1. BACKGROUND OF THE DFGG PROJECT
Good governance is a critical challenge facing Cambodia in its efforts to sustain economic growth, reduce poverty and attain the Cambodia Millennium Development Goals. Accordingly, the Royal Government of Cambodia (RGC) gives prominence to improving governance in its Rectangular Strategy 2004-2008, the Governance Action Plan, and the Decentralization and De-concentration Strategic Framework. One important initiative of RGC in this regard is the planned Demand for Good Governance (DFGG) Project, which will be supported by grant financing from the International Development Association (IDA).
The development objective of the DFGG Project is to promote good governance in Cambodia in order to sustain economic growth and poverty reduction. As elsewhere, efforts to improve governance in Cambodia have focused predominantly on supply-side instruments (e.g., more effective public administration and financial management, delivery of public services, etc,). While these are necessary and useful, better and more lasting results will be achieved if complemented by increased social accountability (i.e., more demand-side pressure).
The DFGG Project shall improve governance quality in Cambodia by building the capacities of institutions, and supporting programs/projects and coalitions, that promote, mediate or address demand for good governance in the context of a few key areas in RGC’s reform agenda. This will result in more effective design, implementation and monitoring of key reforms, and more transparency, accountability and responsiveness of the state to citizens.
The Ministry of Interior (MOI) has been assigned by the RGC to be the lead agency in the preparation of the DFGG Project. Preparation work, including pre-implementation activities prior to project effectiveness, has been programmed over a 52-week period and is expected to start in early 2008. Overall management of preparation is the responsibility of an MOI Undersecretary of State who has been designated as Project Coordinator. Preparation will involve coordination and supervision of a number of preparatory studies to be undertaken by consultants and, based on their findings, recommendations for eventual project design and implementation arrangements. Project preparation will require systematic engagement of a range of stakeholders from the government (both national and sub-national levels), donors, civil society and the World Bank.
2. OBJECTIVE OF THE CONSULTING ASSIGNMENT
The main objective of the assignment is to design the implementation arrangements for the DFGG Project. The project envisages the creation of two separate funding and management channels to support state and non state institutions and programs respectively. Funding for state institutions will be managed by a state entity, and while funding for non-state institutions will be managed by a non-state entity (like a CSO). A multi-stakeholder oversight committee (the Oversight Committee) will, among other tasks, provide overall oversight and linkages across the two funding channels. Hence, the consulting assignment will consist of two phases:
The objective of the first phase shall be to scope out and assess different implementation arrangements for the DFGG Project in terms of: (1) support to state institutions, (2) support to non-state institutions, and (3) the Oversight Committee.
The objective of the second phase shall involve the detailed design of the preferred implementation arrangements for the Project in terms of the above areas.
3. SCOPE OF WORK
The consulting assignment will be carried out by a team of three consultants, one international (“the International Consultant”), and two national (“the National Consultants”). The International Consultant will bring global experience in designing implementation arrangements for complex governance projects involving both state and non state institutions and multi stakeholder committees. She/he will lead in task delivery while working closely with, and delegating specific tasks to the National Consultants. The scope of work for the consultants-team will consist of the following:
International Consultant
3.1 Initial Scoping of Possible Implementation Arrangements for DFGG Project.
The International Consultant will perform an initial scoping to identify possible implementation arrangements, which will involve:
- (a). conducting a review of institutional arrangements in existing and proposed donor projects and government programs in Cambodia (including, the UNDP Governance Program, DFID-DANIDA Livelihood Program and PACT Anti Corruption Program)
- (b). identifying and interviewing state and non-state key informants
- (c). conducting a workshop to elicit initial ideas
- (d). conducting follow-up interviews and discussions
- (e). producing a preliminary list of organizational design options
- (f). conducting further discussions (or a second workshop) to identify the preferred implementation arrangements
In order to ensure that the most viable options for implementation arrangements for managing and supporting selected institutions and programs are fully explored, the Consultant will also prioritize the following:
- (g). identifying possible entities (in government and civil society) which can manage financial and other project support to state and non state institutions and programs
- (h). assessing the feasibility of such an arrangement
- (i). developing options for the structure and composition of the Oversight Committee
- (j). assessing the pros and cons of outsourcing the administrative and financial management of the project to a reputable accounting or auditing firm. (On one hand, this will simplify and reduce the burden of Project management for the Executing Agency. On the other hand, since the project is attempting to promote good governance, it may be desirable to build capacity for these activities within government and civil society in Cambodia, and not outsource them to a firm)
3.2 Detailed Design of Institutional Arrangements
This involves the detailed design of the selected institutional arrangements in the areas of (i) support to state institutions, and (ii) support to non-state institutions. Design considerations will include the following:
- (a). overall organizational structure for implementing DFGG project
- (b). organizational structure of the state and non-state funding and management entities, including functions and roles of officers
- (c). financial and human resources to support the state and non-state funding and management entities, and clarifying the sources and modalities for funding staff salaries
- (d). training and technical assistance capacity
- (e). outreach capacity and communications plan
- (f). equipment, office space, and physical location
- (g). fiduciary arrangements, including those related to procurement and disbursement, in collaboration with the International Consultant designing the procurement system
- (h). financial and fund management procedures, flow of funds, and accounting arrangements, in collaboration with the International Consultant designing the financial management system
- (i). budget and incremental costs
- (j). operational procedures
- (k). monitoring and reporting
- (l). transparency, accountability and anti corruption mechanisms, including provisions regarding conflict of interest, and
- (m). links between the Executing Agency, the Oversight Committee, the State funding entity, the Non-State funding entity, the state and non-state grantees and other stakeholders
3.3 Detailed Design of Oversight Committee
This involves the detailed design of the institutional arrangements for the Oversight Committee. The Oversight Committee will be a key mechanism by which reformers in the government will be brought together with reformers outside the state so they can work together on a common cause. It will also facilitate cross-learning. If possible, the Oversight Committee should be piloted during project preparation.
Design considerations will include:
- (a). review of existing experience with oversight committees and steering committees in Cambodia to learn lessons about what works and what does not
- (b). committee functions and roles
- (c). committee composition and selection criteria and process
- (d). committee champions and leaders (both formal and informal)
- (e). committee structure and roles and responsibilities of office bearers, and subcommittees, if any
- (f). training and capacity building for the committee members, including potential study tours
- (g). operating rules, procedures, and principles
- (h). transparency and accountability procedures, including provisions regarding conflict of interest
- (i). budget and funding, and
- (j). legal status
The detailed design of the Oversight Committee should include the links to the Executing Agency, the state and non-state funding and management entities, and, (if appropriate) the outsourced financial management and administrative entity.
National Consultants
- 3.4 Undertaking Designated Tasks
Working under the supervision of the International Consultant, the National Consultants will undertake designated tasks, and in particular will:
- (a). support any or all of the scoping activities to identify viable institutional arrangements for project implementation
- (b). give inputs to the detailed design of institutional arrangements to support the selected institutions
- (c). provide knowledge of the local context and information and insights regarding viable institutional arrangements in Cambodia for similar projects, and,
- (d). provide research and other necessary support to the investigation of outsourcing for administrative and financial management services
- (e). perform any such tasks as may be required by the International Consultant to fulfill the requirements of this TOR
4. REPORTING AND PERIOD OF PERFORMANCE
The International Consultant shall be engaged for a total of 90 days, while the National Consultants will be engaged for a total of 120 days (for 60 days each). Commencement date is set for February 1, 2007.
The Consultant shall submit the following three written outputs.
4.1 Analytical Report on Preferred Implementation Arrangements
The report shall provide the following information:
- (a). a list of the preferred DFGG Project implementation arrangements for: (i) support to state institutions, (ii) support to non-state programs, and (iii) the Oversight Committee
- (b). an assessment of the strengths and weaknesses of these preferred institutional arrangements and the basis for their selection
- (c). a work plan for the detailed design of these institutions
4.2 Detailed Design Plan for Project Implementation Arrangements
The Consultant shall submit the detailed design plan for the institutional arrangements for project implementation, taking into consideration the factors mentioned earlier (see Section 3.2 and 3.3).
The first drafts of the above outputs shall be reviewed by the MOI Preparation Team and the World Bank Task Team. The final versions of the reports shall be prepared by the Consultant, taking into account the comments and recommendations received. This should be submitted within ten days from the receipt of the comments.
5. RESOURCES TO BE PROVIDED BY MOI
The Consultant will work with the Project Preparation Team that has been organized by MOI to oversee the preparation of the DFGG project.
Aside from providing office space, MOI will also provide the Consultants with administrative support including technical and communications support, assistance in making appointments, travel arrangements, arranging meetings, organizing training and workshops, distributing documents, and other provisions necessary to facilitate the work of the consultants.
6. INSTITUTIONAL ARRANGEMENTS
The Consultants will be based in Phnom Penh at the offices of the MOI. They will work under the direct supervision of the MOI Undersecretary of State who has been designated as the Project Coordinator for DFGG preparation, and under the guidance of the Project Team Leader (Consultant).
The Consultants will also interact closely with other consultants engaged in preparation and the MOI Preparation Team. In particular, the team will coordinate closely with the Financial Management and Procurement consultants.
The Consultants will coordinate closely with all the other consultants engaged in preparation and the MOI Preparation Team. They will also, in coordination with the Project Team Leader, interact with the Bank task team as needed.
7. REQUIRED EXPERTISE AND QUALIFICATIONS OF CONSULTANT
7.1 International Consultant
This assignment is subject to international recruitment.
The Consultant must be a citizen of a member country of the World Bank, and will have the following qualifications and experience:
A Master’s degree or equivalent in development studies, business administration, public policy, public administration, social science or other relevant disciplines. Specialized training in areas relevant to the project will be an advantage
At least 10 years global experience in institutional development, including hands-on experience in designing implementation arrangements for complex projects involving both state and non state institutions, and multi stakeholder committees. Experience in working in both state and civil society will be an advantage
Practical knowledge and technical leadership in social accountability and demand side approaches to governance will be preferred
Significant supervisory and team leader experience with demonstrated interpersonal and communications skills. While s/he must have the ability to work independently, the Consultant should also be able to provide guidance and transfer knowledge and skills to government counterpart staff
Computer literacy, with high proficiency in the use of standard software packages
Excellent written and oral communication skills in English. Understanding of the Khmer language would be an advantage
Relevant experience in Cambodia and South East Asia will be a strong advantage
7.2 National Consultants.
This assignment is subject to local recruitment. The National Consultants will have the following qualifications and experience:
At least a Bachelor’s degree or equivalent in development studies, business administration, public policy, public administration, social science or other relevant disciplines. Specialized training in areas relevant to the project will be an advantage
At least five years professional experience working on project implementation and institutional development in ODA projects in Cambodia
A working knowledge of relevant national laws and institutional arrangements, policies and programs on governance and the RGC reform agenda
Computer literacy, with high proficiency in the use of standard software packages
Fluency in the Khmer language and in spoken and written English
