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REVIEW OF DEVELOPMENT ASSISTANCE AND MAJOR FUNDING MECHANISM OF THE NATIONAL AIDS RESPONSE. Dr R L Adupa. OBJECTIVES OF FUNDING MECHANISM REVIEW. OBJECTIVES to review performance and contribution of development assistance and major funding mechanisms VS international agreements - PowerPoint PPT Presentation
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January 31st, 2006 Funding Mechanism 1
REVIEW OF DEVELOPMENT ASSISTANCE AND MAJOR
FUNDING MECHANISM OF THE NATIONAL AIDS RESPONSE
Dr R L Adupa
January 31st, 2006 Funding Mechanism 2
OBJECTIVES OF FUNDING MECHANISM REVIEW
OBJECTIVES
– to review performance and contribution of development assistance and major funding mechanisms VS international agreements
– to examine challenges and consider ways of improving harmonization and alignment of funding mechanisms to national planning and budgeting processes
PARIS COMMITMENTS/GTT RECOMMENDATONS– Ownership and Leadership– Alignment– Harmonization– Managing for Results– Mutual Accountability
January 31st, 2006 Funding Mechanism 3
OWNERSHIP AND LEADERSHIP
• Leadership in National AIDS Response• Ownership• Annual Priority Action Plan• Support for Integration of AIDS into PRSP• Economic Consequences of AIDS and Macro-
economic and Public Expenditure Framework
– USE OF SYSTEMS & TOOLS TO OWN, LEAD AND COORDINATE DEVELOPMENT ASSISTANCE ON HIV/AIDS IS WEAK
January 31st, 2006 Funding Mechanism 4
Leadership in National Response
UAC = National AIDS Coordinating Authority by Act of Parliament– Political commitment at highest level– UAC Board and UAC Secretariat– Partnership mechanism for coordination –12 SCEs, PC
and PF – Focal Point Persons – Line ministries and districts– District Task Force– Coordination Committees at line ministries and districts– Policy Committees: SC-MAP; NCC-GF and AC-PEPFAR– UAC Statue being revised– HIV/AIDS overarching Policy developed– NSF to be revised early 2006
January 31st, 2006 Funding Mechanism 5
Leadership in National Response
• Concerns– Differentiation in roles of Chair of Board and of DG not clear– 70% of staff are in administration and support services– TAs not seriously involved in capacity building– Weak internal management and coordination– Complaints in operations of 3 Policy committees– Overlap in membership to 3 Policy committees
• Recommendations– Clarify lines of authority and accountability – UAC Board, Secretariat,
OOP, PMO, MOH, Partnership Mechanism, Coordination Committees and Project management
– High profile leadership of the Commission and of Secretariat, Partnership and coordination structures to be revamped
– Decide on retaining all 3 policy committees, having one steering committee or subsuming them in Partnership Committee
January 31st, 2006 Funding Mechanism 6
OWNERSHIP - contISSUES MAP GF PEPFAR
Nature Loan Grant Grant
Contribution 5% by GOU - -
Negotiations MOFPED, Parliament, UAC, MOH
- -
Mechanism Budget Support Budget Support Non-budget support
Design/Proposals GOU agencies, CSOs, districts
GOU agencies, CSOs, districts
US-Country Team and US-Agencies
Principal Recipient MOFPED/UAC MOFPED/MOH US-Agencies
CONCERNS •Different ownership•Proposal driven by availability of funds
RECOMMENDATIONS
•UAC to continue advocacy on ownership
January 31st, 2006 Funding Mechanism 7
Annual Priority Action Plan• Annual work plans: by FP persons• Annual Plans approved by differently – no harmonization• No strategic plans for many sectors/districts
– Contribution of MAP and AIM/UPHOLD • First Annual AIDS Action Plan
– JAR; January 06-June 07
• Recommendations– Harmonize plans of MAP, GF and PEPFAR– Sectors and districts develop strategic plans = NSF and
respective sector and district long term strategies– UAC, sectors and districts to develop annual plans with
vertical and horizontal linkages
January 31st, 2006 Funding Mechanism 8
Integration of AIDS in PRSP
• PRSP=PEAP– HIV/AIDS is cross-cutting in PEAP
• PEAP to National Plans– Plans developed by Sectors: HIV/AIDS=MOH
• HIV/AIDS is multi-sectoral- affects MOH’s ceiling• MOH can’t address non-health issues
– UAC working on shared planning for HIV/AIDS• Pre-supposes HIV/AIDS mainstreaming
January 31st, 2006 Funding Mechanism 9
Integration of AIDS in PRSP - cont
Constraints to Mainstreaming HIV/AIDS• Inconsistent understanding• Opportunistic planning• Inadequate capacity of Focal points• Inadequate support by UAC• Lack of donor support • SWGs in general:
– Not HIV/AIDS competent– Inadequately equipped with evidence based strategic information on
HIV/AIDS and development in context of each sector
• Recommendations– UAC to develop a comprehensive capacity building strategy for
mainstreaming– ADP and UAC should increase advocacy for mainstreaming of
HIV/AIDS in public sector and support production and harmonization of action plans
January 31st, 2006 Funding Mechanism 10
ALIGNMENT
Multilateral institutions and international partners work with national AIDS coordinating authorities to align support with national strategies, policies, systems, cycles and annual priority AIDS action plans
• Public Financial Management and Audit• Procurement system• Parallel Management Units• Capacity building
ALIGNMENT IS WEAK AND SYSTEMS NEED REFORM
January 31st, 2006 Funding Mechanism 11
FINANCIAL AND AUDIT SYSTEMS
ISSUES MAP GF PEPFAR
Financial System Government Government US-Agency & CSO’s
Disbursements to CSOs
Problematic at district
Lead Agencies Problematic
Not problematic
Response Time (Disbursement/Account)
•PCT slow•Slow Accountability
•PMU slow•IAs slow
•US-Agencies prompt•IAs prompt
Diversion Sometimes diversion by Gov Agency
Sometimes diversion by Gov Agency
Possible with CSOs
Auditors Auditor General Auditor General USG Approved auditors
January 31st, 2006 Funding Mechanism 12
Financial Management and Audit Systems
• Issues– Diversion of funds
– Access to funds by CSOs is problematic– CAOs not involved in resource allocation and
accountability of CSOs– Capacity of AG’s Office is inadequate– US-Agencies accountability/audit report not shared– IFMS most welcome
• Recommendations– Accounting officers enforce financial discipline– Donors support capacity building and sharing of
information on FM and audit
January 31st, 2006 Funding Mechanism 13
PROCUREMENT SYSTEM
ISSUES MAP GF PEPFAR
System Gov & WB Gov US-Agency & CSOs with TA provided
Guidelines Provided to IAs Not provided to IAs Own guidelines
Procurement Plan Drawn but not adhered to
Drawn but not adhered to
Plan by IA
Restrictions None None Some: ARVs, Travel
Distribution Delays Delays? No delays
Procurement of TAs
Participatory Participatory? By US-Agency
January 31st, 2006 Funding Mechanism 14
Procurement -- contConcerns• Procurement laws good but slow• Lack of procurement policy on HIV/AIDS supplies• Overlap in procurement across projects• NMS performance is low• Pooling system vs project procured supplies• Lack of participation in proc of TAs• Off-shore procurement debate
Recommendations• Gov comes with clear policy on proc of HIV/AIDS supplies• All spending agencies should adhere to agreed procurement plans• Use of NMS and pooling system need to be rationalized• Stock at NMS need to be distributed expeditiously• Off-shore procurement be further explored by MOFPED, MOH, UAC
and ADPs
January 31st, 2006 Funding Mechanism 15
Parallel Management Units• MAP: PCT, TRN, $600,000 per annum• GF: PMU, HIV/AIDS Technical working Group; $?• PEPFAR: PEPFAR Secretariat, US-Country Team; US-
Agencies; Unknown amount in mgmt in USA+US-Agencies
• Institutional memory lost• No continuity and use of experience• High administrative/transaction costs• Duplication of processes and systems – resource
implications?
Recommendation• Current opportunities for streamlining parallel
structures need to be utilized
January 31st, 2006 Funding Mechanism 16
CAPACITY BUILDING
• MAP: Advisor to MOGLSD; training project driven; civil work allowed
• GF: Long term TA?; Training donor driven; civil work?• PEPFAR: TA to UAC – PEPFAR Secretariat; training project
driven; civil work minimal• Low capacity in programmes, finances, M&E• Lack of coordinated national strategy• Donors hard on long term training and civil works
Recommendations• UAC to produce comprehensive CB strategy while
synchronizing current CB efforts of MAP, GF and PEPFAR• Donors consider supporting selective long term & civil works
January 31st, 2006 Funding Mechanism 17
HARMONIZATION
Global Fund, WB and other multilateral institutions and international partners committed to harmonizing and better coordinating their programming, financing and reporting.
• Selection of Grantees• Funding Mechanism• Joint Activities
LITTLE EFFORT HAS BEEN MADE FOR HARMONIZATION OF MODALITIES OF ADPS
January 31st, 2006 Funding Mechanism 18
SELECTION OF CSO GRANTEES
ISSUES MAP GF PEPFAR
CSO •National CSOs•CHAI Groups
•Lead Agencies•CSOs
•US-Agency & CSOs
Gov Involvement •PCT•District AIDS Comm.
•PMU•CAOs sign proposals
•US-Country team•Not clear
Criteria •Own criteria•Limited adherence
•Own criteria•Limited adherence
•Own criteria•Strict adherence
Affirmative Action •National component•CHAI component
•46% of Round 1 HIV/AIDS to CSOs
•CSOs major beneficiary
January 31st, 2006 Funding Mechanism 19
Grantees - cont.
• Lack of coordination and sharing of strategic information on support to CSOs
• Duplication: questionable synergy, complementarity • Many unsynchronized criteria with limited adherence• Many CSOs whose roles vs Gov and comparative
advantage not known• Poor geogrpahic and thematic coverage
Recommendations• Donors, gov and CSOs agree on roles of CSOs vs
Gov agencies• Modalities for engaging different types of CSOs be
rationalized and adhered to
January 31st, 2006 Funding Mechanism 20
FUNDING MECHANISM
ISSUES MAP GF PEPFAR
Mechanism Budget support Budget support Non-Budget support
Public sector support
•Health Sector ceiling vs non-health funds•MOH vs OoP for UAC
•Health Sector ceiling vs non-health funds•MOH vs OoP for UAC
•None
CSO Frustrated by districts
Frustrated by Lead Agencies
Frustrated sometimes by US-Agencies
January 31st, 2006 Funding Mechanism 21
MAP GF PEPFAR PF OTHERS
UAF(UAC)
BUDGET SUPPORT
NON-BUDGET SUPPORT
GOVERNMENT AGENCIES
(MTEF)CSOs
GOVERNMENT AGENCIES
(NON-MTEF)CSOs
CSOs(PEPFAR)
OPTIONS FOR FUNDING HV/AIDS ACTIVITIES
January 31st, 2006 Funding Mechanism 22
FUNDING MECHANISM
• Recommendations– UAC should document experiences in channeling
funds through various mechanisms by GF, MAP and PEPFAR
– ADPs should explore further a virtual Uganda AIDS Funds at UAC with an agreed modality for access by CSOs
– The mandate of UAC to coordinate HIV/AIDS response including funds should be strengthened and supported
January 31st, 2006 Funding Mechanism 23
JOINT ACTIVITIES• MAP: Joint supervision mission & Reviews of MAP• GF: ???• PEPFAR: Jointly with other US funded support on SO8• Joint Annual reviews of sectors not including HIV/AIDS
• SCEs (UN Agencies & Bilaterals) & ADPG with TOR• JAR jointly supported by ADPs taking place now
Recommendations• A mechanism for promotion and provision of incentives for
harmonization among stakeholders be worked out by UAC• ADPs need to publicize, advocate for and adhere to their TOR
and mutually monitor its implementation• UAC to insist on joint activities by ADPs
January 31st, 2006 Funding Mechanism 24
MANAGING FOR RESULTS
Multi-laterals and partners strengthen national M&E mechanisms and structures for oversight and problem-solving
MANAGING FOR RESULTS IS STILL WEAK
• UAC lacks M&E staff• M&E framework not operationalized
• MAP: strong capacity for M&E; in-house software• GF: weak capacity for M&E; no system• PEPFAR: stronger capacity for M&E through subcontracting; web-
based platform
Recommendations• UAC spearheads capacity building in M&E• M&E systems be synchronized between projects and gov
departments
January 31st, 2006 Funding Mechanism 25
MUTUAL ACCOUNTABILITYNational AIDS coordinating authorities to lead
reviews of performance of multi-laterals and international partners and national stakeholders
• Involvement of Parliament• Funding Commitment and Predictability• Joint Review
MUTUAL ACCOUNTABILITY IS WEAK
January 31st, 2006 Funding Mechanism 26
Involvement of Parliament
• SCE-Parliament• Standing Committee on HIV/AIDS• HIV/AIDS in Sessional Social Services Committee• Standing Committee visits to MAP project• Chairperson of Standing Committee on HIV/AIDS is member of
3-SCs
• Standing committee visit/oversight on project basis• Budget Act 2001 provision on accountability of AID not enforced
Recommendations• Facilitate a coordinated visit of Parliamentarians to HIV/AIDS
projects/programmes• The two Committees should demand accountability as
stipulated
January 31st, 2006 Funding Mechanism 27
Funding Commitment and its Predictability
• MAP– WB support to GOU mainly through PRSP that has
been reduced from $150m-135m per annum
• PEPFAR– $142m for 2006– Support beyond 2008?
• Other Partners– Basket funding– ADPs e.g. DCI Euros 1.97m to 2m;
January 31st, 2006 Funding Mechanism 28
Current Funding Commitments and Projected Funding Indications
0.00100.00200.00300.00
2001
/2
2003
/4
2005
/6
2007
/8
2009
/1Financial Years
Fund
s (Mi
llion
US$) Series1
January 31st, 2006 Funding Mechanism 29
MUTUAL ACCOUNTABILITY cont
Joint Review• Partnership Forums held annually – this being 4th one• JAR held in December 2005 to provide technical input to
Partnership Forum
Recommendations• MOFPED and UAC should advocate for short and medium
term funding; UAC should facilitate process by annually tracking availability, allocation, utilization and accountability of funds to both public and CSOs
• Donor to be more transparent in their commitments and disbursements
• GOU needs to begin reflecting on sustainability issues• UAC to institutionalize JAR in order to influence planning,
resource mobilization and allocation, management of resources and implementation for results
January 31st, 2006 Funding Mechanism 30
Costs of Continued Weakness in Ownership, Alignment, Harmonization, Managing of Results and
Accountability
By-passing central government by providing aid through
vertical projects
Impossible to scale-up the
response in this environment
Undermine quality of governance
and capacity of the
public sector & CSOs
Distortions in human capacity,
policy dialogue, focus,
partnership…
Agenda becomes donor-driven
and often inconsistent with the
“one national framework”.
Credibility of the national
response is compromised
Stakeholder confidence
levels fall
January 31st, 2006 Funding Mechanism 31
FOOD FOR THOUGHT
Dr Peter Piot – UNAIDS Executive Director in December 2005 at ICASA Conference in Abuja Nigeria observed that
• “We need to make money work for the people on the ground and reach every single person with effective HIV/AIDS prevention and control programme.”
This requires:• “.. all of us to be trully committed to inclusive ownership, efficient
management, transparency, accountability and coordination”
• “Donors to stop funding grants for AIDS programmes without a strong capacity building component and governments and CSOs should stop accepting them”.
NATIONAL OWNERSHIP/LEADERSHIP, ALIGNEMENT, HARMONIZATION, MANAGING FOR RESULTS AND MUTUAL ACCOUNTABILITY
January 31st, 2006 Funding Mechanism 32
THANK YOU ALL