extend rice and animal banks,

to implement labour intensive programmes.

Table 3.18: Targets and progress in rural development

Particulars 2005 2006 2007 2010 Target

1 Rehabilitation of rural roads – out of total 28,000 kms 22,700 22,964 23,729 25,000

2 Access to improved drinking water -- % of rural population

41.6 42.6 45.5 45

3 Access to Sanitation -- % of rural population 16.4 16.5 16.7 25

Source: MoP: NSDP MTR 2008 based on MRD data

Private Sector Development

Special mechanisms have been set up to develop the private sector. The contribution of industries to the GDP has climbed sharply, pushed by the fast growing garment and construction sectors. Tourism has also grown robustly and steadily. But the pillars of Cambodia's economic development need to diversify in order to be sustainable over time. Encouraging private sector investments both domestic and foreign is of utmost importance for further economic development. RGC will remove the current major obstacles including delays in approvals and high transaction costs and improve the overall climate through various governance reforms. Measures will also be taken to promote development of small and medium enterprises (SME), which constitute 90% of all enterprises and account for half of the employment in the private sector. SME will continue to receive special attention, including better and easier access to long and medium term finance.

Education Sector

In terms of human development, education sector is not only a priority area but also a success story with many indices showing significant improvement and a high level of collaboration among all stakeholders around the Education Sector Strategic Plan (2006-2010) and a Sector Wide Approach (SWAP). Significant progress has been made in the recent past in the realisation of the major priorities of ESP 2006-2010 especially in increases in number of primary and lower secondary schools, in enrolment level in lower secondary education (enabling the completion of basic education up to standard 9), and in adult literacy (15-24). Nevertheless, it is recognised that there are still gaps relating to the availability of all the educational facilities for providing education to children from the very poor households and households in remote areas. Attention also needs to be paid to vocational training and higher education to start building a 'critical mass' of educated, skilled, talented, capable people to serve the development needs of the county in various spheres. Concerns for improving quality at all levels however continue and have to be addressed, too. Priorities for the future years include:

16

Ensure easy and equitable access to basic education, especially to the poor and those living in remote areas.

Address the structural problem of overage enrolment which is associated with poor learning and high repetition and drop-out rates.

Improve transition rates from primary to secondary and beyond.

Facilitate attendance of girls at lower secondary and higher levels.

Ensure school feeding programmes to attract and retain poor students in primary schools.

Reduce the financial burden on poor students by targeted scholarships.

Improve quality of education at all levels, including quality and competence of teachers.

Ensure better linkage of education and training to the short and long-term needs of the labour market and the society.

Address issues of too-rapid expansion of tertiary education in the private sector giving rise to problems of lack of qualified faculty members, low quality of some degrees and thus future employability of graduates.

Table 3.19: Targets and progress in education

Targets and Indicators 2005-06 2006-07 2007-8 2010-11 (Target)

2015-16 (Target)

1 Primary Schools(1-6): Nos 6,277 6,365 6,476

2 Longest distance to a school Kms 2.00 1.5

3 Net Enrolment %: Total 91.3 92.1 93.3 100 100

4 Male 93.0 93.2 93.2 100 100

5 Female 89.7 91.0 93.3 100 100

6 Net Enrolment %: Urban 91.2 93.2 92.7 100 100

7 Rural 91.7 92.2 93.6 100 100

8 Remote areas 83.7 86.0 88.4 100 100

9 Survival Rate: 1-6 years % 49.3 52.5 N/A 100 100

10 Lower Secondary Schools (7-9) Nos 911 1,122 1,303

11 Longest distance to lower sec. school Kms 8 4

12 Net Enrolment % : Total 31.3 33.7 34.8 50 100

13 Male 32.1 34.3 33.7 50 100

14 Female 30.4 33.1 35.9 38 100

15 Net Enrolment %: Urban 50.1 53.5 55.9 75 100

16 Rural 28.6 30.7 31.5 50 75

17 Remote 6.0 9.0 11.1 50

18 Survival rate %: 1-9: 26.3 29.3 NA 50 100

19 Literacy rate - 15-24 years % 84.7 84.7 84.7 95 100

Source: MoP: NSDP MTR 2008 based on MoEYS data

Health Sector

Significant progress has been achieved in the health sector as well. All health indices have shown considerable improvement but further efforts have to be undertaken in order to reach results comparable to those in neighbouring countries. High rates of maternal mortality are of particular concern. A major success story is the rapid decline in prevalence of HIV/AIDS. It is expected that most of the CMDG health targets will be met except maternal mortality. Priorities for the forthcoming years include:

to expand the availability of health care facilities by construction and/or rehabilitation of facilities in rural areas,

to expand and strengthen sustainable methods for provision of help to the poor to access public health care system (HEF, CMBHI etc.),

to elicit, encourage and involve private sector in provision of health care, both in urban and rural areas.

17

Table 3.20: Targets and progress in health

Targets and Indicators 2005 2010

(Target) 2015

(Target)

1 Infant Mortality Rate, per 1,000 live births 66 60 50

2 Under five Mortality Rate, per 1,000 live births 83 75 65

3 Under 1 yr. olds immunised against DPT3-HepB-- % 83 92 95

4 Under 1 year olds immunised against measles -- % 80 85 90

5 Maternal Mortality, per 100,000 live births 472 243 140

6 HIV/AIDS prevalence, % of adults, 15-49 0.9 <0.6 <0.6

7 Malaria: treated at public heath sector – 1,000 popn 7.3 3.5 3.0

8 Prevalence of smear positive TB, per 100,000 population 269 214 135

Source: MoP: NSDP MTR 2008 based on MOH data

Smear positive TB prevalence: National TB Prevalence Survey 2002

Gender Mainstreaming

Elimination of gender imbalances and proactive promotion of women’s rights and equality between men and women in all development sectors are crucial in the agenda for progress in Cambodia. Efforts in this regard will be guided by the Five-Year Strategic Plan for Women (2004-2009), called Neary Rattanak-II.

Some important developments during the last years have been:

Gender Mainstreaming Action Groups have been established in 25 ministries and institutions, of which 15 have established sectoral plans.

The proportion of women elected as commune / sangkat council members has increased from 8% in 2002 elections to 15% in 2007 elections. RGC is in the process of appointing a female deputy and district governor in all provinces and municipalities. In addition, a Guideline on Quotas for Women in Recruitment to Civil Servants has been issued.

Efforts have continued to support income generation for women through increase in job-opportunities, support for SME development and development of Women's Development Centres to provide vocational and entrepreneur skills and business advisory services in 11 provinces.

A National Action Plan to Combat Violence Against Women has been developed and is being implemented in accordance with the Law on the Prevention of Domestic Violence and Protection of Victims adopted in 2005. However, violence against women remains high in Cambodian society.

The Law on Suppression of Trafficking in Humans and Sexual Exploitation was adopted in late 2007, consistent with the UN Palermo Protocol.

Since the awareness of gender issues and the financial resources needed to enhance gender equality are still limited all efforts must be undertaken to empower women and to promote their rights.

Population Policy

The main achievements of the population policy consist of:

Most women know clearly about contraception methods. 40 percent of married women used contraception methods and 27.2 percent of married women were using modern birth spacing methods.

The preliminary results of the 2008 population census show that the Cambodian population has increased by 1.95 million over the period of 10 years (from 11.4 in 1998 to 13.4 million - 6.5 million males and 6.9 million females – in 2008).

18

The total fertility rate has fallen from 4.0 in 2000 to 3.4 in 2005. As a result, the population growth rate has continued to decline to 1.8 percent in 2006, to 1.54 in 2008 and it is expected to decline to 1.5 percent in 2010.

Fertility preference is 3.3, leading to a decrease in household size. The average size of a normal household has declined from 5.2 in 1998 to 4.7 in 2008 and the decreases in urban and rural areas revealed that from 5.5 to 5.0 and 5.1 to 4.6 between 1998 and 2008 respectively. However, the number of households in the country has been increasing at an annual rate of 2.7 per cent whereas population increase was at a lower rate of 1.5 per cent.

Costs, Resources and Programming

It is estimated that US$ 4,200 million will be needed for the public sector during 2006-2010 to achieve the goals and targets set forth in the NSDP. Within this envelope, priority attention is needed to some major sectors. To ensure a rural focus for poverty alleviation the NSDP states that more than 60% of the resources are to be directed to rural areas. The following table provides the total financial outlay of the NSDP 2006-2010 based on macro-economic projections agreed upon with the IMF.

Table 3.21: NSDP allocations 2006-2010 (USD million)

Sector 2006

NSDP 2006 %

allocation 2008 MTR revision

2008 % allocation

2006 - 2008 % change

Social Sectors Education (basic = 60%) 550 15.71% 670 15.95% 22% Health 600 17.14% 720 17.14% 20%

Sub-Total 1150 32.85% 1,390 33.10% 21%

Economic Sectors Agriculture & Land Mgmt: other than crops 150 4.29% 200 4.76% 33% Seasonal crops: rice etc 200 5.71% 370 8.81% 85% Rural Development 350 10.00% 420 10.00% 20% Manufacturing, Mining & Trade 80 2.29% 100 2.38% 25%

Sub-Total 780 22.29% 1,090 25.95% 40%

Infrastructure Transportation (Primary & Secondary Roads) 550 15.71% 690 16.43% 25% Water and Sanitation (excluding rural) 150 4.29% 180 4.29% 20% Power & Electricity 120 3.43% 160 3.81% 33% Post & Telecommunications 60 1.71% 75 1.79% 25%

Sub-Total 880 25.14% 1,105 26.31% 26%

Services & Cross Sectoral Programmes Gender Mainstreaming 30 0.86% 40 0.95% 33% Tourism 30 0.86% 45 1.07% 50% Environment and Conservation 100 2.86% 120 2.86% 20% Community and Social Services 80 2.29% 100 2.38% 25% Culture & Arts 30 0.86% 40 0.95% 33% Governance & Administration 220 6.29% 270 6.43% 23%

Sub-Total 490 14.00% 615 14.64% 26%

Unallocated 200 5.71%

Grand Total: 3,500 100% 4,200 100% 20%

Source: CDC/CRDB: AER 2008, MoP: NSDP 2006 Table 5.2 and MoP: NSDP MTR 2008 Table 4.3 (derived)

The resources to be available for the NSDP will come from:

the annual national budgets;

grant aid from external development partners;

concessional loans from multilateral financial institutions (MFIs);

19

resources from non traditional partners including semi-concessional loans from MFIs; and

funds made available from possible past debt relief.

There are also good prospects for further incomes from the exploitation of offshore oil and gas resources. RGC will put in place the necessary infrastructure to optimise the use of these valuable resources and revenues to flow from them.

A high priority is to direct resources in a meaningful way to NSDP priorities and to persuade EDPs to fully align their assistance to NSDP, too.

Monitoring and Evaluation

Progress of the NSDP will be annually reviewed and monitored. For this purpose, a monitoring framework has been developed in 2006 (for more details see chapter 6). The monitoring framework complemented by other surveys and studies will track progress on key indicators for reaching goals including the CMDGs. Based on the monitoring a first annual progress report has been produced in 2007 and a mid-term review in the second half of 2008.

3.3 NSDP in practice

Outstanding features of achievements during the last years are the following:

Internal peace, stability and security continue to consolidate.

Legal and public administration reforms go ahead in several ways.

Macro-economic stability has improved but continues to be too narrowly focused on garment industry, tourism and construction.

Fiscal performance has improved, too with revenues increasing and allocations for essential social sectors being increased.

Inflation was well under control till 2006 but has shown escalation in late 2007 and 2008.

Private sector has grown significantly with expansion of financial institutions and investments.

Agricultural growth, particularly rice production, after registering unprecedented record levels in 2005, aided by good weather and increased use of irrigation facilities, continues to be positive though at reduced levels.

Most importantly, poverty levels have fallen from 34.7% in 2004 to 30.1% in 2007, as per latest estimates based on CSES, 2007.

Improvements have also occurred in important social indicators such as infant and child mortality rates, and notably HIV/AIDS incidence.

Educational indicators have also shown improvement.

The CDHS 2005 report and the provisional results of 2008 population census present overall success of the government population policy.

Remaining challenges: Progress in the past two and half years has however been below expectations or stagnant in the following aspects:

Contain the largely externally induced inflation at moderate levels.

Maintain macro-economic stability and growth despite inflation and external pressures.

Diversification of the economic base into other productive sectors needs to accelerate. Garment industry, a major factor in growth so far, is leveling off.

Agricultural production and productivity as a whole have scope to improve significantly.

Poverty reduction needs to continue at an ever higher rate especially in rural areas.

20

Provide emergency food aid and social safety nets to the poor during times of inflationary stress, particularly shortage of the staple rice, through targeted subsidies and tax relief on essential commodities.

Integrate NSDP, PIP and budgetary and ODA processes to improve allocation of resources to NSDP priorities.

Ensure that revenues from oil and gas, indeed all natural resources, which are the common inheritance of all Cambodians are used in a wise manner to benefit all Cambodians, present and future.

Align all EDP resources to NSDP priorities. So far this has not proceeded well despite clear undertakings in international for and in country level agreements by major donor agencies.

Public administration reforms and legal reforms need to make progress.

While some sector strategies have been prepared and are being implemented such strategies and plans are still to be prepared for many sectors.

RGC also needs to enhance and improve inter-departmental and inter-ministerial collaboration.

Many TWGs are still to commence review of all ongoing programmes to align and reorient them to NSDP priorities in spite of clear calls from the highest levels in RGC.

From a strategic point of a view the most important challenges to work on in the near future are the following:

Reconciliation of different plans: The introduction of a planning system that considers national and sector plans and reconciles these plans with local needs represents a challenge especially for MoP and Planning Departments in line ministries and at subnational level since they have to make the implementation of this system happen. The D&D reform process will provide relevant frameworks how to do this.

Linking planning at different levels : So far, there are only weak linkages between planning at subnational level, sector planning and NSDP. The D&D reform provides a framework for decentralized planning and cooperation that gives stakeholders at different levels and in different sectors an important role to be made best use of.

Integration and synchronization of major policy instruments and processes: So far, planning timelines of the NSDP, the PIP, the national budget cycle, sector and subnational planning, budgeting and implementation are inconsistent. They need to be better integrated respectively synchronized / streamlined in order to prevent to waste time or to get stuck and to improve planning and effective implementation. An ideal integration and synchronization of major policy instruments and processes could look as follows.

Table 3.22: Integration of macro policies and processes

RGC macro policies and processes

EDP support policies and processes

Policy level (What to do?) RS II (SNEC)

NSDP (MoP)

Joint Assistance Strategy

Policy level (How to do it?) Paris Declaration, Accra Agenda of Action

Paris Declaration, Accra Agenda of Action

Implementation level integration/merger of PIP and MTEF (MEF)

Annual Budget (MEF)

drafting and implementation of sector strategies and actions plans by line ministries and agencies

provision of Official Development Assistance (ODA)

implementation of sector strategies by line ministries and agencies

21

RGC macro policies and processes

EDP support policies and processes

Monitoring joint maintenance of ODA database

regular and meaningful TWG and CDCF meetings

integration/merger of NSDP APR/MTR and AER (MoP)

independent evaluation (green book approach)

joint maintenance of ODA database

regular and meaningful TWG and CDCF meetings

submission of an AER to be part of the overall NSDP APR (CRDB)

independent evaluation (green book approach)

Strategic Planning: Planning often ends up drafting wish lists. To prevent this, strategic planning is necessary. Strategic planning is about identifying needs, problems, challenges and linking wishes to financial feasibility by prioritising and costing activities. At MoP level strategic planning is being done in the context of the Ministry of Planning Strategic Plan (MPSP) (see chapter 4 for more details).

Funding: Planning needs to be linked to funding for it to be a meaningful exercise. Therefore, the planning process needs to be part of the national budget cycle and funding has to be secured at all levels by transfers from the national budget as well as own incomes of the communes / sangkats, districts and provinces.

Monitoring: Monitoring is being done separately by different actors at different levels. In order to improve overall monitoring the NSDP targets and indicators should be broadened as shown in chapter 6.2 as well as disaggregated to subnational levels (province, district, commune …), the respective data should be effectively recorded and the existing databases (i.e. the commune / sangkat database and the NIS database) should be linked.

RGC will attach high priority and pay specific attention to address these challenges. Since the implementation of the NSDP is through sector and subnational policies, strategies and action plans it is of highest importance,

that sector policies, strategies and action plans are being drafted, that they do inform about and align to the NSDP and clearly set out how the NSDP goals and targets referring to their sectors will be achieved through their sector policies, strategies and action plans,

that subnational policies and plans also inform about and align to NSDP and clearly set out how the NSDP goals and targets will be achieved within each province, district and commune.

22

Chapter 4

The MPSP in brief

Against the background of the political platform of the Rectangular Strategy, the five-year development strategy outlined in the NSDP and the challenges for implementing the Harmonization, Alignment and Results (HAR) agenda laid out in the Strategic Framework for Development Cooperation Management (SFDCM), the MOP decided in October 2006 to reorient its work and the management of EDPs support to the Ministry in a harmonized and coordinated way. The Ministry of Planning Strategic Plan (MPSP) captures the essential elements of the NSDP (including the CMDGs), the SMP and the SFDCM and unites them in a strategic way.

The most important focus in this reorientation is the support to MOP in the NSDP process including the monitoring of its implementation. The NSDP explicitly states the needs

to move away from the traditional planning approach to one that focuses on strategic goals and actions and

to guide the entire development process in order to combat poverty and achieve the CMDGs.

The need for streamlining is also one of the lessons learned from the experiences of other Ministries in developing their own sector-wide or thematic approaches.

In order to elaborate the first Strategic Plan for the Ministry of Planning, the MOP organized a retreat in October 2006 in Sihanoukville that resulted in the elaboration of a matrix on objectives and activities, which represent the heart of this strategic plan (see annexe).

The MPSP then underwent several stages of scrutiny by many stakeholders from both MOP departments and External Development Partners (EDPs) as members of the Technical Working Group on Planning and Poverty Reduction (TWG-PPR) and it was finally endorsed by MOP leadership as the strategic plan and roadmap for the whole MOP in July 2007.

The MPSP 2006-2010 is the first strategic plan of the Ministry of Planning. It lays out MOP’s role in and its main activities to support the Royal Government of Cambodia’s efforts in implementing the National Strategic Development Plan (NSDP). The MPSP spells out MOP’s critical activities for a five-year period that need to be undertaken. The highest priorities of MOP are twofold:

For the General Directorate of Planning (GDP) the highest priority is the implementation of the NSDP.

For the National Institute of Statistics (NIS) the highest priority (according to the Statistical Master Plan, SMP) is to maintain existing economic and socio-demographic statistics and to improve their quality and timeliness.

The heart of the MPSP is the matrix attached in the annex. The matrix contains objectives, targets and activities for the forthcoming years. It also shows the respective time frames, partnerships and budget estimates. To summarize the matrix, there are eight objectives and nineteen targets and more then 60 main activities all together. The key features of the matrix are:

23

Objective 1 : To ensure implementation of the NSDP and progress towards the CMDGs.

This is the primary objective of MOP. The five targets relating to this objective comprise

dissemination of the NSDP and development of MOP information and communication resources,

progressive alignment of sector strategies, sub-national plans and cross-sectoral policies and plans with NSDP priorities,

greater consistency of the resource allocation processes and outcomes (the budget cycle, MTEF, PIP and ODA) with NSDP priorities,

targeting of poor areas and poor households to ensure resources intended for direct poverty reduction are allocated for maximum effectiveness and efficiency and

development of MOP capacities to prioritize and mainstream gender issues in planning and gender equity in NSDP implementation.

The respective activities required in order to achieve the objective and the targets are the following:

to develop and implement a NSDP dissemination and communication strategy,

to develop and maintain a MOP / NSDP website,

to cooperate with line ministries and agencies to draft new sector strategies or align existing sector strategies with NSDP priorities,

to work with subnational authorities to align planning processes and plans (objectives, targets, priorities, actions, resources) with CMDGs and NSDP making these connections through provincial situation analysis, priority setting, costing, supplying appropriate monitoring data etc.,

to strengthen MOP leadership and partnerships with stakeholders to implement the Cambodia Nutrition Investment Plan (CNIP),

to identify roles and responsibilities to prepare CNIP-2 (2009-2019),

to build closer working relations with the PFM Reform Program (PFMRP),

to offer to make a presentation to National Assembly (Committees) on proposals for NSDP-PFM linkages,

to use PIP preparation to align Ministries' and NSDP priorities.

to work with MEF on how to start harmonizing timeframes for budget submission and PIP/MTEF.

to ensure that NSDP-PIP commitments are reflected in budget allocations,

to establish harmonized and standardized criteria and procedures for identification of poor households in pilot provinces,

to later expand the coverage of the program for household identification,

to promote the development of social transfer programs targeted towards poor households,

to develop institutions and processes for geographic targeting,

to promote gender mainstreaming in planning systems,

to develop capacity to mainstream gender in planning systems by conducting cascade training from national to decentralized levels,

to prepare and implement a gender mainstreaming Strategy and action plan.

Objective 2: To monitor and evaluate progress towards NSDP implementation and NSDP/CMDG outcomes

There are three specific targets under this second objective of the MOP Strategic Plan:

collection, analysis and reporting of information on NSDP implementation and NSDP/CMDG outcomes,

24

generation of mandatory reports required for international monitoring processes based on NSDP monitoring data and reporting format and

development of MOP staff capacities to ensure effective implementation and monitoring of NSDP.

The activities required in order to achieve the objective and the targets are the following:

to refine and implement the NSDP monitoring framework in collaboration with NIS and line ministries / agencies (working with their respective TWGs),

to conduct CMDG / NSDP evaluations and policy analysis,

to combine core monitoring and selected annual evaluation / analysis in NSDP Annual Progress Report,

to strengthen Government capacity to monitor, evaluate and report on implementation and outcomes of NSDP and other plans and actions,

to ensure the NSDP APR can be submitted as an LDC report (a RGC commitment under the Brussels agreement) and MDG report,

to engage in other national analytical exercises conducted by other stakeholders (e.g. NHDR, World Bank reports to CDCF meetings, State of the World Population Report, etc.),

to improve capacity of MOP staff in poverty and macroeconomic analysis and related subjects (working with NIS and MEF),

to conduct training of trainers (ToT) on identification of poor households at national level,

to develop capacities of MOP, line Ministries and provincial staff (through training etc.) to align sector strategies and sub-national plans with NSDP,

to provide capacity building to provincial and district poverty-oriented planning system (aligned with to NSDP).

Objective 3: To ensure that MOP and its partners implement actions required under the harmonization, alignment and results (HAR) agenda

The target of the third objective is to ensure that Government and donor resources allocated to MOP align with NSDP priorities.

The activity required in order to achieve the objective and the target is the following: fulfil commitments under the TWG PPR-Action Plan and MOP functions assigned under RGC's HAR Declaration and Action Plan.

Objective 4: To Prepared NSDP updated 2009-2013

The fourth objective of the MOP Strategic Plan contains two targets:

streamlining of MOP activities towards NSDP functions during the implementation of MOP Strategic Plan and

endorsement of an NSDP updated 2009-2013 in April 2010.

The respective activities required to be done in order to achieve the objective and the targets under this heading are the following:

to progressively realign GDP/MOP activities clearly with NSDP functions,

to strengthen international cooperation within MOP,

to perform an annual review of the MPSP, and

to identify roles, responsibilities, schedule of processes, resources (human resources, other MOP capacity development, TA inputs) needed for the preparation of the updated NSDP; secure all necessary resources and mandates well in advance to allow the updated of the NSDP to 2013 to proceed in a timely and efficient manner.

25

Objective 5: To strengthen the local development planning process

There are two targets under the heading of this fifth objective:

improvement of the capacity of planning officers at all subnational administrative levels

strengthening of the capacity of the national working group on local planning processes.

The activities required in order to achieve the objective and the target is the following:

to provide guidance on strategic development plan processes,

to participate and support planning process,

to implement database management,

to prepare and analyse "profiles" of the different administrative levels,

to support the formulation of development plans and investment programmes,

to manage the development planning database,

to support the preparation of integration workshops,

to monitor and assess the implementation of planning processes,

to enhance the capacity of national working group,

to cooperate with relevant stakeholders to support decentralization and de-concentration policy at the different administrative levels.

Objective 6: To create a coordinated and improved the national statistical system

The sixth objective of the MOP Strategic Plan has two targets :

improvement of statistical governance and

improvement of coordination throughout the national statistical system.

The respective activities to be done in order to achieve the objective and the targets are the following:

to elaborate and enact the statistical legislation framework.

to make sure that the Statistical Advisory Council and Statistical Coordination committee meets six and three months respectively and coordinates standards and procedures.

Objective 7: Ensure that national statistical service is timely, relevant and responsive

Under the seventh objective of the MOP Strategic Plan, the target is to improve NIS statistical service, statistical coverage and definitions to meet national reporting requirements.

The respective activities to be done in order to achieve the objective and the targets are the following:

to release 2008 Census data & results widely through website and CDROM & yearbook,

to publish quarterly national accounts,

to publish annual estimates of poverty headcount rates,

to regularly update the producer and agricultural commodity price indices,

to undertake the 2008 general population census,

to do the five-yearly socio-economic survey,

to conduct the establishment survey,

to conduct the demographic & health survey in 2010,

to conduct the agricultural census.

26

Objective 8: Improved and informed and increased use of official statistics

There are two targets for this objective.

improvement of access to national official statistics and

improvement of understanding of statistical data and its use for policy development, targeting and prioritisation.

The respective activities to be done in order to achieve the objective and the targets are the following:

to create a national statistical data warehouse,

to provide access to the statistical data warehouse through online micro-analytical processing software (SuperStar) or offline through CAMInfo,

to improved metadata and report dissemination through the revamped NIS website,

to extend the NIS virtual private network to line ministry statistical units to provide Internet access to national statistical data warehouse,

to provide training out-reach to line ministries and NGO development actors on utilisation of offline data resources (CamInfo Verion 3) and online data resources (SuperSTAR),

to establish a staffing and training of statistical analysis department within NIS.

The MPSP also sets out the respective time-frames and estimates the support needed to implement these strategic activities (for more detail see the MPSP matrix in the annex). The MPSP will serve as the single guiding reference document not only internally within MOP but equally for all EDPs interested in supporting the poverty-reduction-oriented planning managed by MOP.

27

Chapter 5

Decentralization & Deconcentration reform in brief

5.1 The context

Decentralization and deconcentration (D&D) reforms were launched by the RGC in 2001 with the enactment of the Law on Commune/Sangkat Administration and Management and the Law on Commune / Sangkat Elections.

In February 2002 and again in April 2007 elections of Commune / Sangkat councils were held in Cambodia's 1,621 Communes and Sangkats.

In June 2005 the RGC adopted the "Strategic Framework for Decentralization and Deconcentration Reforms". It outlines the vision and basic principles for sub-national democratic development through the restructuring and reformation of all current level of sub-national administration. It represents the major policy document on D&D.

From 2005 to 2008 the RGC has been working on an "Organic Law on Decentralization and Deconcentration" entitled "Law on Administration and Management of the Capital, Provinces, Municipalities, Districts and Khans". It was promulgated in May 2008 after approval by the National Assembly and the Senate.

The RGC now intends to formulate a "National Program for Democratic Development" (NPDD) 2010-2019 to implement the Organic Law.

5.2 The content

Decentralization means that certain rights, responsibilities and resources are transferred from the central level of government to democratically elected commune/sangkat councils who are given a large degree of autonomy to decide upon.

Deconcentration by contrast means that national staff and resources are physically moved from the national level to subnational levels, but the authority to decide remains with the central state.

The Organic Law does not make an explicit distinction between decentralization and deconcentration but the D&D reform will bring about a redistribution of powers, duties and resources between and at the four main administrative levels, i.e. the central state / national level, the province level, the district / municipal level and the commune / sangkat level.

Table 5.23: Overview of powers, duties and resources of different administrative levels

Legislative power

Executive power

Duties / tasks

Own budget / own income?

Own personnel?

Central level

National Assembly, Senate, King

RGC ministries and institutions

drafting and execution of laws

further regulation

implementation of national policies and programs

"activities which are of strategic national importance will remain with the

national budget

funds are being (and will be to a larger amount) transferred from the national to subnational levels

MEF will elaborate guidelines for

yes

28

Legislative power

Executive power

Duties / tasks

Own budget / own income?

Own personnel?

responsibility of the national level" (SF 2005:5)

finances at subnational level

Province

(indirect) election or provincial councils in 2009

issuance of bylaws and decisions (see OL Art. 30, 31, 51-59)

"accountable directly to all citizens" (OL Art. 32)

Governor and Deputy Governor of the province (= Provincial Board of Governors)

nominated by RGC

provincial administration

all "selected among senior civil servants" (see OL Art. 136ff for more details)

"accountable to RGC" (OL Art. 151)

"shall report to the Council" (OL Art. 154)

implementation of national policies and programs

in future: execution of decisions (by-laws) of the provincial council

"any affairs that are not given by to any level of administration, provinces, municipalities, districts, khans, communes and sangkats may make decisions and implement projects and programs to meet local needs and priorities" (SF 2005:5)

provinces collects taxes

a specific amount of these taxes is given to the national level and some money remains in the provinces

"shall have their own budget" (OL Art. 43)

"the capital council, provincial council, municipal council and district council are eligible to receive revenue from local, national and other sources of revenue" (OL Art. 240)

now: personnel of RGC ministries and institutions

in future: own personnel, too (through redeployment and new recruitment)

personnel will report to the councils

"government (…) shall review and redeploy personnel to the council (…) for the purpose of establishing a body of personnel under the councils at sub-national levels" (OL Art. 251)

193 Districts

(subdivided

into

communes) /

Municipalities

(subdivided

into sangkats) /

Khans (in

Phnom Penh)

(indirect) election of district councils in 2009

issuance of bylaws and decisions (see OL Art. 30, 31, 51-59)

"accountable directly to all citizens" (OL Art. 32)

"meetings at least 12 times each year" (OL Art. 74)

3 obligatory commissions on Technical Facilitation, Women Affairs and Procurement plus additional committees as necessary (OL Art. 112f)

Governor and Deputy Governor of the District (= Board of Governors)

nominated by RGC

implements District Council decisions

all "selected among senior civil servants" (see OL Art. 136ff for more details)

"accountable to RGC" (OL Art. 151)

"shall report to the Council" (OL Art. 154)

implementation of national policies and programs

implementation of delegated tasks

own tasks (but no laws)

tasks will be further determined by an interministerial commission (NCDD)

"any affairs that are not given by to any level of administration, provinces, municipalities, districts, khans, communes and sangkats may make decisions and implement projects and programs to meet local needs and priorities" (SF 2005:5)

no own budget at district level

funds are being transferred from higher levels

in future, the district will a have a budget on its own

"shall have their own budget" (OL Art. 43)

"the capital council, provincial council, municipal council and district council are eligible to receive revenue from local, national and other sources of revenue" (OL Art. 240)

now: personnel of RGC ministries and institutions

in future: own personnel, too (through redeployment and new recruitment)

personnell will report to the councils

"government (…) shall review and redeploy personnel to the council (…) for the purpose of establishing a body of personnel under the councils at sub-national levels" (OL Art. 251)

1.621Commune

/ Sangkat

commune councils directly elected by citizens (2002 and 2007)

Chief = Head of Sangkat Council

implementation of national policies and programs

implementation of delegated tasks

own tasks

tasks will be further determined by an interministerial commission (NCDD)

registry

establishment of voters lists

the communes have budgets on their own (by law)

these budgets include administrative and investment costs

there are 4 types of incomes: taxes and fees, transfers from central state (general transfers and

now: one clerk

according to the law there should be own personnel, too

regulation is being prepared by MoI

29

Legislative power

Executive power

Duties / tasks

Own budget / own income?

Own personnel?

cadastre / land registry

"any affairs that are not given by to any level of administration, provinces, municipalities, districts, khans, communes and sangkats may make decisions and implement projects and programs to meet local needs and priorities" (SF 2005:5)

specific transfers for the execution of delegated tasks) and contributions from the citizens

altogether 2,75% of the national budget should be given to the communes

currently, each commune has about 11.000 €

further progress needs to be done

a law on local taxes is being drafted in MEF

Source: Results of a workshop attended by senior representatives of MoI, MoP and MEF held in November 2008 in Berlin

The central state comprises the National Assembly (i.e. the legislative), the Senate, the King, the RGC (i.e. the executive) and courts (i.e. the jurisdiction). The executive comprises all RGC ministries and several RGC institutions having their own budget and personnel. Their duties include the drafting and execution of laws and further regulation. Resources are being provided through the national budget. A certain amount of funding is being transferred from the national to sub-national levels. This amount will be increased in future. MEF will elaborate guidelines for fiscal affairs and administration at subnational level.1

At the provincial level provincial councils (i.e. the legislative) will be (indirectly) elected in 2009, but the Governor of the Province and its Deputy acting as the "Provincial Board of Governors" will continue to be nominated by central government. The duties of public administration at provincial level - "Provincial Office of Local Administration" (POLA) including the provincial Departments of Planning (DOP) mainly include the execution of laws and regulations. In future the provincial administration will also implement decisions (by-laws) of the provincial council. Provinces do have their own budget, but most of the taxes they collect are transferred to the central government and only a small amount remains in the provinces. But provinces do receive direct development assistance, too. In previous years it has been difficult to present meaningful analysis about support given to the provinces as data quality was a big problem. The table below shows that overall development assistance to the ten largest beneficiary provinces in 2007 amounted to USD 329 million, three times higher than the USD 110 million received by the other fourteen provinces combined. In total, 55% of total development assistance was disbursed at provincial level in 2007, broadly in keeping with the shares in previous years. Once population is taken into account, the picture changes somewhat. Sihanoukville receives the highest level of per capita support (USD 221), principally because of its large volume of assistance, whereas Mondulkiri receives the second highest amount (USD 140), primarily as a result of its small population. Phnom Penh receives USD 53 per capita, marginally below the national average of USD 59 per capita, while Takeo, Kampong Cham and Kampong Speu received between USD 10-15 per person in 2007.

1 The Strategic Framework (2005:16) states: "The Ministry of Economy and Finance will have the

following duties: developing fiscal decentralization strategy that is consistent with the decentralization and deconcentration strategy and public finance reforms; developing policies and legal instruments on financial management at provincial, municipal, district, khan, commune and sangkat levels; strengthening the capacity of the Department of Local Finance in order to support and monitor the local finance affairs of province, municipality, district, khan, commune and sangkat administrations."

30

Table 5.2: Development assistance

support to the Provinces (USD millions)

Province 2005 2006 2007 2008

Phnom Penh 78.9 68.2 70.7 49.7

Kandal 8.6 26.7 53.8 77.9

Sihanoukville 9.9 27.8 44.2 31.9

Siem Reap 43.5 37.2 44.1 31.3

Kampong Cham 12.4 16.0 24.1 28.0

Battambang 15.9 21.7 22.2 27.1

Kracheh 10.5 10.0 18.0 32.0

Kampong Thom 18.3 17.4 17.6 23.9

Prey Veng 12.9 9.7 17.4 27.6

Banteay Meanchey 15.2 15.2 16.7 20.2

Other 102.2 88.1 106.1 490.7

Nationwide 281.7 375.3 355.5 397.2

Total 610.0 713.2 790.4 887.9

Source: CDC/CRDB: AER 2008

The personnel at province level belongs to central government ministries and institutions, but in future it will be redeployed and new personnel will be recruited, all of whom will then report to the provincial council.

Beyond the provinces are the districts and municipalities. They will have an (indirectly) elected body (district council) from 2009 onwards, too. The head of the district administration (until now "District Chief", in future "District Governor" plus the "Deputy District Governor" acting as the "District Board of Governors") will continue to be nominated by central government. "The roles and functions of the district level of government, including the roles and functions of the district chief are not well defined. The various line ministries have district level offices, with the district chief playing a coordinating role. The district chief and the line ministry district offices largely operate based on direct instruction from the province, with little autonomous authority " (Naream Mao & Sovannary Ta 2006:95f). In future, the duty of the district administration will be to implement the decisions taken by the district council. These tasks will be further identified by an interministerial commission (NCDD). They will however continue to implement delegated tasks (from central and provincial level), too. Until now, districts do not have a budget and personnel on their own, but in the context of D&D reform this will change and the districts will have a budget (decided upon by the district council) and personnel (reporting to the district council) on their own.

Finally, there are the communes (in the districts) and the sangkats (in municipalities). The communes are substructures of districts, whereas sangkats are substructures of municipalities. Since 2002, all communes / sangkats do already have elected councils (including 5 to 11 members), each elected by the citizens of the commune (in 2002 and 2007). The councils have a mandate of five years after which elections are held again. The councils represent the citizens of their commune / sangkat. Each council is headed by a commune chief, who handles the day-to-day administrative tasks such as the preparation of the commune development plans, the appointment of committees and the supervision of the commune clerk (see Naream Mao & Sovannary Ta 2006:96). The commune / sangkat councils are given a range of responsibilities and duties. These differ substantially from the former roles of commune / sangkat officials. The commune/sangkat councils are

31

responsible for the development of the commune / sangkat and the well-being of the citizens. In the context of D&D reform the "C/S councils will take up more important roles in planning, budgeting, undertaking local development and providing basic public services" (RGC 2005:4f). Their duties continue to include the implementation of delegated tasks, i.e. the implementation of national policies and programs (like holding of registries, establishment of voters lists, cadastre) and own tasks. These will be further determined by an interministerial commission (NCDD). In order to be able to carry out their duties, the commune / sangkat councils are given an annual transfer of funds from the national government. Budget allocations to the Commune / Sangkat Fund (CSF) have increased from 1.5% in 2002 to 2,7% in 2008 (see MoP: NSDP MTR 2008:15). These transfers represent the major income out of five types of incomes: taxes, fees, transfers from central state (general transfers and specific transfers for the execution of delegated tasks) and contributions (from the population.) As far as personnel is concerned the communes do have one clerk (appointed and paid by MoI) so far. According to the Organic Law the communes should have personnel on their own, too. Respective regulation is being prepared by the MoI.

Last but most important there are the citizens. Citizens are given the right and the responsibility to play an active role in communal (public) life and have been given important participatory roles in local development planning processes. Citizen participation is very important because public policies impact on the citizens' lives. The communes / sangkats councils are fully responsible and accountable to their citizens. Citizens have the right to attend commune / sangkat council meetings and to ask questions. Citizens are also entitled to attend at their council office to look at commune / sangkat council decisions, minutes of meetings, development plans, budgets, reports and other documents or to obtain copies by paying the cost of reproduction.

Monitoring and supervision of councils is conducted at the provincial and national levels.

Goals and principles of the Cambodian D&D reform

The Royal Government follows two strategic goals with the D&D reform (see RGC 2005:5):

First: to strengthen and expand local democracy;

Second: to promote local development and to reduce poverty.

The reform will be based on the following principles (see RGC 2005:5):

Democratic representation: The reform will strengthen the roles of councils at subnational administrations to be established in accordance with the principles of democracy by expanding their powers, duties, responsibilities and resources.

Participation of the people: The reform will introduce systems and procedures which will ensure that people, especially women, vulnerable groups and indigenous minorities can participate in decision-making at sub-national levels.

Public sector accountability: The reform will strengthen accountability at all levels of administration and facilitate citizens' oversight of the administrative and financial affairs of those administrations.

Effectiveness: The reform will bring public services closer to users by allowing citizens to participate in planning and monitoring public services in order to meet local needs and priorities. The reform will also improve administration and coordination, strengthen the management capacity of sub-national levels in order to promote the quality of services and expand the delivery of public services.

Focusing on poverty reduction: The reform will strengthen local capacity in using resources to support poverty reduction activities, especially vulnerable groups, indigenous minorities and women and children in order to achieve the Millennium Development Goals of Cambodia.

32

Content of the Organic Law on D&D

The main document for the D&D reform is the Organic Law on D&D (see RGC 2007). The key contents of the Organic Law on D&D are the following:

principle of unified administration: the unified administrations will coordinate public administrative activities within their territories and ensure consistency (see Art. 2 and Art. 8);

definition of administrative levels: provinces/municipalities, districts/khans and communes/sangkats (see Art. 5);

principle of subsidiarity: transfer of decision making functions to the most appropriate subnational level. More precisely, beside issues of national importance (which will remain the responsibility of the national level), all subnational levels may initiate, decide upon and implement activities in all areas within the legal framework (see Art. 216);

commitment to democratic development: the D&D reform will strengthen the roles of councils and the participation of the people (see Art. 10 and 11, Art. 19 and Art. 209);

(indirect) election of councils at different levels (khan, district, municipality, province and capital) (see Art. 13);

ongoing appointment of Governors and Board of Governors by the Ministry of the Interior (see Art. 136ff);

(district, municipal, provincial and capital) councils having their own budgets (including transfers from the national budget, own sources and share of revenues that they help to collect)2 and being accountable to citizens (see Art. 43);

establishment of committees (for technical facilitation, women affairs and procurement plus additional committees as necessary) (see Art. 112 and 113);

establishment of a National Council on Democratic Development at sub-national level (NCDD) to review responsibilities and functions (see Art. 188),

recognition that the transfer of functions requires the transfer of resources and assets and the redeployment of civil servants (see Art. 196, 213, 238, 251 and 263).

5.3 D&D reform in practice

In practice main features of the D&D reform will be the following:

the revision and strengthening of horizontal and vertical institutional relations at all levels of administration,

the elaboration of development plans and investment programs and

the monitoring of progress.

Revision and strengthening of horizontal and vertical institutional relations at all levels of administration

The responsibilities, functions and resources of all Ministries, institutions, departments, units and authorities at all levels will be reviewed, changed and (partly) transferred to subnational levels by the National Council (see Art. 196). According to the Strategic Framework for D&D reforms (RGC 2005) "the division of duties and responsibilities among administrations at national, provincial/municipal and district/khan levels and between these administrations and local authorities will be based on the principle of the greatest effectiveness and efficiency of delivery of public services by administrations closest to citizens" (p. 12). Priority will be given to basic functions that directly impact on poverty reduction and livelihood improvement of the people (see Art. 212). Further details will be

2 So far "provinces receive only about 30 percent of recurrent funding and virtually none of the development

budget" (Pak & Craig 2008:7).

33

elaborated in one or two more sub-decrees that will be done by MoI in cooperation with MoP.

Main Instruments: Development Plans and Investment Programs

The main instruments of D&D are the 5 year development plans and 3 year investments programs (see Art. 35, 36 and 37 of the Organic Law).

Development Plans

The development plans shall include the following (see Art. 38 of the Organic Law):

a vision,

an assessment of the existing development status,

an assessment of the priority development needs (functions, responsibilities and resources, services, facilities, materials and infrastructure concerning poverty reduction as well as needs of women, men, youth, children and vulnerable groups such as poor people, minorities and indigenous people),

a development framework including basic principles for land management and the management of natural resources,

a disaster management plan,

a financial plan (including a capital development plan, a 3 years budget a 12 month budget plan),

a strategy (how to implement the development plan) and

targets and performance indicators.

The plans will be formulated and implemented by the respective council in consultation with

all citizens within the jurisdiction,

other councils within its jurisdiction,

relevant ministries and institutions of the RGC,

relevant stakeholders.

These development plans shall include components which are under the management and control of government ministries and institutions (sector integration).

Investment Programs

The second important instrument of D&D reform is the investment program. Investment programs are to be prepared by the District Finance Chiefs (see Abrams: Module 7). The drafting of the investment programs includes the following steps:

establishment of a priority project list,

establishment of a resource forecast,

elaboration of project selection rules (as for example: highest cost-benefit ratio),

establishment of an action plan for project preparation and last but not least

the drafting of the investment program itself.

The process of elaboration of development plans and investment programs

Development plans and investment programs are to be prepared as follows (example at district level):

The District Board of Governors prepares, i.e. assigns the district administration staff to prepare the development plan and the investment program (see Art. 174 of the Organic Law) and submits both documents to the District Council who “formulates and approves”

34

the Development Plan and the Investment Program (see Art. 37, 163 and 145 of the Organic Law).

When preparing the documents the district administrative staff involves stakeholders (especially the Commune Councils) for dialogue and district council staff for technical analysis and drafting of the documents.

The dialogue takes place in the context of the District Planning Forum which has a flexible membership (but includes the District Governor, the District Councilors, representatives from all Commune Councils as well as a wider group of stakeholders as core members) and meets from time to time, i.e. at key stages of the process. The District Planning Forum is in charge of strategic planning including the main following steps:

situation analysis (at least 2 stakeholder workshops, for more details see Abrams: Module 4),

elaboration of strategies (outputs: District Situation Document, District Problem Matrix, District Strategy Matrix) (for more details see Abrams: Module 4),

elaboration of projects (for more details see Abrams: Module 3) and

integration of sector plans and of the different administrative levels (each sector should submit a summary of sector plans, for more details see Abrams: Module 3).

The technical analysis and drafting of the Development Plan and the Investment Program is being done by the Technical Working Group (for Planning and Budgeting). The Technical Working Group has the following members: the (Deputy) Governor (Chair), the Chief of District Planning and the Chiefs of other District Units / Offices and performs the following tasks:

direction of the technical analysis,

alignment of Development Plans and Investments Programs with NSDP and PIP as well as with provincial planning priorities (see Art. 124 of the Organic Law and Abrams: Module 3),

inclusion of sector plans and commune plans,

use of same targets and indicators,

drafting of the Development Plan and the Investment Program.

The Technical Working Group does not decide about what will be planned for and invested in, but how to develop and implement projects.

Finally, the Development Plans and Investment Programs have to be disseminated to the public (see Art. 40).

For more details about development and investment planning at commune / sangkat level see Interministerial Working Group: Guideline on C/S Development Plan and C/S Investment Program (2007).

Monitoring and Evaluation

The Development Plans and Investment Programs have to be monitored annually (see Art. 39). There will however not be a review of the vision, the goals and the objectives. An overall evaluation will take place at the end of the mandate of the Council (i.e. after five years).

5.4 Remaining questions and challenges

For the time being (January 2009) many questions and challenges remain. To name but a few:

35

D&D is a new concept for most of the people in Cambodia. How to get people familiar with it? And how the change minds and encourage and empower people to get involved, to take action and to take over responsibility for their communal, district and provincial affairs?

The D&D reform once again reveals the many needs that need to be taken care of with scarce resources. How to increase public income (and spending), how to improve availability of resources at the different levels and how to ensure proper allocation of public funding according to poverty reduction and other NSDP priorities?

Most of the income of the subnational level will transfers from the national budget. How to decide about how much money needs to be given to districts and communes (for the execution of delegated tasks and for own tasks)?

So far the transfers being provided through the NCDD are in parallel to the overall funding system. How to get them integrated so that planning and monitoring becomes possible?

All subnational levels will have to have their own budget. How will the people in charge learn how to prepare a budget?

A new law on local taxes is being drafted in MEF. Is this going to clarify (and improve) the local tax income?

Planning procedures take too long. Will this become automatically better with decentralization or are there other ways to improve the situation?

Guidelines on planning in the context of D&D are being drafted by MoP and MoI. Will they help to clarify and strengthen planning at the subnational level and improve planning and accountability?

Many elections are indirect elections. Is this okay or would it be better to have more direct elections?

So far districts can act on behalf of the provinces only. They need to have more rights and resources to be able to fulfill their new roles.

Top down and bottom up approaches will meet at district level. To whom will the District Governor be loyal? To the central state (who nominates him) or to the council (to whom he has to report)?

Further clarification about roles and responsibilities of the different actors at the different levels is needed.

Many civil servants will need to be redeployed. How to handle this challenge?

In the context of the D&D reform a new law on civil service at subnational level needs to be drafted.

Along with this a code of conduct / code of ethics for the civil service could be helpful.

Capacity development for the many people working in the civil service is a major challenge. The MoI alone has more than 10,000 employees. So far there is only one school / training center for the civil service which has very limited resources.

Capacity development at the subnational level is an even bigger challenge. Civil servants in the communes and districts need to be trained in order to be well prepared for the takeover of new tasks. Who is going to tackle this challenge? A new school / training center for the civil service at subnational level?

Data will need to be collected at subnational level. Who will do this? Are there going to be departments of the National Institute of Statistics at subnational level?

What about the judiciary in the context of D&D? Is jurisdiction ensured at all levels?

And what about the rule of law? What else needs to be done in order to ensure the rule of law?

As far as the often quoted citizen participation is concerned, there is no concept, no guideline, no instrument so far. Who is going to work on this? What instruments could be helpful?

Bottom-up or top-down?

36

According to the Organic Law, all Ministries and institutions will have to integrate their development plans and budgets within the respective Councils' development plans and budgets (Art. 197) or put the other way round: The development plans have to include components which are under the management and control of government ministries and institutions (sector integration).

Functional reviews will need to be done sector by sector in order to review responsibilities and functions3 and identify the ones that are going to be transferred and the ones to be retained. The functional reviews will be done according to subsidiarity criteria / principles of effectiveness:

economies of scale (buying in bulk is cheaper),

population and area size / cost benefit (to have an agricultural extension worker needs a minimum of agricultural land),

equity issues (which level can ensure equal participation and benefits for all?),

need for information and accountability (quality of service delivery depends on local information and local participation, as for ex. regarding provision of water),

local preference (particular citizens preferences as f. ex. of indigenous people),

local conditions (areas with tourism potential, particular disaster risks etc.),

scope for flexibility (is there any scope for flexibility or are functions prescribed and limited?),

traditional local functions (f. ex. conflict resolution might be a traditional local function),

intersectoral and interjurisdictional coordination (is cross sector or cross boundary cooperation / coordination necessary f. ex. for the provision of water?).

Given the fact that there is also national planning (NSDP plus sector policies and plans) the integration of planning processes (at commune, district, provincial and national level) is going to be a further challenge.

Since the commune councils are the only ones being directly elected (district and provincial councils are indirectly elected only) and since communes have through their planning process been able to identify and respond to local needs it would make much sense if the integration of planning processes would start from the bottom.

On the other hand it has to be acknowledged that the NSDP is the one and only RGC plan to reduce poverty and to achieve the MDGs. It would therefore also make sense to start from the NSDP and disaggregate goals, targets and indicators from the national to subnational levels.

A compromise accommodating both could look as follows: The NSDP serves as the framework for planning and integration of sector plans and budgets national level. This national plan and budget is then disaggregated for each provincial level.

At the local level the Development Plan and the Investment Program continue to be the main planning processes that identify local needs and respond to them through 1) their own commune / sangkat budget or 2) by addressing it in the District Integration Workshop and district planning.

3 Common functions include policy and priority setting, legislation, regulation, standard setting,

licensing, planning, financial management, budgeting, asset management, procurement, construction and maintenance, human resource management, employment, training, service delivery, supervision, monitoring, enforcement, coordination, conflict resolution, information, publication and dissemination.

37

The provincial planning process will then reconcile the disaggregated national plans with the district plans. Provinces will further inform the national planning process on local needs which can then be addressed at the national level.

As a consequence the guidelines for district planning (compilation of commune/sangkat plans) and provincial planning (reconciling national plans and local needs) would need to be revised accordingly.

5.5 Planning in the context of D&D

Planning will change in the context of D&D. This represents a challenge for planning officers at all levels, especially at subnational level. The present manual intends to provide some guidance in this regard.

At the central level the main planning instruments are the NSDP and the PIP. Sector planning is done by sector ministries. Crosscutting planning is being done by MoP and others. A regulation on planning at subnational level is being prepared by MoI and MoP. The main challenge seems to be: How to align Development Plans (DP) and Investment Programs (IP) of the 4 different levels.

At province level planning and budgeting is done by the provinces. In future there will be 5-year-Development Plans (DP) and 3-year-Investment Programs (IP).

At district level the communal DPs are coordinated and integrated. In future there will be 5 year DPs and 3 year IPs.

At commune level there should be DPs and IPs according to the respective parkas (see MoI/MoP 2002 Art. 1ff). Both are to be prepared by the commune chief (see Art. 5) (with the help of a planning and budgeting committee to be established by the commune chief, see Art. 9) and approved by the C/S council (see Art. 6). The preparation and implementation of the DPs and the IPs shall be supported by the provincial governor and a support system to be established by him as well as by the provincial department of planning (see Art. 7). But in reality there is little evidence so far.

According to the parkas (see Art. 11-17) the following 5 phases have to take place within the process of preparation of the DP and the IP:

1. data analysis, 2. strategy identification, 3. project design, 4. program design and 5. plan approval.

The first four phases are to be managed by the commune planning and budgeting committee, the approval however is the responsibility of the C/S council - after having requested comments from the provincial departments and from the public (see Art. 17) and after having submitted the draft DP and IP to the provincial governor for review (see Art. 18).

The commune also has to ensure the sector integration. This is the main objective of the so-called "integration workshop" that is to be organized by the provincial planning department "to bring together the representatives of C/S councils, provincial sectoral departments, non-government organizations, and national and international agencies for the purpose of determining and agreeing on the potential technical and financial support (…) (and) aligning the C/S council and the provincial development plans and programs" (Art. 10).

38

Implementation: Once the DP and the IP are approved, "the C/S chief shall carry out procurement of works, goods and services to implement" the DP (Art. 22). But before doing so he "shall seek the technical clearance from the relevant provincial sectoral departments through the provincial unit of local administration" (Art. 23).

The Monitoring and evaluation is to be ensured by the C/S council (see Art. 24), i.e. through a special committee of the C/S council (that includes citizens, too). Detailed guidelines on the scope and format of monitoring and evaluation are to be issued by the MoI and the MoP jointly (see Art. 25). In the context of the ongoing D&D reform planning will change somehow. See the following able (source: Abrams: Module 10 2008) for details:

Table 5.324: Planning support roles and responsibilities

Description of role Present responsibility

Possible future responsibility

Comments

Training in planning DoP/PLAU DoP/PLAU

Data collection and

analysis

Dep. of Planning District Planner

Drafting of Plan PFT/DFT District Planner and

other district staff

Monitoring of Planning

Process

PFT/DFT PLAU

Financial Framework

Information

Provincial Office

Finance Unit

District Finance Chief /

MEF

role of MEF not clear

yet

Land Use Planning District Working Group

/ MLMUFC

District Working Group

/ MLMUFC

not active in all districts

NREM Planning District Working Group

for NREM

Disaster Management

Planning

National Commission

for Disaster

Management

District Commission for

Disaster Management

The major remaining questions are the following:

Actors: Who is going to be involved?

Roles and responsibilities: Who is going to be in charge of what?

Functions: Who is going to do what?

Resources: Which resources are going to be made available at subnational levels for planning, but most importantly: for poverty reduction?

Some of these questions cannot be yet been answered fully. An interministerial committee of MoI and MoP is currently working on further guidelines in this regard and the present MoP manual will be updated accordingly as soon as these guidelines are available.

39

Chapter 6

Monitoring and Evaluation

6.1 Monitoring and Evaluation

Basic principles

Monitoring and evaluation (M&E) are carried out in order to:

provide information about progress and problems to the public (accountability),

learn and

find ways to improve performance.

A good monitoring and evaluation (M&E) system should provide policy-makers and planners with the information they need to make good decisions. As such, it needs to deliver the right information, to the right people, at the right time and in the right format for them to design or modify policies, plans and budgets. It should also provide the general public and the private sector with the information that they need, for accountability and for making informed and successful business decisions.

Types of M&E information

Monitoring and evaluation information may be either quantitative or qualitative.

Generally, the majority of data collected in M&E systems is quantitative, that is, data that takes the form of numbers (indicator values) and can be summarized in statistical terms. Quantitative data answer questions to do with what, when, who and how many.

However, qualitative data – that is, data that is not intrinsically or easily represented in numbers (and so not intrinsically / easily measureable) - can also provide a valuable role. Qualitative data on people’s understandings, interpretations, values, beliefs, preferences, aversions and priorities can be particularly helpful in understanding how or why something is happening. Qualitative data can help to explain the processes that link (or don’t link) change in different quantitative indicator values (e.g. why school attendance isn’t rising even though schools are being built).

By scoring or ranking, it is also possible to convert qualitative data into quantitative data that can then be summarized in statistical forms: for example, by asking people whether they are satisfied or dissatisfied with a Government service by asking them to give that service a score from – 5 (very dissatisfied) through to + 5 (very satisfied).

Indicators can refer to inputs, outputs, outcomes or impact. Each indicator should specify an exact definition and source of measurement. A good monitoring system includes different sorts of indicators in order to make sure that:

the necessary resources are made available as inputs (e.g. delivery of budget resources to the Ministry of Health),

inputs result in activities that produce the intended outputs (e.g. midwives trained, clinics built, etc.),

outputs produce the intended short and medium term effects or outcomes (e.g. more mothers receive antenatal care),

outcomes result in the intended long term effects or impact that is desired (e.g. lower rates of maternal mortality).

40

A common problem in monitoring and evaluation systems for medium-term national development plans (such as the NSDP) is that of a “missing middle”. This term describes when a M&E framework collects data on, and sets targets for, inputs and outputs (monitored mainly through administrative systems) and for ultimate impact (monitored mainly through surveys): but the impact indicators are values that change only slowly (for example, it may take five years or more before better schooling results in better literacy rates in society as a whole). This leaves policy-makers and planners in a position where they have a good regular update of inputs and outputs but little idea about whether these are leading to the intended impact. There is thus increasing emphasis upon identifying appropriate intermediate outcome indicators. These are indicators at a level above that of outputs and below that of impact; which are causally linked to impact (i.e. change in the intermediate outcome indicator is a good predictor that over time change will occur in the impact indicator); and which show change more rapidly than the ultimate impact indicator. Such intermediate outcome indicators are often indicators of service delivery or quality (as measured by client satisfaction surveys, for example).

Sources of information for monitoring and evaluation

Broadly speaking, there are two main sources of information for M&E data.

Administrative data are generated at regular, generally short intervals by the line agency structures of Government as part of their routine operations and management. Administrative data sources include the sector management information systems such as the Health and Education Management Information Systems (HMIS and EMIS) administered by MoH and MOEYS respectively; and the Commune / Sangkat Database.

Population-based data are generated by censuses or sample surveys4. These are complex and expensive exercises that require special training in survey design and management, data entry, and statistical analysis. Because of this, surveys and censuses are carried out infrequently, and there is a considerable lag time (typically six to twelve months) between data collection and the production of statistics. In Cambodia, the National Institute of Statistics is responsible for all surveys and censuses, although it works closely with line Ministries and agencies on technical issues relating to sector-specific data (for example, working closely with the MoH and National Institute of Public Health on the Cambodia Demographic and Health Surveys).

Table 6.1: Comparing administrative and population-based data

characteristic administrative population-based

frequency high-frequency: should be

available monthly, quarterly or annual

typically low frequency (10 years for a census; 3-5 years for a major survey)

although the small-sample CSES is now annual

level of disaggregation that is possible

very high (e.g. down to individual communes or schools)

high for censuses;

variable but generally low for surveys (depends on sample size and variance of the indicator in question)

4 A census aims to collect information from every unit in a given population, e.g. the Housing and Population Census 2008

collected information from every household in Cambodia. A sample survey, however, collects information from only a small number of units (sample) in the population, but from this sample uses statistical theory to obtain reliable estimates for the value of the indicator in the whole population. In Cambodia, the Cambodia Socio-Economic Survey (CSES) and Cambodia Demographic and Health Survey (CDHS) are examples of sample surveys that provide important data for monitoring and evaluating sector strategies and the NSDP.

41

reliability

variable. Incentives, capacity problems and unreliable denominator data may lead to (for example) over-reporting of enrolment rates in EMIS data.

depends critically on quality of survey design and execution, but often more reliable than facility-based administrative data

cost low to moderate high

institutional / human resource capacity requirements

moderate (although higher capacity results in valuable quality improvement)

high (considerable number of staff with high levels of training and experience in a range of skills including questionnaire design, sampling, manual development and training, fieldwork supervision, data entry and checking, cleaning, and analysis)

typically used for routine monitoring, planning,

budgeting evaluation, situation analysis,

policy / programme design

Within these two broad types of data source, there are numerous specific instruments or tools for data collection. Table 14 summarises the most typical forms of data collection and analysis and relates them to different levels in the M&E cycle (monitoring of input and output indicators, evaluation using outcome and impact indicators). It also notes some of the less common tools that may be used when the normal mechanisms are missing or unreliable (e.g. community surveys may be used to obtain basic information on public sector facilities and staffing when MIS systems are inadequate).

Table 6.2: Relating data collection tools to indicators

indicator type

indicators main sources / tools less common /

supplementary tools

input

public finance data (revenues and expenditures by categories)

public sector human resource data

budget documents

data on budget outturns (actual spending)

payroll data

Public Expenditure Tracking Surveys (PETS)

output

outputs of public expenditures: infrastructure, training, staffing

administrative / management information systems

community surveys

outcome availability of, use of and

satisfaction with services

quick monitoring surveys (e.g. Core Welfare Indicator Questionnaire (CWIQ) surveys)

citizen scorecards

multi-purpose household surveys (e.g. CSES)

qualitative research (semi-structured interviews, focus group discussions)

42

indicator type

indicators main sources / tools less common /

supplementary tools

outcome / impact

living standards (average per capita income or consumption; poverty measures)

housing conditions and asset / consumer goods ownership

human development (health, education) outcomes (e.g. child survival rates, life expectancy, literacy rates)

perceptions of well-being

censuses

household living standards (income / consumption) surveys or multi-purpose household surveys with consumption / income modules

Demographic and Health Surveys

single-topic surveys (e.g. labour force surveys)

case studies

issue-specific qualitative research

participatory poverty assessments (PPAs)

The role of monitoring and evaluation in the policy cycle

The policy cycle consists of the following elements:

analysing the situation, identifying developmental problems and opportunities to be tackled by Government policy, and establishing baseline values for key indicators,

setting objectives (goals) to be achieved

defining precise technical definitions of indicators for measuring progress towards goals; identifying / confirming the data sources (administrative systems or surveys) that will supply these indicator values (looking at how often this data will be available, how accurate it is, and how much disaggregation will be possible); and setting precise (quantitative) targets for goals

developing policies, strategies, plans and programmes to tackle development issues and achieve goals;

costing programmes and determining where the funding is coming from,

implementing policies, programmes and plans,

monitoring and evaluating progress on implementation (inputs, outputs, outcomes) and results (outcomes, impact).

The overall role of M&E in this cycle is collecting data, analyzing data, reporting / feeding back of information into the planning process and policy cycle, dissemination of results. Within this:

Monitoring is the regular, continuous and systematic collection of information to assess progress over time and enable adjustments to be made. In brief: monitoring is following up progress against indicators (generally input and output indicators) that can be expected to change relatively rapidly and regularly.

Evaluation is the periodic, in-depth analysis of performance (both implementation, as measured by inputs and outputs, and results, as measured by outcomes and impact). While it draws on data generated through monitoring activities, it also requires additional information obtained from other sources (e.g. surveys, qualitative research, case studies, etc.). Evaluations aim to determine the relevance and fulfillment of objectives, developmental efficiency, effectiveness, impact and sustainability. Compared to monitoring, evaluations are often external, retrospective and pose more fundamental questions (e.g. whether objectives have been achieved, and what positive or negative changes have occurred).

43

In practice, the distinction between monitoring and evaluation is often blurred. As such, they are best thought of as defining different parts of a spectrum, rather than as completely distinct activities (see Table 6.3).

Table 25: Comparing monitoring and evaluation

monitoring evaluation

frequency frequent and regular intervals (e.g. monthly, quarterly or annual)

infrequent, often at irregular intervals (typically three or more years)

indicators mainly input and output; possible intermediate outcomes

input, output, outcome and impact

types of data mainly or entirely quantitative mainly quantitative, but may also include qualitative

sources of data mainly or entirely administrative data

analysis of administrative data

plus

analysis of population-based data (surveys, census)

plus

in some cases special research / impact evaluation exercises

concerned primarily with

tracking implementation against plans over the short to medium term; efficiency (ratio of inputs to outputs)

assessing success in achieving goals over the medium to long term; effectiveness (translating outputs into outcomes and impact)

should result in course correction; the modification of plans

decisions to continue, modify or end a given policy or programme;

design of new policies or programmes

carried out by all levels of Government, from lowest to highest

typically national Government

Summary: key qualities of a good M&E system

Look at the system as a whole; relate it to policy objectives and the information needs of policy-makers and planners; and plan for the long term.

The list of indicators should be balanced and comprehensive, in the sense of including an appropriate mix of critical input, output, outcome and impact indicators; and clearly related to the needs of the policy cycle and the budget process.

Indicators should be SMART: that is, Specific, Measurable, Achievable, Relevant and Timebound.

Develop good technical indicator definitions and use them consistently. Invest time at the start in deciding on precise technical definitions of indicators and then keep collecting data in a format that will allow this indictor to be calculated in this way over time. (Changing definitions later - because the survey question changed, or the survey sampling frame or MIS administrative boundaries changed - can make it impossible to relate baseline indicator values to later values, and so make it impossible to determine whether this indicator is changing or staying the same.)

Identify data sources. It is important to think about the sources of data right from the beginning: a robust system will combine data from administrative, population-based and other sources (participatory and case study research, expenditure tracking surveys, etc.) as appropriate, depending on (for example) the frequency, reliability and precision with which an indicator needs to be measured and the level to which it needs to be disaggregated. (A system that relies almost entirely upon just

44

administrative data or just surveys will face a number of problems.) Determine whether the relevant data are or could be made available from administrative systems; decide what surveys need to be carried out (especially for outcome and impact indicators); identify critical dates for designing or modifying a strategy, and then schedule surveys that will provide the data necessary to make these decisions, allowing for a time lag after data is collected (for data entry, checking, cleaning and analysis) before it is available to policy-makers.

Only collect data that will be used; use the data that is collected. Both administrative information systems and surveys tend to collect large quantities of information, of which only a small fraction is used to guide decisions. The time and money that is spent collecting and entering unused data could better be spent improving the system in other ways (quality, frequency, etc.).

It is better to be approximately right than precisely wrong. Precision and accuracy are different qualities. If the true value of an indicator is 65%, it is more useful to have an estimate from the M&E system that says the value is between 63 and 68% than it is to have an estimate that it is 57.13%.

Good monitoring and evaluation requires effective strategic institutional arrangements. An M&E system will be effective if it provides accurate information to the people who need it, and delivers this information in an appropriate format on a timely basis. Ensuring that information flows in this way takes long-term, consistent investments in defining institutional roles and responsibilities and improving capacity through strategic investments in training, IT, etc.

Encourage participation of stakeholders (such as civil society organizations, and researchers). Apart from serving an accountability function (and encouraging productive engagement between citizens and Government), these actors may be able to cross-check (or “ground-truth”) the picture obtained through surveys and administrative data; provide information that Government M&E systems could not easily obtain; and / or provide specialized analytical skills to interpret M&E data that is collected.

Dissemination of results should be broad, but also tailored to suit the interests and statistical sophistication of different audiences.

6.2 Monitoring in practice: The NSDP Monitoring

Monitoring of national development strategies (like the NSDP) is a specific challenge compared to monitoring of projects since national strategies are much more complex than projects and monitoring and evaluation at macro level is all the more important. Monitoring of national development strategies is mainly a review of sectoral policies to ensure their consistency with the objectives, policies and indicators of the NSDP.

The progress of NSDP is reviewed and monitored annually. The NSDP Monitoring Framework was formulated in close consultation with the Ministry of Economy and Finance (MEF), the Supreme National Economic Council (SNEC), the Cambodia Rehabilitation and Development Board / Council for the Development of Cambodia (CDC/CRDB) and other Ministries and was endorsed in June 2006. It mandates the monitoring of and reporting on the progress of NSDP implementation, focusing in particular on the monitoring of the 43 NSDP M&E indicators. The monitoring of the NSDP indicators requires timely and reliable supply of relevant data / official statistics especially from the National Institute of Statistics (NIS/MoP) and line ministries.

The main document of the NIS/MOP is the Statistical Master Plan (SMP) that was agreed in 2007. It represents an important break-through after decades of problems with regard to statistics. Official statistical infrastructure and activities were largely non-existent in

45

Cambodia in the early 1990s and although the national statistical system is now much stronger, development of official statistics over the last decade has been piecemeal, constrained by lack of RGC funds and driven in large part by availability of external resources, much of which has been supplied for specific data collection exercises.

A number of national surveys are now conducted on a more regular and predictable basis and with steadily improving quality. These provide important insights into patterns and trends of development in Cambodia. With support from various donors, NIS/MOP conducted the following multi-purpose household sample surveys:

the Socio-Economic Survey of Cambodia (SESC, 1993-1994) and the Cambodia Socio-Economic Surveys (CSES, 1997, 1999, 2004, 2007, 2008 and 2009). An annual continuous household survey started in October 2006 and will give quarterly estimates for many indicators. These surveys have been used to calculate (amongst other information) trends in living standards and national poverty rates.

A General Population Census has now been conducted twice (1998 and 2008).

A Cambodia Demographic and Health Survey (CDHS) was conducted in 2000 and 2005, and provides important information on trends in health, nutrition and demographic indicators (e.g. infant mortality rates, rates of childhood malnutrition, and use of health services).

Altogether, significant efforts have been made in recent years to improve the statistical system, particularly through improvements in formal structure, management, staff training, dissemination practices and accessibility of data.

Beyond NIS/MOP a variety of management information systems (MIS) of the ministries process administrative and other data. These include the Education Management Information System (EMIS) and Health Management Information System (HMIS), both of which have been strengthened over recent years (although inter-system coordination and donor dependency issues still need to be addressed).

The main actors of monitoring and evaluation of the NSDP are the NSDP Secretariat in MoP in close cooperation with MEF, SNEC and CDC/CRDB (= high level steering committee), the National Institute of Statistics (NIS/MOP) as well as the line ministries and the TWGs. In the context of the D&D reform the local governments and administrations will be more involved, too. In order to ensure that monitoring is not merely a technical process the participation of civil society organisations is important, too. And since monitoring is one of the fundamental functions of parliament the National Assembly should be involved in NSDP monitoring and evaluation as well.

Based on the outcomes of a joint learning event on M&E (Sihanoukville January 2008), a workshop on M&E (Phnom Penh March 2008) and a workshop on gender statistics (Phnom Penh December 2008) the revised NSDP indicators look as shown in annex 3.

6.3 M&E results to date

To date, NSDP monitoring activities have included the following:

A Technical Working Group for Planning and Poverty Reduction (TWG PPR) has been established in 2006. It meets regularly to assess progress of NSDP implementation on the Government and on the EDP side.

The Cambodia Demographic and Health Survey (CDHS, 2005) was published in 2006.

An Annual Progress Report (NSDP APR) has been elaborated in 2007 (see MoP 2007).

The Cambodia Human Development Report was published 2007.

The Cambodia Socio-Economic Survey (CSES) was conducted in 2007.

46

A Joint Learning Event on monitoring of national development strategies was held in January 2008.

Another workshop on the NSDP monitoring indicators took place in March 2008.

The Decennial Census was conducted in 2008.

A Mid Term Review (NSDP MTR) has been done in 2008 (see MoP 2008).

The NSDP APRs and the NSDP MTR are the key products of monitoring and evaluation of the NSDP. They are the main tools to monitor alignment of sector policies and resources (both of Government and EDPs) to NSDP goals and provide policy recommendations on how to achieve further progress in the different aspects of NSDP implementation. They need to be clear, concise and contain good analysis.

With regular monitoring and evaluation at the sectoral level, a national level annual progress report (APR) was prepared in 2007 for the year 2006. Each individual sector and ministries have produced their own detailed assessments of work done and their future plans ahead.

The Mid-Term Review (MTR) published in 2008 examines in a broad, integrated and holistic manner the progress made over the first two and half years of the NSDP along with shortfalls and their causes. It also realistically assesses the future along with major thrusts needed, challenges to be overcome and foreseeable risks to be taken into account. This document is not a simple catalogue of all actions taken or to be taken in all sectors. It is an neutral assessment of progress so far and a practical guide how to pursue goals in an integrated manner.

The methodology used to elaborate the MTR included several individual and collective consultations and discussions with RGC ministries and agencies, External Development Partners (EDPs) and other stakeholders. These consultations collected and analysed inputs, data, information, views and suggestions from official surveys and their findings, other research studies and publications, Government ministries and agencies and development partners (multilateral and bilateral institutions, and non-government organisations including civil society organisations). In many cases the TWGs were involved, too.

47

Chapter 7

Targeting

7.1 Introduction

The Royal Government of Cambodia currently uses a number of policies and programmes that are targeted to the poor. Targeted provision is likely to become increasingly important as the Government and its partners are seeking to consolidate and expand existing targeted programmes, bringing them together in an integrated system of social safety nets.

This chapter provides:

an overview of the definition of targeting;

the basic rationale for using a targeted approach to service delivery;

a discussion of what defines a good targeting system;

a guide to the costs of targeting; and

a description of the broad options for targeting mechanisms; and

an outline of the Government’s process and mechanisms for identifying poor households, and the roles and responsibilities of sub-national authorities in administering this system.

7.2 What is targeting?

Universal and targeted public services

Public services provided by the Government may be either universal or targeted. Universal services are those that are available to or actively provided to all citizens. Targeted services are those intended for certain groups within the population: for example, the poor, or disabled, or people living in remote areas. Targeting directs benefits towards these groups (the intended beneficiaries); and attempts to ensure that others who are not the intended beneficiaries do not receive the benefits.

Targeting is typically associated with policies or programmes that operate as social safety nets (sometimes called social assistance or welfare). These are goods or services that are targeted by the Government to the poor (and those who are not poor but vulnerable to poverty); and which are not based on prior contributions (unlike, for example, contributory pension schemes or unemployment insurance, where the worker has made small regular contributions to a scheme that then pays out on retirement or injury). Safety net benefits can take a variety of forms:

Transfers: e.g. safety net transfers to poor households; of special healthcare to pregnant mothers; or of extra funds to poor Communes. Targeted transfers may be designed to support consumption (food or cash to poor households) or production (e.g. agricultural extension targeting poor farmers).

Subsidies or exemptions: the targeted individuals, households or administrative units are not required to pay for a good or service that they normally would be required to pay for; or, they may receive that good or service at a reduced rate.

The objectives of social safety nets may include one or more of the following:

to reduce extreme poverty directly, by providing assistance to the very poor,

48

to reduce the level of inequality in society, by raising the incomes / living standards of those at the bottom of the income scale,

to protect the poor (and vulnerable non-poor) from shocks, or to help them cope with shocks when they do occur,

to help the poor escape poverty traps (when they are so poor that they cannot afford to borrow money, obtain basic productive assets or invest in their children’s education, all of which would help them to escape poverty, and contribute to economic growth, over the long-term).

The costs and benefits of targeting

The rationale for targeting is simple: if it works well, it directs limited resources to those who need them most. In theory, this should result in greater efficiency and effectiveness of public spending. So, if a given service is to be provided to help the poor, it makes sense to provide it only to the poor, and to prevent the rich (who do not need this assistance) from claiming it. If targeting increases the proportion of total public expenditure that reaches the poor, this should mean that the Government achieves greater effectiveness and impact (poverty reduction) for a given available safety net budget (maximizing impact); or, alternatively, it can achieve a given goal for the minimum drain on the budget (minimizing costs).

In practice, targeting is not cost-free. Any targeting mechanism will have direct costs to the Government and to participants. Administrative costs are the costs to the Government of identifying the poor, which takes time and money for data collection, entering data into a database, printing ID cards and distributing these, updating the registration system, etc. Private costs are the costs to an applicant of obtaining access to a targeted programme: these may include the time and money involved in gathering the necessary information, travelling to a registration office, the opportunity costs of complying with programme conditions, and so on.

As a result of administrative and private costs, the cost-effectiveness of targeting is always less than it would be in theory. The details of design and implementation can also make the difference between a good programme and one that is a waste of money. Around the world, there is very large variation in the quality of targeted programmes. This makes it hard to make general statements about the effectiveness of targeting systems or safety net programmes. However, successful targeting schemes achieve considerably greater cost-effectiveness (net transfer of benefits to intended poor recipients) than random allocation or universal programmes would achieve.

The size and timing of costs will vary depending on the details of the program mechanism. For example, identification costs will vary depending on whether the poor are pre-identified, or identified at the point of service delivery. Self-targeting is a method that has relatively low costs, although it also has some limitations (see discussion under discussion of targeting instruments, below).

7.3 Errors in targeting

The efficiency and effectiveness of targeting depends on its ability to minimise:

Exclusion errors (sometimes called Type I errors). An exclusion error is when some of the target group (e.g. the poor) are not identified and included, and so do not receive the benefits when they should do.

Inclusion errors (sometimes called Type II errors). An inclusion error is when the targeting system mistakenly identifies someone as a beneficiary when in fact they should not be receiving the benefits in question: for example, when some non-poor households receive benefits intended only for a poor target group.

49

The following table illustrates these principles. In this example, there are 100 households in a village. Of these, 20 are poor and should receive the targeted benefits. In practice, the targeting method used identifies 20 households for receipt of program benefits: but in reality only 15 of these are poor and 5 are non-poor. Both the 15 poor households included in the program and the 75 non-poor households excluded are successful targeting. The 5 poor households excluded are errors of exclusion, while the 5 non-poor households are errors of inclusion.

Table 26: Inclusion errors and exclusion errors

Households

Welfare status

Total

Poor Non-poor

Included in program 15 (successful targeting)

5 (inclusion error)

20

Excluded from program 5 (exclusion error)

75 (successful targeting)

80

Total 20 80 100

Typically, reducing one form of targeting error makes it likely that the other type of error will increase. For example, reducing inclusion errors through rationing benefits and rigorous identification criteria makes it likely that exclusion errors will increase. As a basic principle, exclusion errors are more serious. Some leakage of benefits to non-poor (inclusion error) is acceptable, so long as it is kept under control.

It is important to remember that no targeting mechanism is ever perfect. The more precise the mechanism for targeting, the higher the administrative costs. So, tradeoffs are inevitable. A well-designed set of criteria that effectively sorts the poor from the non-poor, administered in a transparent manner by a well-resourced Government body, helps minimize inclusion errors; intensive outreach activities, to ensure that the poor know their entitlements and apply for the scheme, help to minimize errors of exclusion.

7.4 Different tools for targeting

Means testing

The most precise form of targeting – in theory – is to select beneficiaries based on assessment of house-hold income or expenditure and targeting those which fall below a poverty line (“means testing”). This also allows for poverty measurement. However:

such information takes a long time to collect (i.e. creates high administration costs)

and may give an inaccurate picture in a society where many aspects of poor households’ lives do not involve the exchange of money (e.g. farming rice or collecting food and other goods from the commons for own consumption; building a house from timber they have cut themselves; barter; etc.)

Proxy means testing

Rather than attempt to identify poor households from per capita. income or expenditure, many schemes use proxy measures (e.g. palm-leaf roof; no rice land; number of young children or elderly; assets; etc). Often these are chosen intuitively, based upon what service delivery staff know are good indicators of poverty. But sometimes they are based on statistical analysis of survey data which helps identify characteristics strongly correlated with poverty

50

Categorical targeting

Beneficiaries can be selected based on easily identifiable characteristics related to poverty or public goods (e.g. public health) criteria such as age or disability. Another example of categorical targeting is food and micronutrient support directed to TB patients and pregnant women. Alternatively, benefits may be deliberately targeted to people belonging to socially and economically marginal ethnic groups (though this is often politically difficult).

Geographic targeting

It may be efficient to target resources to all households living in certain areas when

the poor are geographically concentrated (e.g. in remote areas far from rivers, roads or markets); and / or

the good or service to be targeted is one with the characteristics of a local public good i.e. it benefits everyone living in the locality (e.g. a road, a clinic, or an irrigation scheme).

Again, this will not be perfect: there will always be pockets of poverty in rich areas, and rich households in poor areas. The accuracy of geographical targeting (reduction of inclusion and exclusion errors) increases with more fine-grained geographical units (i.e. Communes rather than Districts) – but so does the cost.

Community-based targeting

A local authority, community organisation, or village meetings may be given the responsibility for choosing beneficiary households. The degree to which community targeting is based on standard central guidelines varies between cases

The advantage is that these bodies will know who are the poor in their locality, balancing various factors in making their decisions, without the need for extensive identification procedures.

The disadvantage is that without transparency and oversight, decision-making may be subject to corruption, with benefits going to those who are friends, relatives or political supporters of the local authority or community organization that is identifying the poor; or to those who will pay a bribe. Socially marginal groups (e.g. people who have recently moved to the area and are not yet fully part of the community) may be excluded.

Self-targeting

Self-targeting involves providing a good or service which is in theory available to everyone, but provided in such a way that in practice only the poor would choose to use it. A typical example is food or cash for work (FFW / CFW) on public infrastructure projects (e.g. building a road or dike). In such a scheme, the daily wage rate (in rice or cash) is set low enough that it would not be worth the rich (who have better income opportunities) taking part.

Self-targeting has a number of advantages. The first is low administrative costs: there is no need for a complex process by which to identify participants / recipients. The second is that FFW or CFW combines targeted safety net policy (providing resources directly to the poor in the form of food or money) with improvements in infrastructure. Better roads and irrigation structures will support make a contribution to poverty reduction through local economic development. It is also easier to sustain political support for such programmes, because (i) the non-poor as well as the poor benefit from the infrastructure that is built and (ii) the recipients are working for the benefits they receive, so this is not seen as a simple

51

handout. Finally, by absorbing surplus labour, food-for-work or cash-for-work schemes can help to drive up local wage rates, which will also benefit the poor.

However, there are also some disadvantages. If the benefit is set low enough to ensure that only the poor participate, it may be too low to provide the poor with a sustainable escape from poverty: it may keep them out of extreme poverty, but not give them enough to acquire assets that will let them to improve their productivity and income. Secondly, in practice it is not always possible to combine labour-intensive approaches and the production of suitable high-quality infrastructure: sometimes, roads built using FFW or CFW break down faster than if the roads had been built with heavier use of machinery and less use of unskilled labour. Finally, there will be some poor and vulnerable groups who cannot benefit from employment on public works schemes (e.g. elderly or disabled people living alone, pregnant women, households where the economically active adult is ill at the time of the FFW / CFW project, etc.).

Combining approaches to targeting

The best results are often obtained by combining two (or even more) approaches to targeting. For example, the current national system for the identification of poor households combines a proxy means test with community targeting (validation by household meeting). Infrastructure projects may be targeted at poor areas; and then within these areas to poor people through self-targeting in food- or cash-for work arrangements. Some countries establish fair-price shops in poor areas that sell at subsidised prices foods that the poor rely upon but the rich would avoid (e.g., broken rather than high quality rice). This is a combination of geographical targeting and self-targeting.

Factors that help make a targeting system effective include adequate staffing and resources; well-defined rules that can be understood by recipients, non-recipients and those administering the targeting system; clearly-assigned and sensible institutional roles; and adequate information systems, monitoring and evaluation.

7.5 The role of targeted programmes in an overall development strategy

It is important to remember that targeted interventions are only one part of an overall poverty reduction strategy. A national poverty reduction strategy (such as the NSDP) should include a mix of:.

Direct, targeted actions

Inclusive actions (e.g. childhood vaccinations, antenatal checkups, universal primary education), which benefit the poor but also other groups. These are often chosen because the political or administrative costs of targeting (i.e. ensuring that only the poor benefit) outweigh any benefits that might be achieved.

Enabling actions: these provide the framework or preconditions for long-term poverty reduction – for example, by improving basic budget processes, or public administration reform, or creating the conditions for a strong and stable economy by making it easier to set up and run a business - without any requirement that the poor are immediate, direct or exclusive beneficiaries.

7.6 Identification of Poor Households in Rural Areas

The MOP Identification of Poor Households (IDPoor) Programme has been developing, piloting and expanding implementation of standardised Procedures for Identification of Poor Households in rural areas since 2005. The government intends to achieve nationwide coverage in the near future.

The IDPoor process determines which households are poor and the poverty level of these individual households in rural villages, according to a standardised process and set of

52

criteria. The IDPoor data can also be used for calculating comparative poverty levels of villages.

The IDPoor procedures combine a proxy means test with community targeting and validation. This is to ensure a high level of accuracy (low inclusion and exclusion error) and local acceptance of the results.

The whole process is carried out by local government and community structures, with the participation of the local population. The identification process in each village is carried out by a Village Representative Group (VRG), with the support and supervision of a Planning and Budgeting Committee Representative Group (PBCRG), the Commune Council, and commune council support structures (currently representatives from the Provincial and District Facilitation Teams (PFTs and DFTs)). The process in a province is coordinated by the Provincial Department of Planning, in cooperation with the Provincial Local Administration Unit.

The MOP provides training at the provincial level, monitors implementation and gives ongoing technical support, coordinates the consolidation of IDPoor data into a national Database of Poor Households, and distributes the data to any government and non-governmental service providers who target services and assistance to poor areas, households or persons.

How is Identification of Poor Households conducted?

The process for identification of poor households consists of seven steps. These are described in detail in the document Implementation Manual on the Procedures for Identification of Poor Households (available on MOP website). These steps are summarised in the box below.

Box 7.2: The process for identifying poor households

Step 1: Establish and train the Planning and Budgeting Committee Representative Group (PBCRG) at the commune level

Step 2: Establish and train Village Representative Groups (VRGs)

Step 3: VRG compiles List of Households in the Village, conducts household interviews, compiles the First Draft List of Poor Households in the village

Step 4: VRG conducts Village Consultation Meeting on First Draft List of Poor Households, receives villager complaints, prepares and displays Final Draft List of Poor Households

Step 5: Commune Council reviews and approves Final List of Poor Households, and distributes Equity Cards to poor households (after data entry and photography in Steps 6 and 7)

Step 6: Entry of all data and household photos into Database of Poor Households

Step 7: Photography of poor households (conducted by contracted NGOs)

It is intended to update Lists of Poor Households every two years in order to maintain their accuracy.

Questionnaire

Currently, a standard questionnaire is used in all areas in order to optimise comparability of the results of identification among households and among geographical regions (village,

53

commune, district, province). The questionnaire consists of a set of proxy indicators for poverty, which are mainly based on easily observable and verifiable assets, but also include a number of other issues that either induce vulnerability or improve the standard of living of households. Interviews are conducted by Village Representative Group members themselves, whose local knowledge makes it easier to verify whether respondents are accurately reporting their situation, as well as to assess the special circumstances of households. The VRG also takes into account any information, suggestions or complaints made by villagers during the public consultation process. For more details about the questionnaire, please see the detailed questionnaire on the MOP website.

Poverty Categories

There are two poverty categories to which poor households can be assigned: Poor Level 1 (very poor) or Poor Level 2 (poor). These poverty categories are assigned based on the questionnaire scores (according to specific cut-off points) and a consideration of the special circumstances of households. The proportion of households falling into Poor Level 1 roughly corresponds to those households under the CSES Food Poverty Line, while Poor Level 2 approximately equates to the households between the CSES Food Poverty Line and the Poverty Line. On average, a total of about one-third of households are classified as Poor 1 or 2, and included in the List of Poor Households.

Outputs of the Process

The key output of the process at the commune and village level is a Final List of Poor Households in each village.

In addition, depending on requirements, all households identified as poor can be issued with Equity Cards (ECs), which include the following information: name of village / commune / district / province; name, sex and year of birth of household head; household poverty level; household photo. These cards 1) help to raise the awareness of poor households that they can seek out services and assistance and assert their eligibility to receive them, and 2) help service providers to quickly verify the identity of poor household members in order to provide services to them.

Database of Poor Households

An electronic Database of Poor Households is used to enter and store data, and to share data with decision-makers and service providers. The database holds details of all household members (name, sex, age, year of birth, relationship to head of household), and each household’s poverty level and household photo. Various data reports are generated and distributed to government institutions, non-governmental organisations, and sector programmes and projects, in order to enable them to target services and development assistance to the poor more effectively. The full Database of Poor Households can also be provided in electronic form to service providers to give them full flexibility in use of the data.

Use of IDPoor data for planning and targeting

Identification of poor households can be a useful tool for local governments to use in preparation and implementation of Development Plans and Investment Programmes, (including coordination of assistance from external partner institutions and organisations), as it can facilitate the targeting of resources, services and assistance to areas, households and persons who are the poorest and most vulnerable. This is especially important given the fact that local governments and their partners have limited resources. Local governments should make use of IDPoor data where and when this is available - not only for infrastructure projects, but also for designing and implementing social services targeted to poor and vulnerable people. Departments of Planning should help to facilitate this

54

process by incorporating analysis and discussion of IDPoor data during the Local Planning Process at the various administrative levels of local government.

Use of IDPoor data for monitoring poverty trends

Over time, IDPoor data could have very useful applications in monitoring changes in poverty. When updates of the Lists of Poor Households are carried out in areas where IDPoor was previously conducted, it will be possible to analyse the data to determine:

How many households (and which specific households) who were previously identified as poor became poorer, better off, or moved out of poverty altogether.

How many households (and which specific households) who were previously not identified as poor fell into poverty.

Changes in the level of poverty according to geographical area.

Further study of the specific circumstances of these households could be very helpful for adapting poverty reduction strategies, policies and programmes and improving their impact.

55

Chapter 8

Conclusions and Recommendations

Planning and monitoring continue to be major instruments of the RGC in its development and poverty reduction efforts. In order to make best use of them it is important to move from theory to practice. Planning officers and other actors in development and poverty reduction at all levels are however facing major challenges in a changing environment. The NSDP and the Organic Law on D&D are important reforms that bring new framework conditions:

The NSDP as the policy framework 2016 – 21013 requires all policies to be poverty-oriented and MDG focused

The D&D reform provides all actors at the subnational level with new roles and responsibilities.

In order to be best able to respond to these challenges and to make the reforms a success MoP officials at national and subnational level as well as many other stakeholders need to help

to draft sector policies, strategies and action plans that do inform about and align to the NSDP and clearly set out how the NSDP goals and targets referring to their sectors will be achieved through their sector policies, strategies and action plans,

to elaborate subnational development and investment plans that also inform about and align to NSDP and clearly set out how the NSDP goals and targets will be achieved within each province, district and commune.

to monitor progress and shortfalls according to the NSDP indicators as presented in chapter 6.2 and in annex 3),

to report about development, poverty reduction and NSDP implementation (successes and constraints),

to feed back to MoP if and what sort of help might be needed to fulfill these tasks.

As long as the new structures and ways of working within the context of D&D are not yet known in all details it is all the more important that planning officers at all levels play a proactive role by taking responsibility, by cooperating constructively with all other actors involved (RGC, EDP, Civil Society Organisations etc.) and by encouraging citizens to get involved.

56

Annexes

Annex 1

SUB-DECREE No. 55 SD. ES

ON THE ORGANIZATION AND THE FUNCTIONING

OF

THE MINISTRY OF PLANNING

THE ROYAL GOVERNMENT OF CAMBODIA

- Had seen the constitution of the Kingdom of Cambodia I

- Had seen the Royal decree dated 24 September 1993 on the appointment of the First and Second Prime Minister.

- Had seen the Royal decree dated 1 November 1993 on the appointment of the royal government of Cambodia.

- Had seen the Krom No 02.NS/94 dated 20 July 1994 on the organization and the functioning of the Council of Ministers.

- Had seen the Royal decree No 1094/83/NS.RD. dated 24 October 1994 and the Royal decree No 1 094/90.NS.RD. dated 31 October 1994 on the adjustment of the Royal Government Body.

- Had seen the Krom No 0196/11/NS.RK. dated 24 January 1996 on the establishment of the Ministry of Planning.

- Had seen the Royal decree No 0897/147/CS.RD. dated 07 August 1997 on the adjustment of the Government's body of the Kingdom of Cambodia.

- Had seen the sub-decree No 20.SD.ES dated 30 Apri11996 on the Organization and the Functioning of the Ministries and Secretariat of state.

- According to the proposal of the Ministry of Planning.

- According to the approval of the Council of Ministers at the meeting dated 18 September 1997.

DECIDES

CHAPTER l

GENERAL PROVISION

ARTICLE 1: This Sub-decree is to organize the Ministry of Planning's entities and determine all tasks and roles of the directorates and departments of the Ministry.

CHAPTER 2

MISSIONS AND ORGANIZATION

ARTICLE 2: Ministry of Planning is assigned by the Royal Government of Cambodia to be responsible for guidance and managing socioeconomic development planning and statistics in the Kingdom of Cambodia.

ARTICLE 3: Ministry of Planning has the following roles and responsibilities:

57

- To act as the Government arm in formulation of concepts, strategies, policies, and

in determining priorities for national development in order to ensure the

sustainability and balance between development equity and social justice and

between economic development, and social and culture development, between

urban and rural areas, between exploitation and regeneration of natural resources

and between development and environment protection.

- To guide and manage methodologies and procedures used in the formulation of socioeconomic development plans according to the decentralized system in the whole country.

- To prepare long, medium, and short term plans and National programmes by coordinating with all relevant Ministries/Institutions in order to ensure consistency among socioeconomic sectors and among provinces and regions in the whole country.

- To monitor the implementation of Plans, National Programs and Projects in all sectors, make assessments and propose measures to correct those plans and programmes as needed.

- To work with concerned Ministries/Institutions in formulating strategies and policies and identifying priorities for investment both public and private in order to efficiency and maximizing the use of both internal and external potentials resources.

- To collaborate with Ministry of Economy and Finance in fixing the amount and in allocating annual budget for Public Investment.

- To work with relevant Ministries/Institutions to formulate strategic, policies, and identify priorities in order to ensure that the socioeconomic, technological and cultural cooperation with foreign countries are consistent with the national development objectives and policies.

- To work with relevant Ministries/Institutions to formulate demographic policies and plan of action about balanced distribution of manpower to ensure socioeconomic development and national defense purposes.

- To conduct necessary surveys and studies in the implementation of its tasks.

- To manage economic, social and demographic statistical information in the Kingdom of Cambodia.

- To manage National statistical system following the guidance of the use of statistical standard classifications and modal table in full-filling and collecting statistical information.

- To guide the implementation of unified methodologies and calculation statistical data formula in the whole country.

- To prepare census and surveys methodologies and conduct demographic socioeconomic census and surveys in Cambodia.

- To provide assistance in terms of methodologies and techniques or conduct census and surveys in other subjects or sectors upon request of data users.

- To compile and produce national account, CPI, and statistical year book regularly.

- To exchange statistical information with other statistical agencies of the countries in the region, in the world and with national and international organizations.

- To carry out other tasks that are assigned and entrusted by the Prime Ministers.

ARTICLE 4: Ministry of Planning has its organization as follows:

A- At the central level

- General Directorate of Planning which consists of:

General Planning Department.

58

Economic Planning Department.

Social Planning Department.

Investment Planning Department.

International Relation Department.

- National Institute of Statistics which consists of:

General Statistics Department

Economic Statistics Department .Social Statistics Department

Demographic Statistics Census and Survey Department

Directorate of Inspection -Cabinet of Minister

- Personnel Department

- General Administrative Department

- Supply and Financial Department

B- Local level

- Provincial Planning Departments

CHAPTER 3

GENERAL DIRECTORATE OF PLANNING

ARTICLE 5: In performing the Ministry's task, the General Directorate of Planning has the following roles:

- Ensure consistency in socio-economic development by coordinating with all sector development plans, programs and projects prepared by Ministries, State Secretariats, relevant Agencies and Provinces and Municipalities.

- Monitor the implementation of Plans and Programs in collaboration with Line Ministries/Secretariat of State / Provinces and Municipalities, report and provide comments to the Minister and report and request approval from the Royal Government.

- Coordinate with Line Ministries/Secretarial of State, Provinces and Municipalities and National Institute of Statistics in preparing trimester, semester, third quarterly and annual report about socioeconomic situation to the Government.

General Directorate of Planning is directed by a Director General and assisted by Deputy

Director General as needed.

General Directorate of Planning consists of 5 Departments each directed by a Director of

department and assisted by Deputy Director as needed.

ARITCLE 6: General Planning Department is responsible for:

- Formulating the concept, strategies, plan and program for short, medium and long term socioeconomic development by coordinating with the other departments in the General Directorate of Planning.

- Analysing and forecasting the overall situation of the macroeconomic growth in the whole country; advising and targeting for socioeconomic development regularly.

- Preparing strategies, policies and plans in the macroeconomic sectors including: National Account, Inventory, Balance of Payment, Monetary and Financial institution.

ARTICLE 7: Economic Planning Department is responsible for:

- Analysing and forecasting the overall situation of the economic growth in the country; advising and targeting for Economic development on a regular basics.

59

- Preparation of strategies, policies and plans in the economic sectors including: Agriculture, Forestry and Fishery, Industry, Telecommunication, Transportation, Commerce, Tourism, Construction and Environment.

ARTICLE 8: Social Planning Department is responsible for:

- Analysing and forecasting the overall situation of the social development section and demography in the whole country; advising and targeting for social development on a regular basics.

- Preparing strategies, policies and plans in the social sectors including: Employment and unemployment, demography, education and training, human resource development, community development, poverty alleviation, housing, health, nutrition, social and labour affairs, culture, gender and fine arts, religion and information.

ARTICEL 9: Investment Planning Department is responsible for:

- Analysing and forecasting the overall situation of the investment sectors, advising public and private investment and targeting the investment to be consistent with the development objective of the country.

- Preparing investment strategies for short, medium and long term.

- Determining the priority in the capital allocation by sectors.

- Monitoring the draft of public investment project of Line Ministries and other institutions.

- Preparing the annual public investment programme.

- Participating in the bidding Committee of all public investment projects.

- Monitoring and evaluating of the implementation of public investment program.

ARTICLE 10: International Relation Department is responsible for:

- Analysing and forecasting the overall situation of the economic cooperation with foreign countries, international organizations and non- governmental organizations; provide comments and necessary measures to reorient the socioeconomic, cultural and technology cooperation, with foreign countries in consistence with the objectives development country.

- Ensuring information exchange cooperation and coordination in the planning framework for socioeconomic development with the foreign countries as needed.

- Coordinating socioeconomic cooperation, culture and technology science with foreign countries according to the government assignment, such as economic cooperation among the countries in Great Mekong Sub-region (GMS).

CHAPTER 4

NATIONAL INSTITUTE OF STATISTICS

ARTICLE 11:

- The National Institute of Statistics has the functions performing all of the Ministry's task in the conduct of census, socioeconomic and demographic surveys. This includes compiling and advising on how to use the statistic data classification, figure and data calculation methodology; collecting and disseminating data on the situation of socioeconomic growth in Cambodia.

- Collaborating with the National Institute of Statistics Units in the region and in the world for exchange of statistical information; training statistic officer in order to develop the Cambodia statistical system.

- The National Institute of Statistics is directed by a Director General designated by the Royal decree and assisted by Deputy Director as needed.

60

- The National Institute of Statistics is composed of 4 departments and each department will be led by a Director of department and assisted by Deputy Director as needed.

ARTICLE 12: General Statistics Department is responsible for:

- Coordinating statistic data with the other departments under the national institute of statistics in order to compile the national account of Cambodia.

- Collecting the information of Consumer Price Index and services, and compile monthly, trimester, semester, third quarterly and annual report on the consumer price Index and services.

- Compiling, disseminating and advising on information classification, figures and collecting statistical information from the state and private institutions and other public institutions in order to compile as a national statistic data.

ARTICLE 13: Economic Statistic Departments responsible for:

- Collecting and compiling the primary data on agriculture, forestry and fishery, industry, commerce, construction, telecommunication, transport, tourism and environment.

- Study research and cooperation with the relevant institutions in organizing and conducting census, survey and data collection, compiling and analysing statistical information of agriculture, forestry and fishery, industry, commerce, construction, telecommunication, transport, tourism and environment.

ARTICLE 14: Social Statistics Department responsible for:

- Collecting and compiling the primary data on social affairs, education, health, information and culture.

- Study research and cooperation with the relevant institutions in organising and conducting census, survey, data collection, compiling and analysing statistical information of social affairs, education, health, information and culture.

ARTICLE 15: Statistics Demography census and survey Department responsible for:

- Conducting census, survey, data collection, compile and the statistics demography management.

- Cooperating in organising census and surveys in other subjects according to the suggestion of other institutions and the request of data users.

- Statistic skill training for central and local officers, according to the work requirement.

CHAPTER 5

DIRECTORATE OF INSPECTION

ARTICLE 16: Directorate of Inspection of the Ministry of Planning is responsible for:

- Inspecting all units under the Ministry of Planning.

- Reporting to the Minister about operation of the departments inspected and about the performance measures to adjust those departments if necessary.

- Operate and function according to the Minister's directives.

The Directorate of Inspection is headed by a General Director and assisted by deputy

general directors as needed.

CHAPTER 6

CABINET OF MINISTER

61

ARTICLE 17: The Cabinet of Minister is responsible for .all of the Ministry's task following the edict of the sub-decree No 20 S.D dated 30 April 1996 as mentioned above on the organization and the functioning of the Ministries and Secretariats.

CHAPTER 7

ADMINISTRATION AND FINANCE

ARTICLE 18: General Administrative Department is responsible for:

- Coordinating all activities at the central level and between central and local level of the Ministry of Planning.

- Management and distribution of the Ministry's documents.

- Ensuring effective and safe administration.

- Reviewing and reporting on all activities of the Ministry.

- Documentation and library.

ARTICLE 19: Supply and Finance Department responsible for:

- Meeting requirements, preparation of the expenditure program, repairing tools and facilities of the Ministry.

- Managing the fixed assets, mobile assets, stock and inventory.

- Managing garage and state vehicles provided to the Ministry, formulating expenditure program and gasoline and spare parts distribution.

- Receiving and distributing materials to the provincial municipal planning office.

- Informatics, financial activities and charge account.

- Proposing the Ministry's budget and monitoring its operation. -Collecting and coordinating budgets.

- Monitoring of special account management.

- Collecting and coordinating all the expenditures of the Ministry. -Collecting appropriate income according to the financial law.

ARTICLE 20: Personnel Department is responsible for:

A- Personnel

- Administration management of civil servants of the Ministry in coordination with the Secretariat of State of Public Function.

- Preparing all administrative letters for career management.

- Programming of skill position and improving human resources of the Ministry.

- Evaluating the needs for skill training of the civil servants.

- Preparing the primary training policy in collaboration with the Secretariat of State of Public Function in order to continue the implementation of those policies.

- Managing the statistics of civil servants and operation informatics form.

- Managing social action programmes of the Ministry.

B- Training

- Planning and Statistics training center is responsible for:

- Organising the recruitment and training on Planning and Statistics skills. -Organising the retraining and improvement courses for the civil servants of the Ministry.

CHAPTER 8

AT LOCAL LEVEL

62

ARTICLE 21: Provincial and Municipal Planning offices are responsible for implementing and coordinating the Ministry's task at local level.

CHAPTER 9 FINANCIAL INSPECTION UNIT

ARTICLE 22: The Financial Inspection unit was created by the Minister of Finance and Economy, according to Sub-decree No 81 dated 16 November, 1995 about the creation of the Financial Inspection Unit on Ministries expenditures.

CHAPTER 10 FINAL PROVISION

ARTICLE 23: The Organization and the Functioning of the Ministry at central administration, from the deputy of department down to the lower level must be declared by the Minister of Planning declaration.

ARTICLE 24: All provisions that contrast with this sub-decree must be considered invalid.

ARTICLE 25: The Co-Ministers of Council of Ministers, Minister of Ministry of Planning, all the concerned Ministers and Secretary of States must be responsible for carrying out this Sub-decree respectively on their own tasks.

ARTICLE 26: This Sub-decree promulgated from the signing date.

Phnom Penh, 23 September, 1997 Signed and Sealed

First Prime Minister Second Prime Minister Oung Hout Hun Sen

To: - The First Prime Minister - The Second Prime Minister

Minister of Planning CHEA CHANTO

C.C. - Cabinet of the King. - Secretariat of National Assembly. - Cabinet of the First Prime Minister. - Cabinet of the Second Prime Minister. - All Ministries and Institutions at central level. - All Provinces and Municipalities. - As Article 25. - Documentation.

63

Annex 2:

MPSP MATRIX

Objectives/Targets Activities

Time frames Budget Estimates

(US$) 2006 2007 2008 2009 2010

Objective 1: To ensure implementation of the NSDP and progress towards the CMDGs

Target 1: Disseminate NSDP and develop MOP information and communication resources

1.1 Develop and implement NSDP dissemination and communication strategy

print and publish NSDP full and summary 60,000

develop strategy for NSDP dissemination and communication at national and sub-national levels

7,000

disseminate NSDP at national and sub-national levels 76,000

ensure NSDP APR can be submitted as LDC report (RGC commitment under Brussels agreement) and MDG report (see 7.1)

2,000

develop radio / TV / newspaper / poster / booklet materials for popular dissemination / publicity campaign on NSDP with special focus on population, reproductive health, gender and youth issues

produce materials on CMDGs/NSDP/Poverty to support the National Events including Eradication of Poverty Days (booklets and posters)

40,000

disseminate CMDGs/NSDP to students, NGOs, CSOs by public forums including sessions with students and youth based on CMDGs/NSDP/Poverty related publications and policies

7,000

implement CMDG/NSDP campaign at sub-national level in

cooperation with CSOs/NGOs

70,000

take stock of the provincial dissemination campaign in 2006 and design a dissemination, communication and implementation

80,000

64

Objectives/Targets Activities

Time frames Budget Estimates

(US$) 2006 2007 2008 2009 2010

strategy as well as respective tools for CMDG/NSDP at provincial level

1.2 Develop and manage MOP/NSDP website

prepare and sign a contract with a private company for MOP/NSDP website development and management

9,200

train MOP staff/NSDP secretariat on website updating and content management

4,100

run, manage and update the MOP/NSDP website 6,200

Target 2: Strengthen alignment of sector strategies, sub-national plans and cross-sectoral policies and plans with NSDP priorities

2.1 Cooperate with line ministries, agencies and sub national level to draft new sector strategies or align existing sector strategies with NSDP priorities

engage with line Ministries through TWGs (particularly in NSDP priority sectors) on setting priorities (i.e. developing poverty focus in sector strategies)

7,000

ensure alignment through provision of guidance, holding of meetings / workshops, flow of information etc.

15,000

supply appropriate M&E data from LMs/LAs and Provincial Planning Dept.

12,000

develop capacities of MOP, line ministries and provincial staff (through training etc.) to fulfill these tasks

110,000

2.2 Work with Provincial Rural Development Committee (PRDC) to align plans (goals, targets, priorities, actions, resources) with CMDGs and NSDP through provincial situation analysis, priority setting, costing, supplying appropriate monitoring data etc.

prepare guidelines on provincial situation analysis, priority setting

and other necessary monitoring data and provide trainings to provincial and district planners

85,000

support meetings/workshops at provincial levels in formulation their plan according to NSDP

80,000

65

Objectives/Targets Activities

Time frames Budget Estimates

(US$) 2006 2007 2008 2009 2010

conduct feasibility studies and Prepare CMDGRs at sub-national level in selected provinces

150,000

support NGO(s) to report on possible quick impact interventions for CMDG/NSDP achievements at sub-national level

2,000

support capacity building to provincial and district poverty-oriented planning system (according to NSDP)

12,000

2.3 Strengthen MOP leadership and partnerships with stakeholders to implement the Cambodia Nutrition Investment Plan (CNIP)

regularly update and prepare Annual Progress Report of CNIP implementation (2003-2007)

4,000

integrate main achievement indicators of CNIP, 2003-2007 into NSDP Annual Progress Report

2.4 Establish role and responsibility to prepare CNIP-2 (2008-2012)

mobilize financial and technical supports EDPs to prepare and implement CNIP-2 (2008-2012)

200,000

lead preparing CNIP-2 in cooperation with LMs and EDPs

regularly update and prepare Annual Progress Report of CNIP-2 implementation

6,000

Target 3: Ensure consistency of resource allocation processes (annual budget, medium-term budget frameworks, PIP and ODA

harmonization and alignment) with NSDP

3.1 Build closer working relations with PFM-Reform Programme

ask MEF/TWG-PFM to brief on PFMRP 5,000

arrange for representative of NSDP Secretariat to sit in TWG-PFM) 5,000

3.2 Offer to make presentation to National Assembly (Committees) on proposals for NSDP-PFM links

work with MEF to prepare proposal for NSDP-PFM link 3,000

make presentation on NSDP-PFM link to National Assembly (committees)

66

Objectives/Targets Activities

Time frames Budget Estimates

(US$) 2006 2007 2008 2009 2010

priorities

(joint working and shared responsibility with MEF, National Assembly and CDC/CRDB)

3.3 Prepare PIP to align Ministries' and NSDP’s priorities

provide guidelines on PIP implementation to line Ministries 500

with MEF, inform line Ministries of process for PIP formulation 500

with MEF, CDC/CRDB and line Ministries, conduct project inspections to monitor PIP implementation

500

print and publish 15,000

3.4 Work with MEF on how to start harmonizing timeframes for budget submissions and PIP/MTEF

conduct training on the inter-sectoral priorities identification/ settings, alignment with CMDG/NSDP priorities and costing

10,000

support the conduct identification and priority settings of line ministries and MEF

500

review budgeting processes and tools and harmonize and synchronize them to make them operational

5,000

3.5 With improved PIP process, ensure NSDP-PIP commitments are reflected in budget allocations from 2008 budget on wards

link priorities and cost estimates with budgeting tools (to continue from activities under 3.4 above)

Target 4: Target poor areas and poor households to ensure resources used for maximum effectiveness and efficiency

4.1 Establish standardized procedures and criteria for identification of poor households in pilot provinces

establish standardized procedures and criteria for identification of poor households, including Guidelines for identification of poor households by non-governmental implementers.

1,000

create computerized system for IDPoor data management in Provincial Department of Planning (PDOPs) in pilot provinces and in GDP-MOP

100,000

raise awareness of service providers about the identification method, and promote use of the poor households lists for targeting

10,000

67

Objectives/Targets Activities

Time frames Budget Estimates

(US$) 2006 2007 2008 2009 2010

4.2 Expand the coverage of the program for poor household identification

prepare MOP strategy to roll out method in more provinces 10,000

prepare MOP proposals to seek resources from donors and government to expand household targeting activity

0

expand coverage of poor household identification to five provinces, updating Lists of Poor Households annually

3,000,000

4.3 Promote the development of social transfer programs targeted towards poor households

organize workshops to raise awareness of social transfers / targeted investments

15,000

advocate for development of a social transfer program for the poor 5,000

develop a national policy on a social transfer program for the poor and promote the use of Government funds for implementation

10,000

4.4 Develop institutions and processes for geographic targeting

use 2008 census and 2009 CSES to develop a new district-level poverty map in 2010

2,000,000

Target 5: Develop MOP capacities to prioritize and mainstream gender issues in planning and gender equity in NSDP implementation

5.1 Promote gender mainstreaming in planning systems

conduct regular meeting of MOP gender working group 5,000

promote gender mainstreaming in the planning cycle

5.2 Develop capacity to mainstream gender in planning systems by conducting cascade training from national to decentralized levels

ToT to MOP GMAG members

6,000

provide gender awareness training to MOP staff

4,000

provide gender awareness training to planning staff at sub-national level

40,000

68

Objectives/Targets Activities

Time frames Budget Estimates

(US$) 2006 2007 2008 2009 2010

5.3 Prepare and implement a gender mainstreaming action plan

Prepare gender mainstreaming action plan

30,000

Implement gender mainstreaming action plan

Objective 2: To monitor and evaluate progress towards NSDP implementation and NSDP / CMDG outcomes

Target 6: Information on NSDP Implementation and NSDP / CMDG outcomes is collected, analyzed and reported in a full and timely fashion

(working with regular reports from sector Ministries and relevant institutions; and with NIS)

6.1 Refine and implement NSDP monitoring framework in collaboration with NIS and line ministries / agencies / TWGs

establish mechanisms for monitoring of resources aligned to NSDP priority by close coordination between four central agencies (MOP, MEF, CDC/CRDB, SNEC).

5,000

reviewing line agencies' reports against NSDP priorities to monitor the progress on the implementation of NSDP-related actions and status of core indicators.

4,000

coordinate with relevant agencies to ensure accessibility to resources committed to NSDP priorities.

create closer working relations between central and sub national levels within MOP in terms of sharing NSDP- related in information, data, reports, and training activities.

7,000

conduct meetings / workshop on NSDP monitoring (incl. the provinces)

80,000

6.2 Conduct CMDG / NSDP evaluations and policy analysis

develop schedule of rotating thematic / goal-specific modules (e.g. health in 2007 APR, reflecting 2005 CDHS; demographic trends in 2009 APR, reflecting 2008 census; poverty profile / CMDG Update in 2009 APR, reflecting CSES 2008) in Annual Progress Reports (depending on (i) issues emerging from monitoring data on shortfalls on progress (ii) availability of detailed data from survey / census in previous year (iii) emerging challenges)

500,000

carry out additional selected policy impact assessment studies on areas of concern regarding NSDP implementation, if necessary, in

12,000

69

Objectives/Targets Activities

Time frames Budget Estimates

(US$) 2006 2007 2008 2009 2010

collaboration with external partners; prepare, publish and disseminate reports and policy briefs in support of informed policy making

6.3 Combine core monitoring (6.1) and selected annual evaluation / analysis (6.2) in NSDP Annual Progress Report

conduct meetings/workshops on NSDP APR

40,000

print and publish the NSDP APR

60,000

Target 7: Generate mandatory reports required for international monitoring process, based on NSDP monitoring data and reporting formats

7.1 Ensure NSDP APR can be submitted as LDC report (RGC commitment under Brussels agreement) and MDG report

prepare LDC report based on NSDP-APR

participate in LDC meeting, workshop and conference

7.2 Engage in major national analytical exercises conducted by other stakeholders

National / Cambodian Human Development Report (N/CHDR) 30,000

World Bank Reports to CDCF meetings

Global State of the World Population Report

Target 8: Develop capacities of MOP staff (NSDP Secretariat and GDP staff to ensure effective implementation and monitoring of NSDP, NIS staff through workshops and on-the-job-training

8.1 Improve capacity of MOP staff in poverty and macroeconomic analysis and related subjects

involve in internal and external training on poverty and macroeconomic analysis and planning formulation etc.

500,000

Strengthen capacity of MOP officer in monitoring, evaluating and reporting of the NSDP implementation and policy impact assessment through trainings, field visits ...

600,000

8.2 Conduct TOT on identification of poor households and training on the computerized system for management of data on poor households

Conduct TOT on identification of poor households for MOP staff 5,000

Conduct TOT on computerized system for management of data poor households

5,000

8.3 Develop capacities of MOP, line ministries and provincial staff (through training etc.) to align sector strategies with NSDP (see 2.1)

70

Objectives/Targets Activities

Time frames Budget Estimates

(US$) 2006 2007 2008 2009 2010

Conduct SWAps training for MOP, line ministries and provincial staff to align sector strategies with NSDP.

120,000

Objective 3: Ensure MOP and its partners implement actions required under the Harmonization, Alignment and Results (HAR)-agenda

Target 9: Ensure allocation of Government and donor resources to MOP align with NSDP priorities

9.1 Fulfill commitments under TWG-PPR and MOP functions assigned under RGC’s Harmonization and Alignment Declaration and Action Plan

prepare MOP strategic plan and Annual review of MPSP 15,000

align resources to implement NSDP 1,000

prepare report for GDCC-meetings 2,000

facilitation of TWG-PPR

Cooperate to implement JMIs of TWG-PPR

Objective 4: Develop a high-quality NSDP extension to 2013 in a comprehensive and timely manner

Target 10: Streamline MOP activities towards NSDP functions during implementation of MPSP

10.1 Progressively re-align MOP activities clearly with NSDP functions

phase out activities which are not NSDP priorities

develop capacity to take on activities which are important to NSDP (e.g. with MEF, develop capacity to analyze macroeconomic framework consistency to NSDP)

assess the outcomes of the implementation of the so far and prepare NSDP extension to 2013

conduct meetings on the preparation of the extended NSDP to 2013

20,000

conduct consultative workshop on the extended NSDP 2013

60,000

10.2 Strengthen international cooperation within MOP

review bilateral and multilateral cooperation and provide policy recommendations.

71

Objectives/Targets Activities

Time frames Budget Estimates

(US$) 2006 2007 2008 2009 2010

10.3. Perform an annual review of the MPSP

review annual achievement of MPSP 44,000

Target 11: NSDP (2011-2015) signed by King by end December 2010

11.1 Identify roles, responsibilities, schedule of processes, resources (HR, other MOP capacity development, TA inputs) needed for preparation of next NSDP

Establish roles, responsibilities, schedule of processes, resources (HR, other MOP capacity development, TA inputs) needed for preparation of next NSDP

Print and publish NSDP 2011-2015 65,000

launch the NSDP 2011-2015 15,000

Objective 5: Strengthening Local Development Planning Process

Target 12: Improve the capacity of provincial planning officers

12.1 Provide guidance on provincial/municipality strategic development plan process (PSDP)

12.2 Develop the capacity of Provincial/ Municipality officers to manage the commune/ Sangkat database (CDB)

150,000

12.3 Develop the capacity of Provincial/ Municipality officer to prepare and analyze the commune/Sangkat profile; district/Khan profile and provincial profile

80,000

12.4 Develop the capacity of Provincial/ Municipality officer to support the formulation of commune/Sangkat strategic development program

150,000

12.5 Develop the capacity of Provicial/ Municipality officer to manage the commune/Sangkat development planning database (CDPD)

12.6 Develop the capacity of Provicial/ Municipality officer to support the preparation of the district integration workshop (DIW) process

150,000

12.7 Develop the capacity of Provicial/ Municipality officer to monitor and assess the implementation of commune/ Sangkat planning process

160,000

Target 13: Improve the 13.1 Provide guidance on district/Khan development plan

72

Objectives/Targets Activities

Time frames Budget Estimates

(US$) 2006 2007 2008 2009 2010

capacity of district planning officers

13.2 Analyze the district/Khan profile

13.3 Participate in and support the commune/Sangkat planning process 150,000

Target 14: Strengthening the capacity of national working group on local planning process

14.1 Enhance the capacity of the national working group on relevant concept of best practices in local planning process

40,000

14.2 Improve and support the formulation and implementation of local planning process

120,000

14.3 Cooperate with relevant stockholders to support the provincial/municipal and district/Khan policy within the decentralization and de-concentration context

Objective 6: Coordinate and improve national statistical system and NIS institutional capacity

Target 15: Improved statistical governance

15.1 Statistical legislation framework fully elaborated and enacted 800,000

Sub decree on designated official statistics approved by the SAC, Council of Ministers and enacted.

Line ministry statistical units comply with data sharing of official designated statistics with to NIS.

Legally binding procedures in place for protecting confidentiality of data and prosecuting repeated non-compliance to official data requests.

Target 16: Improved coordination throughout the national statistical system

16.1 Statistical Advisory Council and Statistical Coordination committee meet six and three months respectively and coordinated standards and procedures.

10,000

National statistical and dissemination standards developed and deployed in consultation with data providers and data users

Objective 7: National statistical system is timely, relevant and responsive

Target 17: Improve 17.1 Conduct General Population Census 2008 6,000,000

73

Objectives/Targets Activities

Time frames Budget Estimates

(US$) 2006 2007 2008 2009 2010

NIS statistical service

statistical coverage and data definitions to meet national reporting requirements

17.2 2008 Census data & results will be released widely through website and CDROM & yearbook,

25,000

17.3 Continuous household survey producing quarterly estimates of private consumption from national accounts and annual estimates of the poverty line headcount rate.

2,100,000

17.4 Quarterly national accounts published 125,000

17.5 Consumer prix index 250,000

17.6 Indices of agricultural and industrial production 550,000

17.7 Labour force statistics and labour cost index 200,000

17.8 Annual estimates of poverty headcount rate published 80,000

17.9 Producer and agricultural commodity price indices 225,000

17.10 Socio-economic 5 yearly survey 1,400,000

17.11 Establishment survey conducted 1,500,000

17.12 Demographic and health survey conducted 2010 1,200,000

17.13 Economic and social data collection 750,000

17.14 CAMinfo maintenance, upgrades and training 250,000

17.15 Agricultural census conducted 300,000

Objective 8: Improved and informed and increased use of official statistics

Target 18: Improved access to national official statistics

18.1 Creation of national statistical data warehouse 100,000

18.2 Access to the statistical data warehouse available through online micro-analytical processing software, (SuperStar) or offline through CAMInfo and through microdata dissemination is upon is request or through the data users centre.

250,000

74

Objectives/Targets Activities

Time frames Budget Estimates

(US$) 2006 2007 2008 2009 2010

18.3 Improved metadata and report dissemination through the revamped NIS website.

100,000

Target 19: Improved understanding of statistical data and its use and manipulation for policy development, targeting and prioritisation.

19.1 Extension of NIS virtual private network to line ministry statistical units to provide Internet access to national statistical data warehouse

200,000

19.2 Training out-reach to line ministries and NGO development actors on utilisation of offline data resources (CamInfo Verion 3) and online data resources (SuperSTAR).

160,000

19.3 Establishment staffing and training of statistical analysis department within NIS.

300,000

75

Annex 3

Revised NSDP indicators

based on the outcomes of the JLE on M&E Workshop (Sihanoukville January 2008) and

the workshop on M&E (Phnom Penh March 2008)

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

Eradicate Poverty & Hunger

1 poverty levels (also known as poverty headcount, poverty rate, P zero)

% of population (total, male, female) with per capita consumption / day below the national poverty line national poverty line = food poverty line (p.c. daily expenditure required to obtain 2,100 calories) + non-food allowance for other essentials

impact indicator

34.7 (2004)

30.1

(2007)

25 19.5 no. of persons

(total, male, female) with per capita

consumption / day below the

national poverty line

population (total, male,

female)

Consumption / expenditure data (recall

module, some diary data) in

CSES small sample

(3,600 hh) CSES every

year from 2007 onwards large sample

(12,000 hh) every 5 years (2004, 2009,

etc)

yes (MDG

indicator no. 1.1)

(1) May not always be possible to identify statistically significant change in poverty rate from one year to the next (given small sample size in four years out of five). (2) Disaggregation by agro-ecological zone and (most) Provinces possible in 5-yearly large-sample CSES. (3) When combined with household census data, CSES data may support a small area estimation poverty map.

2 rural poverty levels (rural poverty rate, rural poverty

% of rural population (total, male, female) with per capita consumption / day below the national

impact indicator

39.2 (2004)

34.7

(2007)

... ... no. of rural persons

(total, male, female) with per capita

rural population (total, male,

female)

CSES (see above for

frequency / years)

76

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

headcount) poverty line (see definition of poverty line above)

consumption / day below the

national poverty line

3 food poverty rate (food poverty headcount)

% of population (total, male, female) with per capita consumption / day below the food poverty line (see definition of food poverty line above)

impact indicator

19.7 (2004)

18.0

(2007)

13 10 no. of persons

(total, male, female) with per capita

consumption / day below the national food poverty line

population (total, male,

female)

CSES (see above for

frequency / years)

4* poverty gap ratio

The average amount by which the p.c. consumption of the poor falls short of the national poverty line (calculated as the average % difference between p.c. consumption and the poverty line, with a value of zero assigned to individuals above the poverty line)

impact indicator

9.04 (2004)

7.22

(2007)

CSES (see above for

frequency / years)

yes (MDG

indicator no. 1.2)

5* share of the poorest quintile in national consumption

p.c. consumption of the poorest 20% of individuals, as a % of total p.c. consumption

impact indicator

7.2% (2004)

6.6%

(2007)

CSES (see above for

frequency / years)

yes (MDG

indicator no. 1.3)

6* Gini coefficient for p.c. consumption

a summary measure of inequality in which zero = perfect equality and 1 = perfect inequality

impact indicator

0.39 (2004)

0.42

(2007)

CSES (see above for

frequency / years)

77

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

7* rate of (staple) food prices increase

% of change of the CPI current year for (staple) food basket

outcome indicator

CPI previous year

NIS & MAIS (monthly and

annual)

8* productive employment

GDP per person employed, constant year 2000 riels

outcome indicator

3.26m riels p.c.

(2007)

3.26m riels p.c.

(2007)

no. of persons

employed / working

population (= working age population

from census-based

population projections x employment

rate from CSES)

GDP annual? (GDP and

employment rate available annually from

national accounts and

CSES respectively; working age population based on

projections from 2008 census,

updated by CIPS in 2013)

yes (MDG

indicator no. 1.4)

9* informal sector employment as a share of total employment

proportion of own account workers and contributing family workers in total employment

sum of the no. of own-

account workers (self-

employed workers without

employees) and no. of

contritbuting family

members (who hold

self-employment

jobs in a market-

no. of employed people

CSES? (see above for

frequency / years)

Census?

yes (MDG

indicator no. 1.7)

Note that census does not collect employment data for those below 15 (cf. SES, which collects for all aged 10 or above).

78

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

oriented establishment operated by a

related person living in the same household)

10 working children (total, male, female) aged 5 - 17

% of children (total, male, female) who work more than 1 hour a day, paid or unpaid

outcome indicator

22.3 10.6 8 no. of children (total, male, female) who work more

than 1 hour a day, paid or

unpaid

children (total, male, female) aged 5 – 17

surveyed

CSES is the definition of working children correct?

11* coverage by standard national Identification of Poor Households process

number of rural villages in which identification of poor households was carried out in the preceding two years (implemented by MOP and by partner organizations)

input indicator

app. 3431 by end of

2008 (data from

partner organizations not yet verified)

no. of rural villages in

which identification

of poor households was carried out in the

preceding two years

MOP database of Poor

Households (data available

annually)

no

12* inclusion in List of Poor Households

number and % of rural households included in List of Poor Households

output indicator

to be calculated (data from

partner organizations not yet included in Database)

number of rural

households included in List of Poor Households

all rural households

MOP Database of Poor

Households (data available

annually)

no

13* delivery of targeted health card services to the poor

% of rural households with member(s) who received free or subsidized health care because of inclusion in List of

outcome indicator

the question is

first included in

CSES 2009: this

% of rural households

with member(s)

who received free or

all rural households

CSES Section 13, Q1; and Q2, answer

codes 1,2 and 3. from 2009 (see above for

no

79

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

Poor Households or possession of Priority Access Card / Equity Card

will be the baseline

year

subsidized health care because of inclusion in List of Poor Households

or possession of Priority

Access Card / Equity Card

frequency / years)

14* targeting accuracy of various methods of poor household identification (exclusion error)

% of rural households in bottom two quintiles which do not have a Priority Access Card / Equity Card or any other document that allows free or subsidized health care

outcome indicator

the question is

first included in

CSES 2009: this will be the baseline

year

no. of households in

bottom 2 quintiles (i.e. bottom 40%

of p.c. consumption distribution) that report

having a PAC / EC or other

document

no. of households in

bottom 2 quintiles (i.e.

bottom 40% of p.c.

consumption distribution)

CSES Section 13, Q4.

from 2009 (see above for

frequency / years)

no Must restrict the calculation to only those communes in which identification of poor households using the standard national IDPoor Procedures has been carried out.

Agricultural Production and Productivity

Inputs (all year 2000 constant riels)

15* MAFF budget allocation

share of Government budget allocation for agriculture, forestry and fishery (AFF) over total Government budget allocation (%)

input indicator

share of Government

budget allocation for

AFF

total Government

budget allocation

MEF (Budget) no

16* MAFF budget execution

share of Government expenditure for agriculture, forestry and fishery over total Government expenditure (%)

input indicator

share of Government

budget expenditure

for AFF

total Government

budget expenditure

MEF (Budget Expenditure

Review)

no

80

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

17a total ??? input indicator

no

17b on irrigation input indicator

no

Rice cultivation

18* area cultivated

million hectares 2.374 (2004)

2.585 (2007)

MAFF MAIS no

19 area irrigated

million hectares outcome indicator

20 25 ... hectares of rice paddies

that are irrigated (tbd)

hectares of rice paddies

MAFF MAIS no If agricultural census occurs in 2009/10, can be obtained from that.

20a* area harvested

million hectares 1.977 (2004)

2.621 (2007)

MAFF MAIS no

20b paddy yield, total

tons of paddy produced in past year per hectare of agricultural land (wet season, dry season)

outcome indicator

1.97 2.4 ... total tons of paddy

produced in last 12 months

hectares of rice paddies

MAFF MAIS no If agricultural census occurs in 2009/10, will be obtained from that.

20c* paddy yield, smallholder

tons of paddy produced in past year per hectare of agricultural land (wet season, dry season)

outcome indicator

Wet season:

1.20 (2003) 1.72

(2006)

Dry season:

4.07 (2006) 3.52

(2007)

CSES (see above for

frequency / years)

no

21* milling capacity of paddy that no available?

81

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

capacity can be milled per annum (tons paddy)

22 Area cultivated for other major crops

22a* maize million hectares 0.300 (2005) .393

(2007)

MAFF MAIS no

22b* cassava million hectares MAFF MAIS no

22c* permanent crops

million hectares MAFF MAIS

23 land reforms: land titles to farmers

% of land for which land titles have been given to farmers (tbd)

outcome indicator

12 24 ... hectares / sq km of land for

which land titles have

been given to farmers (tbd)

total hectares / sq km of

agricultural land

MLMUPC MAIS

no Can also obtain from CSES: although rates from CSES incompatible with known rate of titling. (Improvements in questions about title introduced in CSES 2009 should reduce discrepancy). If agricultural census occurs in 2009/10, will be obtained from that.

Health

24* MoH budget allocation

share of Government allocation for health over total Government allocation

input indicator

share of Government

budget allocation for

health

total Government

budget allocation

MEF (Budget) no

25* MoH budget execution

share of Government expenditure for health over total Government expenditure (%)

input indicator

11.4 12.9 share of Government

budget expenditure for health

total Government

budget expenditure

MEF (Budget Expenditure

Review) respectively

MoH (Indicator Framework of

the Health

no

82

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

Strategic Plan)

26* out-of-pocket-spending

out-of-pocket-spending

input indicator

CSES

27* distance to health care facility

distance to health care facility

output indicator

CSES

28* ratio of population per health care facility

ratio of population per health care facility

output indicator

population no. of health care facilities

CSES (?)

29* health facilities providing minimum / complete package of activities (MPA/CPA) / reproductive health services (RHS)

% of health centers providing minimum / complete package of activities (MPA/CPA) / reproductive health services (RHS) out of all health facilities

output indicator

MPA ? CPA ?

RHS: 33

MPA ?

CPA ?

RHS: 45

MPA ?

CPA ?

RHS:70

total no. of health

facilities (disaggregate

into HCs, RHs, national

hospitals) providing

MPA / CPA / RHS

total no. of health facilities

MOH MAIS / HIS

not a SMART indicator

add a final indicator

are the targets realistic?

30* access to and use of services or cost of service utilization or satisfaction with services

CSES

31* stunting (i.e. chronic malnutrition) of children under 5 years old (height for

% of children (total, male, female) aged 0 – 59 months who are moderately or severely stunted (height-for-age more than 2 respectively 3

outcome indicator

37 (boys

39 girls 36)

28 22 no. of children (total, male,

female) aged 0 – 59

months who are

moderately or

total no. of children (total, male, female)

aged 0- 59 months

CDHS

no indicator was proposed by TWG FSN/CARD and NNP/MoH

83

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

age) standard deviations below normal)

severely stunted

32* wasting (i.e. acute malnutrition) of children under 5 years old (weight for height)

% of children (total, male, female) aged 0 – 59 months who are moderately or severely wasted (weight-for-height more than 2 respectively 3 standard deviations below normal)

outcome indicator

7 (boys 7,1 girls 7,4)

no. of children (total, male,

female) aged 0 – 59

months who are

moderately or severely wasted

total no. of children (total, male, female)

aged 0- 59 months

CDHS no indicator was proposed by TWG FSN/CARD and NNP/MoH

33* underweight (i.e. chronic and acute malnutrition) of children under 5 years old (weight for age)

% of children (total, male, female) aged 0 – 59 months who are moderately or severely underweight (weight-for-age more than 2 respectively 3 standard deviations below normal)

outcome indicator

36 (boys 35,3 girls 35,8)

no. of children (total, male,

female) aged 0 – 59

months who are

moderately or severely

underweight

total no. of children (total, male, female)

aged 0- 59 months

CDHS no indicator was proposed by TWG FSN/CARD and NNP/MoH

34 infant mortality rate (IMR)

no. of deaths occurred in children (total, male, female) aged 0-11 months in the past five years per 1,000 live births in the past five years (total, boys, girls)

impact indicator

66 60 50 deaths of children (total, male, female) aged 0 – 11

months in the last five years

thousand live births (total,

male, female) in the past five

years

CDHS (every 5 years

only: 2000, 2005 etc.)

yes (MDG 4.2)

35 under 5 mortality rate (U5MR)

no. of deaths occurred in children (total, male, female) aged 0-59 months in the last five years per 1,000 live births in the past five years (total, boys, girls)

impact indicator

83 75 65 deaths of children (total, male, female) aged 0 – 59

months in the past five

years

thousand live births (total,

male, female) in the past five

years

CDHS (every 5 years

only :2000, 2005 etc.)

yes (MDG 4.1)

36* immunizatio proportion of 1 year- no. of 1 year- all 1 year-old yes

84

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

n against measles

old children immunised against measles

old children immunised

against measles

children (MDG 4.3)

37 maternal mortality ratio (MMR)

no. of deaths in women aged 15-49 years in the past 5 years which occurred during pregnancy, childbirth or within 2 months of a birth or miscarriage / abortion, per 100,000 live births in the last 5 years (see CDHS 2005 p. 119 for additional technical details of definition)

impact indicator

472

243 140 age-stanaardized

maternal mortality rate

over last 5 years

age-standardized

fertility rate over last 5 years

CDHS (every 5 years

only: 2000, 2005 etc.)

not a SMART indicator: very wide margin of error, hard to identify statistically-significant change

are the targets realistic?

add an intermediate indicator: perhaps % of births by cesarean section (from HMIS)

38* antenatal care coverage

no. of antenatal care consultations provided by skilled health personal for reasons related to pregnancy at least once/four times

total no. of live births in a

given time period

total no. of women who

used antenatal care provided

by skilled health personal for

reasons related to pregnancy at least once/four

times

yes (MDG 5.5)

39* under-nutrition of women in child-bearing age

% of women in reproductive age (15 – 49 years old) with BMI lower than 18,5

impact indicator

20 12 8 women in reproductive age (15 – 49

years old) with BMI

lower than 18,5

woman in reproductive age (15 – 49

years old)

CDHS no

40* anemia prevalence

% of pregnant women with hemoglobin level

impact indicator

57 39 33 pregnant women with

pregnant women

CDHS no

85

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

with pregnant women

lower than 11g/dl hemoglobin level lower than 11g/dl

41 births attended by skilled health personnel

% of births in the last 5 year assisted by a medical doctor, nurse or medically trained midwife (not traditional birth attendant)

outcome indicator

44

70 80 no. of women with a birth in last 5 years who were

delivered by a medical

doctor, nurse or trained midwife

total no. of women with a

birth in the last 5 years

Census & CDHS

(every 5 years only: 2000, 2005 etc.),

from 2009, also asked in CSES

add this indicator to CSES

42* deliveries performed at home / with support from government midwifes / in public / private health centres

% of deliveries performed at home / with support from government midwifes / in public / private health centres

output/outcome

indicator

deliveries performed at home / with support from government midwifes / in

public / private health

centres

all births

43 HIV/AIDS prevalence

% of persons aged 15-49 tested to be HIV positive ((total, male, female)

outcome indicator

reconciled estimate: 0.9 (2006)

1.9 1.8 no. of persons

(total, male, female) aged

15-49 who tested HIV

positive

total no. of persons (total, male, female) aged 15-49

tested

Either

NAA’s HIV Sentinel

Surveillance (HSS) (roughly every 2 years)

and / or

CDHS (2005, also

2010?)

Yes (MDG

6.1 which is however limited to persons

aged 15-24)

need to ascertain frequency of future HSS, if not at least every 2 years

44* access to antiretroviral drugs

proportion of population with advanced HIV infection with access to antiretroviral drugs

outcome indicator

no. of persons with

advanced HIV infection with

access to antiretroviral

no. of persons with advanced HIV infection

CDHS yes (MDG 6.5)

86

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

drugs

45 malaria cases fatality

deaths due to malaria as a % of patients (total, male, female) treated for malaria in public health facilities

outcome indicator

0.36 0.2 0,1 no. of patients (total, male, female) who died due to

Malaria

total no. of persons (total, male, female)

treated for malaria in public health facilities

MOH MAIS / HIS

yes (MDG 6.6)

yearly available problematic in that increasing incidence could reflect increased percentage of malaria cases seeking treatment in public facilities

46 TB smear positive cases

no. of sputum tests performed in public health facilities which were positive for the bacteria which cause tuberculosis per 100.000 population (total, male, female)

outcome indicator

na 214 135 no. of persons

(total, male, female) who did a sputum test in public

health facilities

which was positive for the bacteria which cause tuberculosis

whole population

(total, male, female)

MOH MAIS / HIS

yes (MDG 6.10, which also

includes tubercul

osis cases cured)

yearly available problematic in that increasing incidence could reflect increased / better targeted testing

47 married women using modern birth spacing methods

% of women currently married who report using any of the following methods of contraception: pills, condoms, injection, IUD, implant, diaphragm or sterilization

outcome indicator

27.2

44 60 no. of currently married women

currently using pills, condoms,

injection, IUD, implant,

diaphragm or sterilization

total no. of currently

married women

MOH MAIS / HIS (annual)

or CDHS (every 5 years

only)

no (MDG 5.6

measures unmet need for family

planning)

could be replaced by the MDG 5.6 indicator (unmet need for family planning)

Education add indicators which cover the quality of services

48* MoE budget allocation

share of Government budget allocation for

input indicator

share of Government

total Government

MEF (Budget) no

87

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

education over total Government budget allocation (%)

budget allocation for

education

budget allocation

49* MoE budget execution

share of Government expenditure for education over total Government expenditure (%)

input indicator

17.83 20.09 share of Government

budget expenditure for eductaion

total Government

budget expenditure

MEF (Budget Expenditure

Review)

no

50* out-of-pocket-spending

out-of-pocket-spending

input indicator

CSES no

51* distance to school

distance to health care facility

output indicator

CSES no

52* teachers per school

no. of teachers per school

output indicator

total no. of teachers

total no. of schools

no

53 net enrolment in primary schools

% of children (total, male, female) aged 6–11 years who are enrolled in primary school

outcome indicator

91.9, 93, 90.7

100 100 no. of children (total, male,

female) aged 6-11 years who are in enrolled in

primary school

no. of children (total, male,

female) aged 6-11 years

MoEYS yes (MDG

2.1 and 3.1)

not useful since it excludes overage stud-ents and leads to misunder-standings (people think it is the percenta-ge of children accessing education, but this would be measured by the gross enroll-ment rate)

54 net enrolment in lower secondary schools

% of children (total, male, female) aged 12-14 years who are enrolled in secondary school

outcome indicator

26.1, 27.1, 24.8

75 100 no. of children (total, male,

female) aged 12-14 years

who are enrolled in secondary

school

no. of children (total, male,

female) aged 12-14 years

MoEYS yes (MDG 3.1)

not useful since it excludes overage stud-ents and leads to misunder-standings (people think it is the percent-tage of children accessing education, but this would be measured by the gross enrolment rate)

88

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

55* no. of higher education students

no. of higher education students

outcome indicator

no. of higher education students

MoEYS

56 survival rate 1-6

% of children (total, male, female) who finalize grade 6 (total, boys, girls)

outcome indicator

53.1 100 100 no. of children (total, male, female) who finalize grade

6

no. of children (total, male,

female) who got enrolled in

grade 1

MoEYS yes (MDG 2.2)

57 survival rate 1-9

% of children (total, male, female) who finalize grade 9

outcome indicator

30.18 76 100 no. of children (total, male, female) who finalize grade

9

no. of children (total, male,

female) who got enrolled in

grade 1

MoEYS no

58* gross completion rate grade 1-6

no. of new grade 6 students (not repeaters from last years) divided by the age 11 population

outcome indicator

no. of new grade 6

students (not repeaters from last years)

age 11 population

MoEYS no the single most important indicator for progress towards universal primary education (UPE)

59* gross completion rate grade 1-9

no. of new grade 9 students (not repeaters from last years) divided by the age 14 population

outcome indicator

no. of new grade 9

students (not repeaters from last years)

age 14 population

MoEYS no

60 6-14 out of school

% of children (total, male, female) aged 6-14 years who are not attending school

outcome indicator

18.7 11 0 no. of children (total, male,

female) aged 6-14 years who are not

attending school

no. of children (total, male,

female) aged 6-14 years

MoEYS no

61* literacy rate for women and men aged 15-24 and 25-44

% of women and men aged 15-24 and 25-44 who are literate (definition?)

impact indicator

women and men aged 15-24 and 25-44

who are literate

(definition?)

no. of all woman and men aged

15-24 and 25-44

CSES and CDHS

yes (MDG 2.3)

89

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

Rural Development

62* MRD & CSF budget allocation

share of Government budget allocation for rural development over total Government budget allocation (%)

input indicator

share of Government

budget allocation for

rural development

total Government

budget allocation

MEF (Budget) no

63* MRD & CSF budget execution

share of Government expenditure for rural development over total Government expenditure (%)

input indicator

1,125 1,523 share of Government

budget expenditure

for rural development

total Government

budget expenditure

MEF (Budget Expenditure

Review)

no

64 length of paved roads (primary and secondary)

km of paved roads (primary and secondary)

output indicator

2,100 4,200 … total km of paved roads

11,310 km MPWT MAIS

65 rural roads rehabilitated

cumulative kilometers of roads on which rehabilitation work was undertaken since 2005; not including routine maintenance

output indicator

22.700 25.000

28.000

28.000 km MoRD MAIS rehabilitation needs to be defined more precisely

66* distance to next all-weather-road

... outcome indicator

…

... CSES

67* access to electricity (cf. indicator 92)

... outcome indicator

…

... CSES

68* distance to next bank / agricultural extension worker / permanent market /

... outcome indicator

…

... CSES

90

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

shop selling fertilizer

69* legal access to lake / river waters for fishing

... outcome indicator

…

... CSES

Environmental Sustainability

add intermediate indicators

70 access to improved drinking water

% of the (rural / urban / total) population (total, male, female) who have year round access to improved drinking water from any of the following sources: piped or public tap, tubewell or borewell, or rainwater; not including hand-dug wells

outcome indicator

urban: 35 rural:

41.6 total: ...

urban:75

rural: 45

total: ...

urban:80 rural:

50 total:

...

no. of rural / urban / total population

(total, male, female)

who have access to improved

drinking water

no. of rural / urban / total population

(total, male, female)

CDHS and CSES

yes (MDG 7.8)

71 access to improved sanitation

% of the (rural / urban / total) population (total, male, female) who report that they use any type of toilet facility, incl. sanitary latrine, pit latrine, toilet connected to sewage disposal and shared toilets / latrines

outcome indicator

urban: 55 rural:

16.4 total: ...

urban: 67

rural: 25

total: ...

urban: 74 rural:

30 total:

...

no. of rural / urban / total population

(total, male, female)

who have access to improved sanitation

no. of rural population

(total, male, female)

CDHS and CSES

yes (MDG 7.9)

72 forest cover % of total area of the country that is covered by forest

outcome indicator

60 58 60 sq km of the country that is

covered by

total sq km of the country

MAFF MAIS yes (MDG 7.1)

forest needs to be defined

91

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

(tbd) forest (tbd)

73 fuel wood dependency: households

% of households using firewood as their main cooking fuel

outcome indicator

84,4 (fuel

wood) resp. 92,3

(incl. charcoal

& firewood)

61 52 no. of households

where firewood is the main

cooking fuel

total no. of households surveyed

CDHS or CSES (but not reported in the CDHS report)

Gender Equity

74 mainstream gender in all spheres

74a concerned ministries / agencies have formulated a Gender Mainstreaming Action Plan (GMAP)

% of ministries / agencies who developed and officially approved a GMAP

output indicator

2 27 no. of ministries / institutions

with officially approved

GMAP

27 ministries / institutions

MOWA with input from LM

annually/

74b concerned ministries / agencies have implemented their GMAP

- GMAPs integrated into costed sector plans - Gender recom-mendations included in RGC reform progr.

output indicator

0 15 average score in GMAP

implementation

27 ministries / institutions

scoring conducted by

MOWA annually/

75 share of women in wage employment in agriculture, industry and services

% of persons employed in each of these sectors who are female

outcome indicator

52.5, 53.5, 27

50, 50, 37

no. of woman employed in each sector

total no. of workers in each

sector

CSES yes (MDG 3.2)

92

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

76 Level of awareness that violence against women is a wrongful behaviour and a crime

76a incidence of domestic violence

% of married women who experienced who experienced domestic violence in the last 12 months

... 22.3% in 2005

CDHS no

76b access to services (counseling etc.)

no. of cases brought to the attention of PDWA

outcome proxy

indicator

0 500 no. of cases Social workers Reports during annual (alumni,

network) meetings

(establishment of social services has only just started)

77* Eliminate gender disparities in public decision-making

77a* seats held by women in in NA

proportion of seats held by women in national parliament

outcome indicator

11.5 24 no. of seats in NA held by

women

no. of seats in NA

NA / every election

yes (MDG 3.3)

2003 value from national elections (not 2005)

77b* female ministers

proportion of female ministers among all ministers

outcome indicator

8 (?) 12 (?) no. of female ministers

total no. of ministers

SSCS/COM, after every election or

annually based on new

appointments

no appointment in 2004, 2009 etc. with formation of government

77c* female members of CC

proportion of female as members of commune council

outcome indicator

female as Commune

council members

total no. of commune

council members

MOI no based on 2002 CC elections

Governance Reforms

78* voice and accountability

composite indicators, see WGI definition for more details

outcome indicator

24 out 100

(2007)

tbd tbd composite indicators, see WGI definition for more details

Worldwide Governance

Indicators (WGI)

no

79* political stability

composite indicators, see WGI definition for more details

outcome indicator

28,8, out of 100

(2007)

tbd tbd composite indicators, see WGI definition for more details

Worldwide Governance

Indicators (WGI)

no

80* government effectiveness

composite indicators, see WGI definition for more details

outcome indicator

20,9 out of 100 (2007)

tbd tbd composite indicators, see WGI definition for more details

Worldwide Governance

Indicators (WGI)

no

93

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

81* regulatory quality

composite indicators, see WGI definition for more details

outcome indicator

30,6 out of 100 (2007)

tbd tbd composite indicators, see WGI definition for more details

Worldwide Governance

Indicators (WGI)

no

82* rule of law composite indicators, see WGI definition for more details

outcome indicator

13,8 out of 100 (2007)

tbd tbd composite indicators, see WGI definition for more details

Worldwide Governance

Indicators (WGI)

no

83* control of corruption

composite indicators, see WGI definition for more details

outcome indicator

8,2 out of 100 (2007)

tbd tbd composite indicators, see WGI definition for more details

Worldwide Governance

Indicators (WGI)

no

84* D&D reform / fiscal decentralization

share of Government allocation to the subnational level

input indicator

... … ... share of Government allocation to

the subnational

level

budget (allocations)

MEF (budget) no

85* D&D reform / fiscal decentralization

share of Government expenditure to the subnational level

output indicator

... … ... share of Government expenditure

to the subnational

level

budget (expenditures)

MEF (budget expenditure

review)

no

Macro-Economic Development

86 annual GDP growth at constant prices (in general / in agriculture / industry / services)

% of change of GDP current year at constant price compared to GDP previous year at constant price (in general, in agriculture / industry / services)

outcome indicator

in general

7.0 agricultu

re: industry: services

:

in general: 6.0 agriculture: indust

ry: servic

es:

in general: …

agriculture:

industry: services:

GDP current year at

constant price price (in

general, in agriculture /

industry / services)

GDP previous year at constant

price price (in general, in

agriculture / industry / services)

NIS MAIS

87 per capita per capita GDP outcome 1,862 2,243 … GDP current population NIS MAIS

94

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

GDP at constant prices

current year at constant price (000 Riels)

indicator year at constant price

(000 Riels)

88 rate of inflation

% of change of the CPI current year compared to the CPI previous year

outcome indicator

6.2 3.0 … CPI current year

CPI previous year

NIS MAIS

89 annual growth in manufactu-ring at constant prices

% of change of total manufacturing products at constant prices in current year compared to previous year

outcome indicator

10.2 7.2 … total manufacturing products at

constant prices in

current year

total manufacturing

products at constant prices in previous year

MIME MAIS / CSES

data available in MIME MAIS?

if not: switch to CSES indicator of % employed in the different sectors

90 annual tourist arrivals

no. of non-citizens who entered Cambodia on a tourist visa through any official checkpoint (000s)

outcome indicator

1,300 3,120 … / / MOT MAIS / immigration

records

91* diversification

value of 5 exports as % of total exports

67 % (2007)

92 per capita use of electricity (cf. indicator 67)

kwh provided by government per person

outcome indicator

54 89 … total kwh provided by government per person during the past year

population MIME MAIS

93* labour productivity (see indicator no. 8)

94* foreign direct investment

95* banking

95

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

Budget Performance

96 total government budget revenues

% of total government budget revenues as a share of GDP at constant price

outcome indicator

11.8 13.8 … total government

budget revenues

total GDP at constant price

MEF MAIS / NIS MAIS

97 total government budget expenditure

% of total government budget expenditures as a share of GDP at constant price

outcome indicator

14.9 16.5 … total government

budget expenditure

total GDP at constant price

MEF MAIS / NIS MAIS

98* reserves

Global Partnership for Development

99* Official Development Assistance (ODA)

net ODA as percentage of OECD/DAC donors gross national income

net ODA OECD/DAC donors gross

national income

DAC statistics yes (MDG 8.1)

100* ODA to Cambodia

net ODA to Cambodia

AER

101* ODA / GDP net ODA as a % of GDP

10% tbd tbd net ODA Cambodia GDP AER

102* ODA reported on budget

net ODA being on the budget

79 % 90 % AER / MEF / Monitoring of

the Paris Declaration

Paris Declarati

on Indicator

no. 3

103* ODA given as budget support

net ODA given as budget support

3 %

104* ODA given through/to PBAs

net ODA given through program-bases approaches (PBAs)

24 % 66 % net ODA given through

PBAs

net ODA Paris Declarati

on Indicator

no. 9

105* debt relief debt relief committed under HIPC and MDRI initiatives

yes (MDG 8.11)

Demining

96

No. Indicator Definition Type of

indicator

Baseline (2005 or note year)

Target

Numerator Denominator Data source (how often /

year available)

MDG Indicator (yes or

no)

Comments 2010

2015

106 casualties (deaths and injuries)

no. of persons admitted to a Government Hospital (national or RH) for mine accident (men and women)

outcome indicator

797 200 0 no. of persons

admitted to a Government

Hospital (national or

RH) for mine accident (men and women)

no. of persons admitted to a Government

Hospital (national or RH)

(men and women)

CMMA MAIS / MOH HIS

107 area affected cleared of mines and UXOs

sq km of land that has been cleared of mines and UXOs

outcome indicator

50.3 77 100 sq km of land that has been

cleared of mines and

UXOs

CMMA MAIS

97

Annex 4

Glossary

Activity Actions taken through which inputs are used to produce specific outputs.

APR Annual Progress Report Attribution The allocation of a causal link between observed changes and a specific intervention. Attribution is likely to be more difficult for outcomes and impacts than for outputs. Beneficiaries The individuals or groups that benefit, whether directly or indirectly, from a government intervention. Benefit Incidence Analysis (BIA) A method of computing the distribution of public expenditure benefits across different demographic groups. BIA in the health sector examines who benefits from expenditure on health care. Measuring benefits from publicly provided goods and services can be difficult but it can provide an important budgetary perspective by combining data on household use with data on project costs. In particular, it can help illuminate the distributional impacts of proposed reallocations of government resources. Budgetary Analysis Analysis of government finances, primarily focusing on budgeted and actual spending, revenues, deficit or surplus, and debt. CDC/CRDB Council for the Development of Cambodia / Cambodian Rehabilitation and Development Board = the focal point within RGC for the mobilization and coordination of ODA. CDCF Cambodia Development Cooperation Forum CDHS Cambodia Demographic and Health Survey (2000 and 2005) Civil Society Civil society is composed of the totality of voluntary civic and social organizations and institutions that form the basis of a functioning society, as opposed to the more formal structures of a state (regardless of that state's political system) and commercial institutions. CMDG The Cambodian Millennium Development Goals: a set of socio-economic development goals adapted from the global MDGs (agreed as a follow-up of the historic United Nations Millennium Summit in 2000), with associated measurable targets, to be achieved by 2015. They comprise 9 goals and 25 sub- goals. For further details see annex 1.1 in NSDP. CSES The Cambodia Socio-Economic Survey (CSES) is the multi-purpose household living standards survey of the Government, designed and implemented by the NIS. It collects information on living standards (measured as the value of goods and services that

98

households consume every day), poverty rates, agricultural landholding and production, housing quality, ownership of assets, use of health care, children’s’ schooling, and many other variables. Starting from 2004, a large-sample CSES (interviewing 12,000 households in the year) are conducted every five years (e.g. 2004, 2009, 2014, etc.). These provide detailed estimates, including down to the province level for most provinces. Starting in 2007, there is a small-sample CSES survey (3,600 households in one year) conducted in every year between the large-sample surveys (i.e. 2007, 2008, 2010, 2011, etc.). Disaggregated Data Disaggregated data means looking at data by specific subgroups such as spatial unit, gender, socio-economic status, race and ethnicity. It is only when data is disaggregated that patterns, trends and other important information are uncovered. EDP External Development Partners are multilateral development agencies and financial institutions, bilateral governments and government agencies as well as national or international non-governmental organisations (NGOs). Evaluation Evaluation is the assessment, as systematic and objective as possible, of ongoing or completed public action (strategies, policies, programs, projects or policy interventions), their design, implementation and results. Evaluations focus on whether objectives have been achieved and what impacts (positive or negative changes) have occurred. The aim is to determine the relevance and fulfilment of objectives, developmental efficiency, (cost) effectiveness, timeliness, impact and sustainability.

By contrast to monitoring, evaluation is a more infrequent and intensive exercise (often done externally) and seeks to assign causality for observed change (i.e. attribution). Final indicators Measure the effect of a policy or programme on well-being. There are two types of final indicator: outcome and impact indicators. Fiscal Decentralization The transfer of funds and/or revenue raising powers from higher levels to lower levels of Government within political systems, including both administrative structures and elected bodies (Sida, 2007). GDCC The high-level Government-Donor Coordination Committee (i.e. a Government – EDP forum chaired by the Minister of Economy and Finance) meets on a quarterly basis to coordinate the TWGs and to provide policy guidance, to set priorities and to resolve problems raised by TWGs. A GDCC Secretariat has been established at the CDC/CRDB. GDP General Directorate of Planning (of the MOP) Goals Are the objectives that policy makers / organizations wish to achieve through policies, strategies and plans. Goals often expressed in qualitative terms i.e. reduce poverty, increase female literacy etc. These are set out in the PRS. Goals usually describe outcomes or impacts. Indicators are measures for checking on progress towards achieving outcomes/goals. Once a set of goals has been agreed the next step is to identify a range of indicators. Indicators can be

99

intermediate and final, quantitative and/or qualitative. Good indicators have a time frame and may highlight geographical and/or target groups.

Examples of indicators

Quantitative Qualitative

Input Expenditure on primary education

Adequacy of the curriculum

Output Number of primary school teachers

Quality of teaching

Outcome Enrolment and drop out rates Satisfaction with quality of teaching

Impact Literacy rate Change in perception of empowerment and poverty status

Impacts These are the ultimate, long term effects on well-being that a policy intervention intends to bring about (for example, a change in the literacy rate). Impact indicators measure changes in the dimension of well-being that is the goals of public policy eg literacy rate. Inputs The resources – financial, human and physical, that are dedicated to a particular policy or activity in order to help it succeed or to achieve a goal / an objective. Input indicators measure the inputs in to a given policy measure. Intermediate indicators Measure progress towards final indicators (outcomes or impact). There are two types: input and output. Intermediate indicators are important as they assess the elements of indicator chain over which the government has full control (inputs and outputs). They are also likely to be more regularly available than final indicators. MAIS Ministry Administrative Information System M&E Monitoring and Evaluation MDG Millennium Development Goals (MDGs). Result of the September 2000 Millennium Declaration (see http://www.un.org/millennium/summit.htm). They are concrete measures for judging performance through a set of inter-related commitments, goals and targets on development, governance, peace, security and human rights. MEF Ministry of Economy and Finance

100

Monitoring Monitoring is the regular, continuous and systematic collection of information to assess progress in delivering inputs, activities and the achievement of objectives (outputs, outcomes and impacts) over time and to enable adjustments to be made.

Monitoring usually accepts as given the objectives and assumptions of the development intervention without posing more fundamental questions, which evaluations usually address. Monitoring data is essential for addressing the “effectiveness” criterion in an evaluation but is less useful for evaluating relevance, efficiency and sustainability. A monitoring system is a management tool generating information that enables mid-course corrections and improvements in implementation. MoP Ministry of Planning NCDD The NCDD is the National Committee for Democratic Development at Subnational Level established in 2009. It is composed of highest level representatives of the main line ministries (11 ministers, 3 secretaries of state et al.). It's task it to coordinate and lead the implementation of the Organic Law and the implementation of the policy on decentralization and deconcentration reform (see RGC 2009). Before there was a National Committee for the Management of Decentralization and Deconcentration (also called NCDD), which was established in 2006 as a replacement of the Seila programme that was completed in 2006 and merged into NCDD in January 2007. NIS National Institute of Statistics (a Directorate within MOP) NSDP National Strategic Development Plan (2006-2010) NSDP-MF Monitoring Framework of the National Strategic Development Plan Objectives are ends that an organization tries to achieve based on policies, strategies and plans. Outcomes Outcomes are the real or visible medium to long term effect (i.e. results) of a policy internvention. Outcome indicators capture access to, use of and satisfaction with public services, access to credit, representation in political institutions and so on. Outcome indicators These measure access to, and satisfaction with, public services eg primary school enrolment rate. Outputs These are the specific goods or services produced by government in order to contribute towards the achievement of a policy goal (for example, teachers, school books). Outputs therefore contribute to changes in an outcome, although the government has less control over outcomes than it does over outputs, due to the potential effect of outside forces. Output indicators These measure the goods and services produced by the input (number of new classrooms).

101

Participation Participation (from a social science perspective) means allowing the public to directly participate in political, economic, management or other social decisions. Participatory decision-making infers a level of proportionate decision making power and can take place along any realm of human social activity. Policy “A course or principle of action adopted by a government, party, business or individual”. Policies may aim to retain the status quo or implement a programme of reform or change. The policy cycle describes the process from analysis through the development of polices and programmes and back to analysis. Poverty Reduction Strategies These describe a country's macroeconomic, structural and social policies and programmes to promote growth and reduce poverty. They are prepared by governments through a participatory process involving civil society and development partners. They are an agreement between a government and its stakeholders about what it will be held to account for delivering. PPR Planning & Poverty Reduction Proxy indicators Where it is not possible to collect data on the desired indicator, a proxy indicator can be used to substitute for that indicator. This is done by finding an indicator which has a causal link with the desired indicator, or has been shown to be very closely related to it. For example, where information on household income is not available, information on the percentage of households with a radio may be used as a proxy. PRS/PRSP Poverty Reduction Strategy/Poverty Reduction Strategy Paper Public Expenditure Analysis Tools (PEATS) PEATS are tools of analysis for the review of public expenditure. They ask questions about such varied issues as: equity in tax burdens as well as in public spending; spending effectiveness; effectiveness of public performance in safeguarding the interests of the poor and those otherwise disadvantaged members of society, such as women, children, and minorities. Where their results are disseminated, they can provide a framework for participatory monitoring of public spending. Specific tools include Public Expenditure Reviews (PERs), Public Expenditure Tracking Studies (PETS) and Benefit Incidence Analysis Public Expenditure Review A review of policy and public expenditures, either by sector or in multiple sectors. A PER is concerned with the extent to which spending is linked to policy, the efficiency of public expenditure in the sector concerned, and the efficacy of the expenditure management systems. They are often carried out by or with the participation of the World Bank. Public Expenditure Tracking Surveys PETS are a quantitative survey of the supply side of public services. The unit of observation is typically a service facility and/or local government i.e. frontline providers like schools and clinics. A PETS collects data on financial flows, from central government through all tiers of government through to the final service delivery body. PETS are often accompanied by quantitative Service Delivery Surveys (see below).

102

Public Financial Management Public Financial Management is the management of the revenues, expenditures, assets and liabilities of the state. For more details see chapter 2.3. Public Service Delivery Surveys Similar to the PETS, quantitative Service Delivery Surveys are micro-economic level surveys aimed at assessing service delivery. Their tools can be used to assess public spending efficiency, as well as the quality and quantity of services at not only the household or business level, but also at the service provider level. Moreover, these tools can be used to evaluate the impact of policy changes. Qualitative data Qualitative data are data which are descriptive. Therefore qualitative data may be statement of an opinion or feeling. They are often multi-dimensional. Quantitative data Data which are directly measurable and uni-dimensional. RGC Royal Government of Cambodia RS Rectangular Strategy I (the major policy document of the RGC issued in 2004) and Rectangular Strategy II (the follow-up document issued in 2008). SMP Statistical Master Plan SNEC Supreme National Economic Council Targets Targets are quantified objectives (indicators) that a country aims to achieve, for example a 10 per cent reduction in poverty or a 20 per cent increase in female literacy. Good indicators include a time frame. TWG Technical Working Group TWG PPR Technical Working Group on Planning & Poverty Reduction UN United Nations WB World Bank

103

Annex 5

Bibliography

Abrams, Julian: Modules 1, 2, 3, 4, 5. 6, 7, 8, 9 and 10 on District Planning, Phnom Penh 2008

Abrams, Julian: Integrated Commune and District Planning, Wrap-up Presentation, Phnom Penh December 2008

Abrams, Julian: District Strategic Development Planning, Phnom Penh December 2008

GTZ and UNICEF: D&D and Sectors, Power Point Presentation, Phnom Penh 2008

Interministerial Working Group: Guideline on Commune/Sangkat Development Plan and Commune/Sangkat Investment Program, Phnom Penh 2007

Khmer Institute of Democracy: Cambodian Commune Councils – First Steps, Phnom Pen 2007

MoI: Guideline on Recruitment of Commune/Sangkat Focal Person for Monitoring and Evaluating Work, Phnom Penh June 2003

MoI/MoP: Inter-ministerial Prakas on Commune/Sangkat Development Planning, Phnom Penh 2002

MoP: National Strategic Development Plan (NSDP) 2006-2010, Phnom Penh 2006

MoP: NSDP Annual Progress Report 2006, Phnom Penh 2007

MoP: NSDP Mid Term Review, Phnom Penh 2008

National Institute of Statistics (NIS) / MoP / RGC: Statistical Master Plan, Phnom Penh 2007

Naream Mao & Sovannary Ta: Investigation and implementation of good local governance in Cambodia: A case study of Sihanoukville Municipality, Research Paper submitted to National Institute of Development Administration, Phnom Penh 2006

Pak Kimchoeun and David Craig: Accountability and Public Expenditure Management in Decentralised Cambodia, CDRI Working Papers Series No. 38, Phnom Penh 2008

RGC: Law on Administration and Management of Communes / Sangkats, Phnom Penh 19.3.2001

RGC: Strategic Framework for Decentralization and Deconcentration Reforms, Phnom Penh 2005

RGC: Law on Administration and Management of the Capital, Provinces, Municipalities, Districts and Khans (= "Organic Law"), Phnom Penh 10th revision as of 19.11.2007

RGC: Royal Decree on the establishment of a National Committee for Democratic Development at Subnational Level, Phnom Penh January 200