World Bank · Web viewThe findings, interpretations, and conclusions expressed in this paper do not necessarily reflect the views of the Executive Directors of The World Bank or the

Republic of Mozambique

Rapid Donor Data Collection and Donor Coordination Mechanisms Report

April 2017

Public Sector and Governance

AFRICA

Document of the World Bank

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Acknowledgements

This assessment was prepared by Furqan Saleem, Dionísio Nombora, Daniel Nogueira-Budny, Sally Torbert, and Gisella Guambe and overseen by Chiara Bronchi (GGODR). The team would like to express its gratitude to Geert Anckaert (EU), Akari Aoyama (JICA), Yayoi Arima (JICA), Els Berghmans (EU), Humberto Cossa (GHN01), Elizabeth Dodds (Gates Foundation), Carolin Geginat (AFCS2), Keith McLean (GGODR), Jan Joost Nijhoff (GFA07), Anouk Rutter (DFID), and Evelin Stettler (Embassy of Switzerland) for their helpful comments.

MZ: Rapid Donor Data Collection and Donor Coordination Mechanisms Report

Abbreviations and Acronyms

AFD French Development AgencyAfDB African Development BankAGRA Alliance for a Green Revolution in AfricaAgRED Development Partners Group for Agriculture and Rural Development AIMS Aid Information Management SystemANAC National Administration for Conservation Areas (Administração Nacional

das Áreas de Conservação)ANE National Roads Administration (Administração Nacional de Estradas)BACG Beira Agricultural Growth CorridorCAADP Comprehensive Africa Agriculture Development ProgramCHAI Clinton Health Access InitiativeCNCS National Council to Combat HIV/AIDS (Conselho Nacional de Combate

ao HIV/SIDA)CONDES National Council for Sustainable Development (Conselho Nacional de

Desenvolvimento Sustentável)CONFAM National Committee for Food Fortification in Mozambique (Comité

Nacional para a Fortificação de Alimentos Moçambique)DANIDA Danish International Development AgencyDFID U.K. Development for International DevelopmentDNA National Directorate for Water Affairs (Direcção Nacional de Águas)DNAT National Directorate of Land (Direcção Nacional de Terras)DP Development PartnerDPO Development Policy OperationDUATs Right of Use and Tenure (Direito do Uso e Aproveitamento da Terra)EC European CommissionECCWG Environment and Climate Change Working GroupENSSB National Strategy for Basic Social Securitye-SISTAFE State Electronic System of Financial Administration (e-Sistema de

Administração Financeira do Estado)EU European UnionEWG Environment Working GroupEXIM Export-Import BankFAO Food and Agriculture Organization of the United NationsFASE Support Fund for the Education Sector (Fundo de Apoio ao Sector de

Educação)FIP Forest Investment ProgramGAS Water and Sanitation Working Group (Grupo de Água e Saneamento)GBS General Budget SupportGEF Global Environment FacilityGIS Geographic Information SystemGIZ German Agency for International Cooperation (Deutsche Gesellschaft fur

Internationale Zusammenarbeit)

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GoM Government of MozambiqueIFAD International Fund for Agricultural DevelopmentIFDC International Fertilizer Development CenterIFE External Funds Survey (Inquérito dos Fundos Externo)IFMIS Integrated Financial and Information Management SystemIIAM Institute of Agricultural Research of Mozambique (Instituto de

Investigação Agrária de Moçambique)ILO International Labor OrganizationINAS National Institute for Social Action (Instituto Nacional de Acção Social)INATUR National Institute for Tourism (Instituto Nacional do Turismo)INGC National Institute of Disaster Management (Instituto Nacional de Gestão

de Calamidades)IMF International Monetary FundIsDBJICA

Islamic Development BankJapan International Cooperation Agency

KfW Kreditanstalt für WiederaufbauMASA Ministry of Agriculture and Food Security (Ministério da Agricultura e

Segurança Alimentar) (as of January 1, 2015)MCC Millennium Challenge CorporationMEFMICMICOA

Ministry of Economy and Finances (Ministério da Economia e Finanças)Ministry of Industry and Commerce (Ministério da Indústria e Comércio)Ministry of Coordination of Environmental Affairs (Ministério para a Coordenação da Acção Ambiental)

MIMAIP

MINEDH

Ministry of Sea, Internal Waterways, and Fisheries (Ministério do Mar, Aguas Interiores e Pescas)Ministry of Education and Human Development (Ministério da Educação e Desenvolvimento Humano)

MIREME Ministry of Mineral Resources and Energy (Ministério dos Recursos Minerais e Energia)

MISAUMITADER

Ministry of Health (Ministério da Saúde)Ministry of Land, Environment, and Rural Development (Ministério da Terra, Ambiente e Desenvolvimento Rural)

MOPH Ministry of Public Works and Housing (Ministério da Obras Públicas e Habitação)

MoUMSU

Memorandum of UnderstandingMichigan State University

NGONWDP

Nongovernmental OrganizationNational Water Development Program

ODA Official Development AssistanceODAmoz Mozambique AIMSOECDPAP

Organization for Economic Co-operation and DevelopmentProgram Aid Partner

PAF Performance Assessment FrameworkPARPA Action Plan for the Production of Absolute Poverty (Plano de Acção para

a Redução da Pobreza Absoluta)

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PEDSA Strategy and Plan for Agro-Development (Plano Estratégico de Desenvolvimento Agrário)

PESPESSPFMPNISA

Economic and Social Plan (Plano Económico e Social)Health Sector Strategic Plan (Plano Estratégico do Sector da Saúde)Public Financial ManagementNational Agriculture Investment Plan (Plano Nacional de Investimentos no Sector Agrário)

PPPPQG

Public-Private PartnershipFive-Year Plan (Plano Quinquenal do Governo)

PRISE Integrated Road Sector Program (Programa Integrado do Sector de Estradas)

PROAGRI Agricultural Sector Strategy and Expenditure Program (Programa de Desenvolvimento Agrícola)

PRONASAR

ProSAVANA

RSSRSWG

National Rural Water Supply and Sanitation Program (Programa Nacional de Abastecimento de Água e Saneamento)Triangular Co-operation Program for Agricultural Development of the Tropical Savannah in Mozambique (Programa de Cooperação Tripartida para o Desenvolvimento Agrícola da Savana Tropical em Moçambique)Road Sector StrategyRoads Sector Working Group

SDAE

SDC

District Services of Economic Affairs (Serviços Distritais das Atividades Económicas)Swiss Development Corporation

SETSAN Technical Secretariat for Food Security and Nutrition (Secretariado Técnico de Segurança Alimentar e Nutricional)

SAWGSWApToR

Social Action Working GroupSectorwide ApproachTerms of Reference

UN United NationsUNAC National Peasant's Union (União Nacional de Camponeses)UNDP United Nations Development ProgramUNESCOUNFPAUNICEFUSAID

United Nations Educational, Scientific, and Cultural OrganizationUnited Nations Population FundUnited Nations Children's FundUnited States Agency for International Development

WHOWWF

World Health OrganizationWorld Wildlife Fund

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Table of Contents

Abbreviations and Acronyms...........................................................................................................i

Executive Summary and Findings...................................................................................................1

Introduction......................................................................................................................................4

Aid Effectiveness and General Budget Support..............................................................................5

I: Agriculture...................................................................................................................................9

II: Conservation.............................................................................................................................13

III: Education.................................................................................................................................16

IV: Environment and Climate Change..........................................................................................19

V: Fisheries....................................................................................................................................22

VI: Health......................................................................................................................................24

VII: Infrastructure (Roads)............................................................................................................29

VIII: Public Financial Management..............................................................................................32

IX: Social Protection......................................................................................................................34

X: Water and Sanitation.................................................................................................................36

Annex I: List of DPs Interviewed and Consulted..........................................................................39

Annex II: Overview of Sector Working Group Data Collection Fields........................................40

Annex III: Comparison of Aid Data Collection Tools..................................................................41

Annex IV: Disaggregated Totals of Projects by Sector.................................................................42


Tables and Figures

Table 1: Summary of Total Commitments by Sectora.....................................................................5

Table 2: PAP General Budget Support Commitments, 2013–2015................................................8

Table 3: Agriculture Projects.........................................................................................................11

Table 4: Conservation Projects......................................................................................................14

Table 5: Education Projects...........................................................................................................17

Table 6: Environment and Climate Change Projects.....................................................................21

Table 7: Fisheries Projects.............................................................................................................23

Table 8: Health Projects.................................................................................................................26

Table 9: Road Projects...................................................................................................................30

Table 10: PFM Projects.................................................................................................................33

Table 11: Social Protection Projects..............................................................................................35

Table 12: Water and Sanitation Projects.......................................................................................37

Table 13: Data Collection Fields by Sector Projects.....................................................................40

Table 14: Total Commitments by Sector by Donor (Active and Pipeline)...................................42

Figure 1: Aid Data Totals for Donor Commitments in 2015 41


Executive Summary and Findings

1. This report presents the findings of an internal World Bank rapid assessment of donor assistance and coordination mechanisms in Mozambique. Along with a parallel review of Mozambique’s aid data information system, ODAmoz, this report aims to inform development partner (DP) dialogue on aid coordination and information systems. The report presents data collected from existing donor coordination mechanism in key aid sectors, along with findings from interviews with sector specialists at the World Bank and other DPs about sector coordination and policy dialogue. The report documents the type of information gathered by each sector coordination group and identifies data gaps and coordination challenges created by the current system.

2. The main findings from this assessment are as follows:

(a) Mozambique has no central data collection tool that is adequately collecting aid data. ODAmoz—the Government of Mozambique’s (GoM) aid information management system (AIMS), whose objective is exactly this—is neither well utilized nor seen as a functional platform for collecting and accessing information on sector projects and investments. In sector groups that have tried to adopt ODAmoz as a platform, such as the Health Working Group, DPs resisted adoption due to low awareness about ODAmoz’s purpose and fears that a parallel data collection system would interfere or overlap with other mechanisms, such as data entry into the GoM’s integrated financial and information management system (IFMIS), the State Electronic System of Financial Administration (e-Sistema de Administração Financeira do Estado, e-SISTAFE).1

(b) The quality and quantity of data collected by sector coordination groups on projects and financing are highly variable. Not all sector coordination groups are active in tracking project or funding data. In sectors that do keep records, most collect data only on annual commitments; some simply note the total budget and expected time frame. Fewer sectors—that is, agriculture, health, and education—also collect data on actual disbursements, geographic location, specific subsector support, or expected outputs of projects. In addition, most sectors collect data in U.S. dollars, while others collect data in Mozambican meticais. These large variations between data collection methods limit the accuracy of cross-sector comparisons, as well as the compatibility of the data collected within ODAmoz. Table 13 demonstrates the wide variety of fields captured as well as the non-comprehensive nature of countrywide collection efforts, respectively.

(c) Sectorwide approaches (SWAps), which provide a formal framework for DP coordination and DP-GoM policy dialogue, have been very successful in collecting aid data, particularly for the education and health sectors. In some cases, these coordination mechanisms have high transaction costs for DPs; however, where the GoM takes strong leadership and direction for the sector, they can facilitate the adoption of common strategies, national systems, and reporting

1 These findings were corroborated by the parallel functional and technical assessment of ODAmoz conducted by the task team. See the World Bank’s non-lending technical assistance (NLTA) on Aid Data Management (2017).

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frameworks that can limit transaction costs across all stakeholders. Unsurprisingly, SWAps appear to be most successful when the line ministries take a strong, proactive role in promoting DP alignment to sector priorities and encouraging DPs to use common funding mechanisms. The establishment of new SWAps and the strengthening of existing ones appear to be the surest ways of improving donor coordination and aid data management.

3. Based on these findings, this report suggests the following three broad recommendations:

(a) Improved guidance for sector working groups on best practices for data collection and use in sector coordination groups should be provided. If ODAmoz continues to operate as the central repository for on-budget and off-budget DP projects and funding, DP representatives should receive regular training and support on its use and functions. This should include clear explanations about the relationship between ODAmoz and other reporting requirements, such as e-SISTAFE.

(b) Expectations of donor coordination working groups should be clarified as part of the Program Aid Partner (PAP) process, by ODAmoz or by the Ministry of Economy and Finances (Ministério da Economia e Finanças, MEF). Without a centralized body to monitor and standardize data collection across sectors, information is likely to continue to be ad hoc, incomplete, and of little use for monitoring overall progress on aid effectiveness.

(c) Standard templates for further data collection should be developed to include a core set of basic fields and standard guidelines that sector coordination groups could then customize based on the additional, sector-specific information they needed. Such templates could pull basic aid information from ODAmoz, limiting double reporting from DPs while also ensuring buy-in for a centralized database of core data.

4. This report also documented a number of sector-specific recommendations based on consultations with sector stakeholders. In general, recommendations focused on the need for stronger ministerial ownership of sector strategies, a broadening of working group mandates to leverage existing institutions for heightened impact, and systematization and standardization of data collection mechanisms.

Sector RecommendationsAgriculture Establish a multistakeholder coordination mechanism led by the GoM and MASA to

mobilize funding, monitor progress, and lead policy dialogue. Strengthen coordination between AgRED and other sector coordination groups to

coordinate on cross-cutting policy areas, including agri-business, seeds, or food security.Conservation Expand the mandate of the Conservation Working Group to discuss policy issues, such as

the creation of an independent institution, and joint objectives, such as raising the profile of conservation issues.

Education Ensure greater ministerial coordination with FASE at the technical levels. MINEDH seeks to leverage DPs’ experience more upstream of the policy formulation

process.Environment Expand the mandate of the ECCWG to allow for policy dialogue, particularly around

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Sector Recommendationsand Climate Change

forest management and climate change, that would help direct policy discussions and expand engagement with Government partners.

MICOA takes a more proactive role in guiding the agenda of the working group to address sector priorities and discuss a pooled funding mechanism.

Fisheries Hold more regular, structured meetings of the Fisheries Donor Coordination Group to improve sector organization and engage partners on policy issues.

The Fisheries Donor Coordination Group establishes stronger connections to other groups, including agriculture and conservation.

Health Adjust or expand IFE categories to use more than just PESS fields, to better allow for reporting of provincial and district activities.

Link IFE data to government accounting systems to facilitate its use by MISAU during annual planning and budgeting processes.

Strengthen monitoring and evaluation capacity in the sector.Infrastructure (Roads)

ANE encourages nontraditional donors to coordinate with the SWAp. ANE and DPs collaborate to channel more funding into the common fund.

PFM PFM Coordination Group to establish expectations of more timely and disaggregated financial data on ongoing and pipeline projects.

Social Protection

The GoM exerts stronger leadership to ensure that differences among DPs no longer stymie the potential for the SAWG to play an effective role in sector policy dialogue.

The SAWG encourages INAS and DPs to collaborate in collecting and managing key missing data needed to establish social protection systems.

Water and Sanitation

DNA provides clearer guidance and leadership to ensure that DPs do not pursue their own agendas instead of aligning with Government priorities.

GAS encourages better data reporting by DPs, as well as by provincial and district offices, on water supply, coverage, and completed works.

GAS seeks out additional support to strengthen the Government’s information collection and use.

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Introduction

1. This report is the output of a rapid assessment of donor assistance and coordination mechanisms in Mozambique. The objectives of the assessment were to review and compile the donor coordination mechanisms and sources of information on ongoing and planned projects and financing collected by donor coordination working groups in key sectors. The findings also helped inform—and were informed by—the World Bank’s parallel review of the systemic issues hampering effective aid data management and the functioning of ODAmoz, Mozambique’s aid information management system (AIMS), as part of the World Bank’s broader non-lending technical assistance to the sector.

2. Aid coordination mechanisms in Mozambique have historically been robust; however, recent years have seen declining donor participation rates. Previously, donor coordination was conducted through the framework of the Program Aid Partners (PAPs), which was established in early 2000. Participation in the PAP mechanism has declined since 2007, however, and information on development partner (DP) activities has become more limited. The Government of Mozambique (GoM) previously used ODAmoz to coordinate and manage aid information; however, ODAmoz has faced technical challenges since 2015 and is not currently used by DPs. Instead, aid data information is now coordinated through sector working groups using varied data collection methods and procedures.2 This fragmented system, along with limited administrative capacity within some working groups, has resulted in significant data gaps.

3. The assessment was conducted by a research team within the Governance Global Practice from August to November 2016. An initial desk review of policy documents and existing reports was done to confirm the current role and function of aid effectiveness systems and sector coordination structures in Mozambique. The team then interviewed technical specialists at the World Bank Office in Maputo and consulted with representatives from other DP participants in the working groups (see Annex I for a list of interviewees).

4. This report is structured to present the results of this desk review and interview process by sector. The first chapter provides a brief overview of the aid effectiveness framework in Mozambique. The remaining chapters present sector overview summaries on Agriculture, Conservation, Education, Environment and Climate Change, Fisheries, Health, Infrastructure (Roads), Public Financial Management, Social Protection, and Water and Sanitation, with seven sections: background, objective, structure, financing coordination, additional coordination mechanisms, conclusions, and recommendations for improved donor coordination and aid data collection. Recommendations are based on the direct feedback from sector stakeholders.

2 An overview of the different data fields collected within each sector is provided in Annex III, Table 13.

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5. Each section includes a snapshot of projects over US$1 million.3 Data was collected from sector spreadsheets, which are developed by each working group and circulated among DPs for inputs. Spreadsheet formats are non-standard, with varying fields and data formats—an overview of these fields is presented in Annex II as a way of identifying which data fields are universally applicable and which are sector specific. Data was collected for eight sectors, which covers US$4.7 billion of donor funding (active and pipeline, for 2014 and 2015), summarized in Table 1; to put this in perspective, gross total official development assistance (ODA) for 2014 and 2015 was US$4.2 billion.4 Data collected in the project spreadsheets includes off-budget projects that are not captured by other aid data platforms, including ODAmoz or the State Electronic System of Financial Administration (e-Sistema de Administração Financeira do Estado, e-SISTAFE) (see Annex III for a comparison of platforms). Data was then compared to ODAmoz data and the World Bank’s BOOST data for validation. The resulting project information is presented in tables for each sector in the report.

TABLE 1: SUMMARY OF TOTAL COMMITMENTS BY SECTORa

Sectorb Active Project Budgets Pipeline Project Budgetsc

Agriculture 253.9 0.0Conservation 96.6 137.4Education 876.7 0.0

Environment and Climate Changed 12.3 0.0

Fisheries 95.2 47.9

Health 2,057.2 58.1PFM 113.2 0.0Roadsd 660.2 0.0

Social Protection 108.3 92.3

Water and Sanitationd 243.5 0.0

Total 4,517.1 335.7Note: a. This summary table includes all project commitments, including those under US$1 million; therefore, the totals for each sector will be slightly larger than the totals for individual sector tables, which include only projects over US$1 million (with the exception of Environment and Climate Change, explained later). b. Aggregate donor contributions per sector can be found in Annex IV, Table 14.c. Pipeline project data is based on limited data available (as of December 19, 2016); as such, these numbers are expected to fluctuate. Pipeline projects are defined as projects that are in development and have pledged funding but have not yet begun disbursements or activities.d. Summary of 2014 and 2015 Budgets.

3 Throughout this report, data on project commitments is presented in US$, millions. Calculations between Mozambican meticais (MZN) and US$ use moving annual exchange rates from the World Bank. As Environment and Climate Change did not have any projects over US$1 million, projects over US$100,000 were included. While data was collected for all projects in each sector, only projects over US$1 million are presented in the tables, as they capture the most significant DP investments in each sector and streamline the report for readability. 4 This includes neither pipeline project funds nor nontraditional donor funds, which are not counted in ODA figures.

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Aid Effectiveness and General Budget Support

6. The PAPs group is the main mechanism for donor coordination in Mozambique.5 The PAP is a group of 16 DPs6 that promote better donor coordination and serve as a platform for negotiations with the Government. The PAP group also coordinated General Budget Support (GBS) 7 for the Government’s five-year development plan (plano quinquenal do governo, PQG) with a specific focus on poverty reduction. In 2015, the GoM and DPs defined the terms for GBS in a Memorandum of Understanding (MoU). The MoU specifies the structure for policy dialogue through two annual meetings, the Annual Review and the Planning Meeting, as well as through a common Performance Assessment Framework (PAF).8

7. Mozambique was often cited as a leader in donor coordination, having started the PAP process in early 2000. The GoM and DPs established the PAP in line with the Paris Aid Effectiveness Principles and DP commitments to strengthen harmonization and the use of country systems. The PAP grew quickly from a group of 4 participating DPs to 19 by 2009.9 Despite strong early progress and DP support, however, GBS reached a peak of 34 percent of total aid in 2007, then declined 24 percent by 2012, due to low levels of control over aid funding, governance issues, and slow progress on poverty reduction goals.10 Total donor contributions to GBS have also stagnated in the last few years (see for an overview of donor participation and commitments from 2013 to 2015). Reports on the performance of the GoM and DPs through the PAF document indicate declining participation rates in the GBS mechanism.11 The rising importance of nontraditional DPs—particularly China and Brazil, which have yet to join the PAP process—add to this trend.

8. The PAP has been supported by 29 thematic and sector-specific working groups since 2009, including working groups on cross-cutting themes, which include active engagement from partners outside of the PAP process. Sector working groups were established as the central coordination mechanism for policy dialogue to guide the PAP process. The most recent review of the PAP process concluded, however, that this policy dialogue is fragmented; overly complicated; and does not adequately link research, debate, and policy development.12 Starting in 2016, under the new GBS MoU, donor contributions will be

5 Most donors participate in the Development Partners Group (DPG), which includes donors who are not formal members of the PAP. 6 Donors include African Development Bank (AfDB), Austria, Canada, the European Union (EU), Finland, France, Ireland, Italy, Portugal, Spain, Sweden, Switzerland, the United Kingdom, and the World Bank. See for details. 7 General Budget Support (GBS) is a type of aid modality which is defined by the Organisation for Economic Co-operation and Development (OECD) as “unearmarked contributions to the government budget [… that] are managed in accordance with the recipient’s budgetary procedures.” GBS, which provides external financing that is both on-budget and on-treasury, is considered a key tool in promoting country ownership of development, in line with the aid effectiveness principles established in the Paris Declaration and the Busan Partnership. See the OECD’s classifications of types of aid: http://www.oecd.org/dac/stats/44479737.pdf.8 The PAP includes several key non-sector working groups such as the Poverty Analysis/Monitoring Systems (PAMS) and the Budget Analysis Group (BAG) that support the monitoring of PAP progress.9 See the EU’s National Indicative Program for 2013–2020. Available at https://eeas.europa.eu/sites/eeas/files/20151130_uemozambiquenipeng.pdf.10 European Commission. 2014. Independent Evaluation of Budget Support in Mozambique - Volume 1 Final Report. www.oecd.org/derec/ec/Mz-BS-Eval-Final-Report-Vol-1.pdf.11 European Commission 2014.12 European Commission 2014.

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http://www.oecd.org/derec/ec/Mz-BS-Eval-Final-Report-Vol-1.pdf


coordinated through 16 subgroups within four working groups: National Systems, Inclusive Growth, Governance and Accountability, and Effective Service Delivery.

9. In addition to the PAP process, many donors have collaborated to strengthen specific sectors through sector budget support or common funds. Common funds provide donors with an opportunity to channel on-budget support that makes use of country systems and allows for additional control in ensuring that aid funding is spent effectively.13 Common funds have been established in education, health, agriculture, water and sanitation, roads, social protection, fisheries, public financial management (PFM), and statistics. Use of common fund systems has also been in decline, however, as has on-budget project support.14 In the last review of PAPs’ targets for 2014, for example, only 34 percent of aid provided to Mozambique was channeled through the national budget, capturing only a small subset of overall donor engagement.

10. Sector working groups play an important role leading policy dialogue and technical collaboration between the Government and DPs, both for PAP donors and other aid modalities. DPs that provide aid external to the GBS, either through common funds or project interventions, also engage sector working groups to coordinate activities, ensuring alignment with government plans and priorities and avoiding duplication with other sector donors. These working groups, however, often lack the administrative capacity to maintain records of sector-specific projects and funding, and they vary greatly in their level of institutionalization, cooperation, and engagement in policy dialogue.

11. In 2016, support for GBS, common funding, and on-budget funding modalities has fallen sharply, a direct result of concerns about budget transparency associated with the discovery in April of previously undisclosed loans and the lack of an agreement with the International Monetary Fund (IMF). While the GoM has taken steps toward restoring confidence among DPs, there is little expectation that this will change in the near future. As such, going forward, GBS funding and common funding mechanisms may see a decline in use unless the GoM takes measures of paramount importance in addressing fiduciary risks.

13 Common funds, or basket funds, are accounts for sector-specific or program-specific purposes, which are jointly managed by DPs and the Government. Common funds are often associated with sectorwide approaches (SWAps), which have shared project documents, funding contracts, and reporting procedures. Common funds use country budget systems but may be channeled externally to the treasury using separate accounts. See the OECD’s definitions of aid modalities in footnote 8.14 Project interventions are donor interventions that are channeled outside of government systems, and they may be reported on- or off-budget, depending on the donor.

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TABLE 2: PAP GENERAL BUDGET SUPPORT COMMITMENTS, 2013–2015

Donor 2013 2014 2015 TotalWorld Bank 110.0 110.0 100.0 320.0European Union 72.8 76.6 15.9 165.3United Kingdom 71.1 65.5 33.4 170.0Sweden 47.3 47.3 47.3 141.9AfDB 27.6 29.8 14.7 72.1Ireland 11.5 11.6 11.1 34.2Canada 14.7 9.7 9.1 33.5Denmark 9.6 10.1 10.7 30.4Finland 9.0 7.7 8.3 25.0Switzerland 8.5 7.5 8.2 24.2Germany 11.5 9.0 — 20.5Italy 6.4 6.5 6.9 19.8Norway 17.0 — — 17.0France 2.6 2.6 2.8 8.0Austria 1.9 1.9 2.1 5.9Portugal 1.9 0.5 0.6 3.0Spain — — — 0Total 423.3 396.3 270.9 1,090.8

Source: Author summary from data available on the Program Aid Partners web page: http://pap.org.mz/.Note: Donor commitments in US$, millions.

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I: Agriculture

12. Background. The main coordination mechanism for agriculture investments is the donor-led Development Partners Group for Agriculture and Rural Development (AgRED) Group. AgRED was created in 2011 to replace the donor harmonization arrangements supporting the prior SWAp, post-Agricultural Sector Strategy and Expenditure Program (Programa de Desenvolvimento Agrícola, PROAGRI). PROAGRI I and II had been the primary coordination mechanisms since 1998 and included a common fund to pool resources in support of Government programs. PROAGRI I, which was completed in 2005, was seen as having strengthened agricultural institutions, but it was criticized for having had limited efforts on direct service delivery. PROAGRI II, which was developed in 2006, addressed these concerns; however, only 8 of the original 15 DPs signed on. The PROAGRI approach was officially disbanded in May 2011. It was then that the Government developed a new strategic plan for agriculture in alignment with the regional Comprehensive Africa Agriculture Development Program (CAADP) approach.15 The Strategy and Plan for Agro-Development (Plano Estratégico de Desenvolvimento Agrário, PEDSA) and National Agriculture Investment Plan (Plano Nacional de Investimentos no Sector Agrário, PNISA) were developed as multi-institutional frameworks to mobilize investments for agriculture and agriculture-supporting activities such as roads, nutrition, and agricultural education.

13. Objective. The objective of AgRED is to strengthen the overall development effectiveness of support provided to the agriculture sector by harmonizing DPs’ interventions and by promoting coordinated and efficient policy dialogue with the GoM. AgRED’s priorities include joint dialogue with the Government on operationalizing the CAADP agenda, specifically implementing the PEDSA and PNISA, exploring co-funding modalities, and improving the PFM systems in the sector.

14. Structure. The AgRED group includes approximately 30 agencies and is chaired on a rotational basis between the World Bank (the current chair), EU, and United States Agency for International Development (USAID). The group meets monthly and communicates joint messages to the GoM on a regular basis through heads of mission and the official G-14 dialogue. The main government counterpart for the group is the Ministry of Agriculture and Food Security (Ministério da Agricultura e Segurança Alimentar, MASA), which attends some meetings when invited to discuss particular topics. AgRED is a single body without any subgroups; however, such an organizational disaggregation has been proposed by the World Bank as a potential way to increase technical engagement on issues such as seeds, food security, and agri-business.

15. Financing coordination. Sector investments are tracked through an MS Excel spreadsheet, external to ODAmoz, that are categorized by PNISA programs. MASA also has the mandate to track PNISA implementation, including contributions from DPs and the private sector, through a multistakeholder coordination mechanism; however, such a group is yet to be established.

15 The CAADP is coordinated and driven by the African Union and supported by donors, and it provides a continent-wide harmonized agriculture development approach. PNISA is the agriculture sector investment plan that is based on the CAADP program and the policy/strategy PEDSA. Both PEDSA and PNISA are up for review in 2017.

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16. Additional coordination mechanisms. Within the agriculture sector, additional coordination mechanisms have been established for donor coordination, separate from AgRED, for the seed subsector, food security, nutrition, land tenure, and growth corridors.16 These groups, while operating independently, share many common members with AgRED and have a stronger focus on technical policy issues rather than donor coordination.

Seeds. The National Seed Committee coordinates with the Institute of Agricultural Research of Mozambique (Instituto de Investigação Agrária de Moçambique, IIAM) within MASA and serves as a platform to meet with DPs and solicit support for their government programs for seed research and development.

Food security and nutrition. Coordination on food security and nutrition is done through the Technical Secretariat for Food Security and Nutrition (Secretariado Técnico de Segurança Alimentar e Nutricional, SETSAN), a coordinating body within MASA. Food fortification, a key component of the nutrition agenda, is also coordinated by the GoM through the National Committee for Food Fortification in Mozambique (Comité Nacional para a Fortificação de Alimentos Moçambique, CONFAM), which is co-chaired by the Ministry of Industry and Commerce (Ministério da Indústria e Comércio, MIC) and the Ministry of Health (Ministério da Saúde, MISAU).

Land tenure. The Land Tenure Working Group is a DP-led working group, currently chaired by the Netherlands, which convenes ad hoc meetings to share information on programs. The working group also coordinates with the National Directorate of Land (Direcção Nacional de Terras, DNAT) of the Ministry of Land, Environment, and Rural Development (Ministério da Terra, Ambiente e Desenvolvimento Rural, MITADER) to discuss options and recommendations on certifying community land and transferable land rights (right of use and tenure [Direito do Uso e Aproveitamento da Terra, DUATs]).

Growth corridors. The GoM strongly supports a growth corridor model to facilitate private sector agriculture investments. Growth corridors vary in their coordination strategy, with some, such as the Beira Agricultural Growth Corridor (BACG) and the Zambezi Valley, operating as public-private partnerships (PPPs), and others, such as the Triangular Co-operation Program for Agricultural Development of the Tropical Savannah in Mozambique (Programa de Cooperação Tripartida para o Desenvolvimento Agrícola da Savana Tropical em Moçambique, ProSAVANA), as joint Government and DP initiatives. These groups are active in coordinating and monitoring regional investments from both DPs and private sector partners.

17. Conclusions. The agriculture sector faces significant coordination challenges because of the wide range of coordinating stakeholders, often spanning multiple sectors, which need to collaborate to support development efforts in agriculture. Stakeholders interviewed deemed the AgRED group as being effective at coordinating projects among DPs; however, the current

16 A coordination body on agri-business had previously been coordinated by SNV Mozambique, a local affiliate of a Dutch nongovernmental organization (NGO); however, it stopped being active in 2015.

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working group structure does not allow for the cross-sectoral collaboration that is needed to pursue reforms.

18. Recommendations

(a) Operationalize the multistakeholder coordination mechanism, which was defined by PNISA within MASA but has yet to be operationalized, which will mobilize funding, monitor progress, and lead policy dialogue.17

(b) The GoM and MASA should lead this process and coordination mechanism, as AgRED is not a substitute for government leadership on multistakeholder coordination with DPs and the private sector on PNISA implementation.

(c) Strengthen cross-sectoral coordination between agriculture and key partner sectors, such as transportation, trade and commerce, and the financial sector, especially on specific policy areas, such as agri-business, seeds, or food security, to identify the reforms needed to develop the sector.

TABLE 3: AGRICULTURE PROJECTS

Donor Project Title Timeline Total Budget

Alliance for a Green Revolution in Africa (AGRA)

Agro-Dealer Development 2013–2016 1.0Agro-Dealer Development Project 2012–2016 1.2Beira Corridor Small-Scale Farmers Support and Market Linkages 2014–2017 1.3Building the Capacity of Smallholder Farmers and Farmer Organizations to Engage in Agriculture Value Chain in Sofala and Manica

2013–2016 3.2

AGRA/SSPT Up-Scaling the Cassava Value Chain in Mozambique 2014–2017 1.5Sweden ARENA 2013–2016 3.6

Capacity Building Cluster Program, UNAC 2014–2017 5.5Community Land Initiative iTC 2015–2017 3.0PRODEL 2012–2019 3.6Rural Development in Northern Mozambique 2015–2017 2.0

Austrian Development Cooperation

PASF Sofala - Project Support for Agricultural Production of Family Sector in the Province of Sofala

2012–2015 3.0

Support implementation of PNISA 2013–2015 1.0EU Delegation Local Economic Development in the Provinces of Sofala,

Inhambane, Gaza (Public Services, Local Economic Infrastructures, Value Chain Development)

2013–2019 27.5

Support to Accelerate Progress Towards MDG 1c in Mozambique 2013–2018 71.6Food and Agriculture Organization of the United Nations (FAO)

UTF/MOZ/107/MOZ - Prevention and Disposal of Obsolete Pesticides and Associated Wastes in Mozambique

2012–2016 1.8

GCP/MOZ/116/BEL - Food Security and Nutrition Program (FSNP)

2013–2018 2.5

GCP/MOZ/100GFF - Disposal of POPS Waste and Obsolete Pesticides in Mozambique - (FSP)

2010–2016 1.4

17 PNISA envisioned a multisectoral coordination group to implement the investment plan, established by MASA with representation from key stakeholders with the Government, DPs, and the private sector. This planned body is yet to be operationalized, however, and DPs continue to discuss this mechanism with MASA and other GoM stakeholders.

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GCP/MOZ/111/EC - Support to Accelerate Progress Towards MDG 1c in Mozambique

2013–2018 24.8

GCP/MOZ/112/LDF - Strengthening Capacities of Agricultural Producers to Cope with Climate Change for Increased Food Security through the Farmers Field School Approach

2015–2019 3.4

OSRO/MOZ/501/CHA - Emergency Assistance for Flood-Affected Households in Zambezia Province

2015–2015 3.3

Finland ADPP Farmers Clubs for Wealth Creation 2014–2018 7.8Forestry Research Capacity Strengthening, Phase II 2012–2018 1.7PRODEZA II 2010–2015 5.5

International Fertilizer Development Center (IFDC)

2SCALE (Toward Sustainable Clusters in Agribusiness through Learning in Entrepreneurship)

2012–2017 3.1

Scaling Cassava in Mozambique 2014–2017 1.4

Italian Development Agency

Program to Support Rural Development 2009–2018 6.5SOMICA 2015–2017 1.2Strengthening Cereals’ and Oilseeds’ Value Chains in Nhamatanda District

2015–2017 1.2

Japan International Cooperation Agency (JICA)

Support of Agricultural Development Master Plan for the Nacala Corridor

2012– 4.4

Sustainable Production of Biodiesel from Jatropha in Mozambique 2011–2016 2.9Project for Establishment of Development Model at Communities’ Level with Improvement of Rural Extension Service under Nacala Corridor Agricultural Development

2013–2019 10.9

The Project for Improving Research and Technology Transfer Capacity for Nacala Corridor Agriculture Development

2011–2017 5.5

Michigan State University

MOZACAPN 2012–2017 3.9

Mundulide/AECID

Economic Opportunities with Base in the Promotion of the Agricultural Capacity of Rural Families

2010–2020 2.4

Agriculture Total 223.1Note: Total investments over US$1 million, in US$, millions.UNAC = National Peasant's Union (União Nacional de Camponeses).

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II: Conservation

19. Background. The donor coordination group on conservation issues was formed in response to the GoM’s drafting of the Conservation Areas Law, which was approved in 2014. DPs formed a platform first to discuss policy issues related to the law and then to present a united platform to the GoM for discussion, instead of more fragmented forums. Following passage of the law, this group of DPs has continued to meet informally as a forum to discuss planned and ongoing projects.

20. Objective. The original objective of the Conservation Working Group was to allow for a DP-Government policy dialogue around conservation. However, the group has since taken on a coordination role for DPs to share research and discuss new and ongoing activities and, instead of using the working group forum, policy dialogue is often conducted bilaterally between DPs and the Government.

21. Structure. The Conservation Working Group is an informal, albeit highly active, working group. It plays a key role in coordinating sector programs and policy dialogue with the Government. The EU has taken the coordination lead for the group, although there is no formal chair appointed, and USAID is also active in supporting coordination efforts. The working group was not formally established as part of the GBS process, but it coordinates with relevant GoM institutions, including MITADER’s National Administration for Conservation Areas (Administração Nacional das Áreas de Conservação, ANAC), the lead institution for conservation, as well as the National Institute for Tourism (Instituto Nacional do Turismo, INATUR), which collects data on tourism in protected areas. As many members of the working group have expressed support for the creation of an independent institution for conservation issues, there may be the potential for policy dialogue on specific issues through the working group forum.

22. Financing coordination. The main financing mechanism for conservation is the Foundation for the Conservation of Biodiversity trust fund (BioFund), an endowment funding mechanism established in 2014 and launched in 2015 as part of MozBio, the World Bank’s Conservation Areas for Biodiversity and Development project. BioFund was established through the broad support of stakeholders, including bilateral DPs such as Germany, France, and the United States, as well as the United Nations Development Program (UNDP), the Global Environment Facility (GEF), the World Bank, Conservation International, and the World Wildlife Fund (WWF).

23. Additional coordination mechanisms

Biodiversity and parks. A related donor coordination working group on biodiversity and parks coordinates with MITADER. It has not been active of late.

24. Conclusions. Current informal arrangements for the Conservation Working Group appear to meet donor coordination objectives as a useful forum for exchanging information. Nevertheless, the group could potentially be more active on policy dialogue issues.

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25. Recommendations

(a) Expand the mandate of the Conservation Working Group to discuss policy issues, such as the creation of an independent institution, and joint objectives, such as raising the profile of conservation issues within the country.

(b) Secure additional resources and administrative support to ensure success of the expanded working group.

TABLE 4: CONSERVATION PROJECTS


Active ProjectsFrench Development Agency (AFD)

Consolidating the Development of the Quirimbas National Park 2010–2013 4.4

AFD/FFEM Climate Change Adaptation in the Quirimbas National Park 2011–2014 1.1Miombo Pilot Project to Combat Deforestation and Forest Degradation in the Gilé National Reserve and its Surroundings Area

2012–2014 2.2

Conservation International/Global Conservation Fund

BioFund Endowment Fund 2015–2024 1.0

Italian Cooperation Protection of Coastal and Marine Habitats of the Quirimbas National Park for Food Security and Economic Development 2017–2020 2.8

Conservation of Natural Resources in the National Reserve of Gilé and its Peripheral Areas through the Strengthening of Economic and Productive Activities of Rural Communities

2017–2020 1.6

Japan (JICA) The Project for Establishment of Sustainable Forest Resource Information Platform for Monitoring REDD+ in Mozambique 2013–2018 7.8

UNDP Sustainable Financing of Protected Areas Systems in Mozambique 2011–2015 5.1

USAID Alliance for Ecosystem Conservation Systems, Markets, and Tourism (ECO-SMART) 2015–2019 9.8

Integrated Gorongosa Buffer Zone (IGBZ) 2015–2019 10.0World Bank Conservation Areas for Biodiversity and Development Project

(MozBio) 2014–2017 46.0

REDD+ Readiness 2013–2017 3.5Active Total 95.2Pipeline ProjectsAFD BioFund 2.2

Project to Support Conservation Areas, in Synergy with MozBio Program, with a Special Focus on Anti-Poaching 4.4

AfDB, International Finance Corporation, World Bank

Forest Investment Program 25.0

UNDP Strengthening the Conservation of Globally Threatened Species in Mozambique through Improving Biodiversity Enforcement and Expanding Community Conservancies around Protected Areas

15.8

World Bank Agriculture and Natural Resources Landscape Management Project (Phase 1) 40.0World Bank Zambezia Integrated Landscape Initiative 50.0

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(possibly others)Pipeline Total 137.4Conservation Total 232.6

Note: Total investments over US$1 million, in US$, millions.REDD+ = Reduce Emissions from Deforestation and Forest Degradation.

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III: Education

26. Background. Donor coordination in the education sector is done through a formalized, structured working group and SWAp that receives strong leadership and direction from the Ministry of Education and Human Development (Ministério da Educação e Desenvolvimento Humano, MINEDH). DP coordination in education has a strong history, starting with an informal SWAp in 1998. In 2012, DPs signed the first MoU for FASE to support the GoM’s Education Strategic Plan. A formalized integrated SWAp was established in 2006, along with the second phase of FASE. In 2012, the Government also established the Terms of Reference (ToR) for dialogue between the MINEDH and DPs, along with the third phase of FASE, which is now ongoing. With each iteration of FASE, the MINEDH has emphasized streamlining funding through FASE, expanding technical dialogue and capacity building, and strengthening financial monitoring.

27. Objective. The primary objective of FASE is to provide funding support to the Education Sector Strategic Plan, which has been extended until 2019. This plan supports primary education, secondary education, technical and vocational training, and literacy and adult education. Another objective of FASE is to advance the aid effectiveness agenda: solidifying the MINEDH’s leadership; ensuring donor alignment with Government priorities; and harmonizing procedures, information sharing, and common reporting arrangements.

28. Structure. FASE has a clear and organized structure of working groups and high-level meetings to facilitate policy and technical dialogue. Partners agree to the responsibility of an annual rotating chair position, to facilitate coordination within FASE.18 FASE’s dialogue and coordination system is extensive and inclusive, and it involves FASE partners,19 non-FASE DPs,20 MINEDH and Provincial Education Directorates, and civil society. Working groups are the main forum for discussion between the Government and DPs, meeting monthly and chaired by the MINEDH National Directors, with separate groups established based on subsectors21 and thematic issues.22 Inputs from these groups are raised at Joint Coordination Committee meetings, which are also held monthly. They focus on policy dialogue; are chaired by MINEDH’s Permanent Secretary; and include the DP Chair, National and Provincial Directors, and representatives from other ministries.23 Annual Review Meetings, chaired by the Minister of Education and including all relevant DPs and GoM officials, jointly assess progress from the previous year and make plans for the following year. FASE also includes a system for parallel coordination meetings between DPs, separate from the Government, including weekly coordination meetings to monitor implementation, monthly thematic meetings, and cooperating

18 For example, in 2015, Finland was the chair, sharing responsibilities with the outgoing chair, United Nations Children’s Fund (UNICEF), and the incoming chair for the following year, Germany. 19 FASE partners include Canada, Finland, Germany, Italy, Ireland, Portugal, UNICEF, and the World Bank.20 Non-FASE partners are DFID; USAID; JICA; International Labor Organization (ILO); United Nations Educational, Scientific, and Cultural Organization (UNESCO); United Nations Population Fund (UNFPA), and Deutscher Volkshochschul-Verband (DVV) International.21 Sector Working Groups include Primary Education, Secondary Education, Higher Education, Technical and Vocational Education, Literacy and Adult Education, and Administrative and Institutional Development.22 Thematic Working Groups include Planning and Financial Management, Human Resources Development, Teacher Training, School Construction, and Cross-cutting Issues.23 Twice a year, an Extended Joint Coordination Committee meeting is held to include all DPs, which is also chaired by the Permanent Secretary.

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partners’ meetings to strengthen donor harmonization. FASE’s system of working groups and coordination meetings, along with on-budget support and common reporting mechanisms, has met all of its established objectives to date.

29. Financing coordination. FASE provides the core framework for DP financing in the education sector, with 86 percent of DP funding channeled through this on-budget SWAp financing mechanism in 2016. Internal Government funding accounts for 87 percent of total spending, along with 2 percent that is financed through off-budget bilateral projects. Total FASE investment levels had been increasing over the last decade, reaching almost US$140 million in 2014; however, this dropped in 2015 to only US$45 million. The World Bank has been the largest financing partner for FASE, contributing 47 percent of all external financing since 2013. In addition to the on-budget contributions of FASE partners, FASE is also beginning to pilot results-based financing mechanisms, with targets linked to disbursements.24

30. Additional coordination mechanisms. FASE requires close coordination with other line ministries, and the FASE coordination structure was developed to include partner ministries as part of the dialogue process. In practice, however, some ministries have been less active in coordinating on technical levels, which raises challenges for DPs trying to implement programs and policies in these areas.

31. Conclusions. Overall, FASE appears to be a well-defined, effective, and inclusive mechanism for donor coordination, policy dialogue, and pooled financing. FASE does face challenges, many of which have been identified as part of its own monitoring and evaluation process.

32. Recommendations

(a) Ensure greater ministerial coordination with FASE at the technical levels.

(b) The MINEDH seeks to leverage DPs’ experience more upstream of the policy formulation process. Despite the robust system for policy coordination, in some cases, DPs have only limited consultation with the MINEDH during the policy development process. Policies are often presented to DPs only when they are approved, which is often too late to provide substantive feedback.

TABLE 5: EDUCATION PROJECTS


Multi-Donor Common Fund

Support Fund for the Education Sector (FASE) — 585.8

Canada BETTER Project 2015–2022 13.7PAQE Project 2015–2017 1.4School Feeding 2014–2016 4.4STEM Project 2014–2020 13.7

U.K. Development

Citizens’ Engagement Program (CEP) 2012–2017 15.4Promoting Girls' Advancement in Education - Mozambique (PAGE- 2012–2017 8.7

24 Targets include number of completed schools, performance audits and program evaluations, on-time construction, and hiring for construction. See the FASE Desk Review, 2015.

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for International Development (DFID)

M)Skills for Employment (S4E) 2015–2021 24.5The Business of Girls’ Education (BGE) 2013–2017 2.3

EU Opportunities for Youth Employment in the Beira Corridor: Linking informal and formal economies 2015–2019 1.7

Germany/Kreditanstalt für Wiederaufbau (KfW)

Management Consultant for the Education Sector Support Fund (School Construction) 2015–2018 2.2

Support to the Mozambican Technical and Vocational Education and Training Sector (TVET) 2016–2019 16.7

Irish Aid Improving Quality 2014–2016 2.0Italy NGO AVSI - Promotion of Primary Education and Communitarian

Development in the District of Nhalamankulu. 2015–2018 1.2

PRETEP - PLUS - Support to Technical and Professional Training Reform System in Mozambique 2016–2019 40.6

Support the University Eduardo Mondlane for Academic Reform, Technological Innovation and Scientific Research 2011–2017 5.6

JICA Project for Expansion of New Curriculum of IFP 2014–2020 4.2Project for the Construction of Secondary Schools in Nampula Province 2013–2015 10.6

Project for the Construction of Monapo Primary Teacher Training Institute in Nampula Province 2014–2015 10.2

Sweden Institutional Research Capacity Building at University Eduardo Mondlane 2011–2016 29.0

USAID ApaL 2012–2016 24.4Engaging Communities to Improve Early Grade Reading 2015–2018 1.6I Read 2014–2019 4.4Food for Knowledge 2015–2019 50.0Nikhalamo 2014–2018 1.1Strengthening School Councils 2013–2016 1.2

Education Total 876.8Note: Total investments over US$1 million, in US$, millions.

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IV: Environment and Climate Change

33. Background. The Environment and Climate Change Working Group (ECCWG) is the donor coordination group established as part of the GBS process to coordinate support to Mozambique’s efforts to address climate change and environmental policy. Mozambique’s key strategy document guiding policy is the National Strategy for Gender, Environment, and Climate Change, approved in 2010.25 Environmental and climate change issues are cross-cutting, with important policy and implementation roles for other sector line ministries, such as agriculture, energy, infrastructure/roads, and the management of coastal areas. Donor coordination in these areas originally began as part of GBS, when an Environmental Working Group (EWG) was established in 2007 to be chaired by the Ministry of Coordination of Environmental Affairs (Ministério para a Coordenação da Acção Ambiental, MICOA) and include cross-sector representation, including DPs, civil society, and the private sector. While the EWG was slow to institutionalize, a parallel DP working group was established to harmonize policy dialogue between DPs and the GoM, which by 2010 had become more active than the original EWG.26 The World Bank coordinates prior actions for its ongoing Development Policy Operation (DPO) with the working group members. Members also coordinate on the development of local adaption plans that have been developed in 35–40 districts.

34. Objective. The objective of the ECCWG is to facilitate discussion among DPs on ongoing and planned programs. The ECCWG plays a limited role for sector policy dialogue, however, and coordination takes place predominantly between DPs, with only limited coordination with the Government. Much of the sector coordination on policy issues and strategy takes place informally, outside of the ECCWG meetings.

35. Structure. The ECCWG is a formalized working group of approximately 20 DPs. The working group was previously supported by the Netherlands and then the Danish International Development Agency (DANIDA), and it is currently chaired by UNDP, which also provides administrative support. Meetings are held every 2–3 months. The main Government counterpart is MICOA. However, representatives from MITADER; MASA; Ministry of Public Works and Housing (Ministério da Obras Públicas e Habitação, MOPH); Ministry of Mineral Resources and Energy (Ministério dos Recursos Minerais e Energia, MIREME); Ministry of Fisheries; and the National Institute of Disaster Management (Instituto Nacional de Gestão de Calamidades, INGC) also attend.

36. Financing coordination. Budget support dialogue was the main coordination mechanism for DPs; however, in recent years, as budget support has declined, this is now changing. UNDP requests that DPs submit data on their budget support and off-budget projects and maintains this database for the working group. On-budget support is managed through the Ministry of Economy and Finances (Ministério da Economia e Finanças, MEF); however, it is not clear whether the MEF is also collecting data on off-budget project investments. The World Bank is currently supporting a Public Expenditure and Institutional Review of Climate Change with MITADER,

25 Climate change is also a key component of Component V in the Government’s PQG, which focuses on disaster risk reduction and climate change adaptation.26 ODI Case Study on Environmental Institutions 2008. Available at https://www.odi.org/sites/odi.org.uk/files/odi-assets/publications-opinion-files/4657.pdf.

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which will draw on ODAmoz and, when completed, will be circulated with the ECCWG. There have yet to be any discussions among DPs on the possibility of pooled funding mechanisms.


Forestry. A donor coordination group on forestry used to meet regularly, but it has not been active in recent years. USAID and Sweden have previously been active in sector coordination, and the World Bank is currently exploring options to provide technical support to the WWF for strengthening sector coordination. A Forest Investment Program (FIP) is being developed by the World Bank and other DPs, including DFID; a coordination mechanism would be essential in starting policy dialogue with the Government on this initiative. The main institutional partner for the forestry sector is MITADER, which was previously part of MASA; some areas of responsibility, such as forestry plantations, have yet to be clearly delegated.

Public sector inter-ministerial coordination. Concerns have been raised about the effectiveness of public sector inter-ministerial coordination on climate change. The National Council for Sustainable Development (Conselho Nacional de Desenvolvimento Sustentável, CONDES) is the institution within the GoM that should be coordinating cross-sector dialogue on environmental policy, including climate change, conservation, and reforestation. Previous assessments, however, have concluded that it has yet to fulfil this mandate.27

38. Conclusions. The current structure and functions of the ECCWG appear to be fulfilling its core mandate for donor coordination. There may be untapped potential, however, in expanding the role of the working group to include policy dialogue with the GoM.

39. Recommendations

(a) Expand the mandate of the ECCWG to allow for policy dialogue, particularly around forest management and climate change, that would help direct policy discussions and expand engagement with Government partners.

(b) MICOA should take a more proactive role in guiding the agenda of the working group to address sector priorities, as well as discuss the possibility of pooled funding mechanisms. Strengthened leadership from the Government could help ensure that donor investments are aligned with the GoM’s planning and priorities.

27 BTI 2016. Available athttps://www.bti-project.org/fileadmin/files/BTI/Downloads/Reports/2016/pdf/BTI_2016_Mozambique.pdf.

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TABLE 6: ENVIRONMENT AND CLIMATE CHANGE PROJECTSa

Donor Name Project Title Total Budget

DANIDA Administration and Finance 0.2Cooperation 0.2Environmental Impact Assessment 0.2Environmental Management 0.7Human Resources 0.2Planning and Studies 0.4Planning and Territorial Planning 0.3Promoting Mechanisms of Adaptation and Mitigation to Climate Change 0.1

Japan (JICA) Project for the Capacity Enhancement of Meteorological Observation, Weather Forecasting and Warning

1.4

Assistance for Enhancement of Institutional Capacity to Manage Water Related Disaster Risks in Mozambique

1.4

The Project for Promotion of Sustainable 3R Activities in Maputo 3.8World Bank Technical Assistance for Climate Change 0.6Grand Total 9.4

Note: Total investments over US$100,000, in US$, millions. a. As no projects over US$1 million were found for this sector, table presents projects over US$100,000.Total budget calculated as the sum of 2014 and 2015 budgets, retrieved from e-SISTAFE and the BOOST database (project dates unknown). These may be lower than overall project budgets. US$ calculated based on yearly exchange rate from original MZN.

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V: Fisheries

40. Background. Mozambique has a long history of donor support in the fisheries sector, with cooperation with Norway starting after independence in 1975. The fisheries sector had a predominant role after independence until the end of the civil war, as a major contributor to public revenues and source of subsistence for scattered coastal populations. The sector’s relative socioeconomic importance decreased as the economy took off following the formal end of hostilities; however, it remains important for coastal populations, while the industry’s contribution to economic growth remains somewhat untapped. That being said, the small number of DPs operating in the sector simplifies coordination between DPs and the GoM.

41. Objective. The objective of the Fisheries Donor Coordination Meetings is to share information on DP projects and activities. DPs have also explored questions on how to improve the results of programs during such meetings.

42. Structure. The Ministry of Fisheries,28 which manages departments and institutes on policy, fisheries management, and the promotion and development of fisheries, was responsible for coordinating alignment of DP projects with Government priorities. Activities within the fisheries sector are made in alignment with the Fisheries Master Plan II 2010–2019. Donor coordination in the fisheries sector was until recently done through two main groups: National Fishery Coordination, a donor-government coordination body, and the Fishery Donor Coordination Meetings, which are organized by DPs. Norway chairs the donor coordination efforts within the sector, which has 16 participating DPs. Other key DPs include Iceland, JICA, the European Commission (EC), International Fund for Agricultural Development (IFAD), Belgium, and AfDB. The ToR for the coordination group was developed, providing guidance for three working group meetings per year with the Ministry of Fisheries’ Permanent Secretary; annual meetings to review the Economic and Social Plan (Plano Económico e Social, PES); joint missions; and ad hoc task forces. In practice, meetings have not been regular and are called usually on an ad hoc basis during DP missions.

43. Financing coordination. In 2013, DPs had 16 projects with a total of US$105 million in support of the sector.29 Norway is a lead DP in the fisheries sector, leading the Support to the Fisheries Sector of Mozambique project (2013–2017), with joint funding from Iceland and the GoM. Norway and Iceland had previously managed a common fund; however, there are no overall SWAp coordinating efforts in the sector. Individual DP projects are tracked through the donor coordination group with a spreadsheet that is circulated in the group. The Fisheries Development Fund, a financial institution to provide credit to fisheries, had previously collected information on external partner investments, but it has not been active in this role in recent years.

44. Additional coordination mechanisms. As part of decentralization, the responsibility for implementing fisheries activities has devolved to district administrations and the District Services of Economic Affairs (Serviços Distritais das Atividades Económicas, SDAE). The

28 The Ministry of Sea, Internal Waters, and Fisheries (Ministério do Mar, Aguas Interiores e Pescas, MIMAIP) replaced the Ministry of Fisheries; however, these arrangements have yet to be confirmed.29 Program Document Common Fund, Support to the Fisheries Sector of Mozambique 2013–2017. Available at http://www.iceida.is/media/verkefnagagnabanki/Support-to-the-Fisheries-Sector-of-Mozambique-2013-2017---Programme-Document-Common-Fund.pdf.

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Ministry of Fisheries had been active in trying to strengthen SDAE capacity on fisheries, and recent years have seen increasing coordination taking place between partners and the Government at the district level.

45. Conclusions. Public sector leadership in the fisheries sector, which is linked to institutional capacity, is limited. DPs agree that this needs to be strengthened; however, it is unclear what they can do without a more general commitment from the GoM.

46. Recommendations

(a) Hold more regular, structured meetings of the Fisheries Donor Coordination Group to improve organization of the sector and better engage partners on policy issues, addressing the limited engagement of DPs on policy issues.

(b) The Fisheries Donor Coordination Group should establish stronger connections to other groups, including agriculture and conservation, given the important role of fisheries in the strategies of other sectors (such as PNISA for agriculture).

TABLE 7: FISHERIES PROJECTS


Active ProjectsIFAD/EU Aquaculture Promotion Project (PROAQUA) 2013–2017 3.3IFAD/OFID/EU Artisanal Fisheries Promotion Project (PROPESCA) 2011–2018 57.9The Norwegian Ministry of Foreign Affairs

Support to the Fisheries Sector of Mozambique 2013–2017

2013–2017 30.2

World Bank/DGF Global Partnership for Oceans (South West Indian Ocean) 2013–2016 1.1World Bank/Japan Social Development Fund (JSDF)

Community-Based Coastal Resource Management and Sustainable Livelihoods (PPACG)

2010–2015 1.9

Active Total 94.4Pipeline ProjectsWorld Bank/GEF First South West Indian Ocean Fisheries Governance and

Shared Growth (SWIOFish1)2015–2021 37.0

World Bank/JSDF Aquaculture and Climate Change Tentatively 2015–2020

3.0

World Bank/Nordic Development Fund (NDF)

Aquaculture and Climate Change Tentatively 2015–2020

4.7

Artisanal Fisheries and Climate Change 2015–2018 3.2Pipeline Total 47.9Fisheries Total 142.2

Note: Total investments over US$1 million, in US$, millions.

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VI: Health

47. Background. DP coordination in Mozambique’s health sector is mainly focused around the Health SWAp. The health sector receives high levels of external assistance, as well as a large variety of DP and NGO implementers of health programs. Despite this coordination challenge, the Health SWAp is a well-defined, organized system to coordinate among DPs and between DPs and the Government. The SWAp includes 26 DPs, 14 of which also originally joined in the common funding mechanism, ProSAUDE. Annual partner contributions to the Health SWAp are tracked in the External Funds Survey (Inquérito dos Fundos Externo, IFE), an annual data collection effort by MISAU to capture DP financial commitments and disbursements in the health sector; the IFE has been ongoing since 2007. Commitments, investments, and projects are tracked annually and reported as part of an Annual Joint Evaluation.

48. Objective. The objective of the Health SWAp is to support coordination across Government, DPs, and NGOs to implement the Health Sector Strategic Plan (Plano Estratégico do Sector da Saúde, PESS) 2014–2019, which aims to gradually transition to universal health coverage. The SWAp also aims to reduce donor fragmentation and off-budget spending, although recent worries about the integrity of the Government’s PFM system and procurement processes have led several DPs to pull out of the common fund mechanism.30

49. Structure. The key partner institution for health sector coordination is MISAU. The Health Partners Coordination Framework provides the basic framework for formal DP coordination in the health sector. Meetings are held at three levels: (a) working groups and ad hoc task groups, which are chaired by MISAU Directors and Department Heads;31 (b) Joint Coordination Committee meetings that meet every 1–2 months, chaired by MISAU’s Permanent Secretary;32 and (c) a Sector Coordination Committee, which meets biannually, is chaired by the Minister of Health, and co-chaired by a representative from the DPs’ working group. The sector also has a Health Partners Group, specifically for intra-donor coordination, which is currently chaired by USAID and co-chaired by the UNFPA. The Health Partners Group chair position rotates every two years.

50. Financing coordination. Health sector funding is either channeled through PROSAUDE or into vertical projects (on-budget and off-budget). Harmonizing procedures has been a challenge within the sector; despite donor commitments, the common fund has declined from US$100 million, at the start of the program, to US$35 million currently, with more funding now channeled through vertical projects. In 2013, 33 percent of external health financing was off-budget.33 Despite the challenges of the common funding mechanism, however, the SWAp has provided a strong policy coordination mechanism for DPs. PROSAUDE partners are currently

30 Of the original 14 members of PROSAUDE, the SWAp’s common funding mechanism, only 5 are currently contributing to the common fund.31 Working group meetings provide forums to discuss thematic and policy issues within the health sector. Current working groups include (a) Human Resources for Health (co-chaired by DFID); (b) Medicines; (c) Administration and Financing Framework (co-chaired by Canada); and (d) Planning, Infrastructure, and Monitoring and Evaluation (co-chaired by the World Health Organization [WHO] with support from Canada). Co-chairing roles at the working group level have no set time limit or schedule for rotation. 32 This group includes the Heads of Directorates and Departments, as well as representatives from the DP working groups. Issues discussed include human resources, administration, planning, monitoring and evaluation, and endemic diseases.

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working on a manual to provide guidance on sector investments for partners. IFE is the central data collection mechanism for all health partners, both those contributing to PROSAUDE and external projects, although some challenges to the data coverage and quality remain. The system allows for the alignment of expenditures to specific health categories (defined in PESS), provision of information on current and future investments, and management of data quality, such as the potential for project duplicates. An effort was made among PROSAUDE partners to encourage the use of ODAmoz to collect and share data on DP commitments and investments; however, many DPs resisted this effort. Concerns were raised about the purpose of the database, technical details about entering information, and potential overlap with existing reporting requirements for including projects in the Government’s e-SISTAFE.


HIV/AIDS. As an important subsector for health, HIV/AIDS has a separate coordination mechanism that links to the Health SWAp. The Pre-Partners Forum is a partners group for bilateral and multilateral DPs, civil society, and the private sector. The Forum has three levels of coordination, with similar engagement on policy and technical discussions as the overall health sector. The National Council for Sustainable Development (Conselho Nacional de Desenvolvimento Sustentável, CNCS) leads coordination in this area, which is included in the overall framework of the Health SWAp.

Nutrition. A separate working group on nutrition issues coordinates closely with health sector partners, along with the agriculture and other sectors. This working group is also mentioned under the Agriculture section of this report.

NAIMA+. Many international NGOs and local NGOs coordinate activities in the health sector through the network of NGOs working on health and HIV. This network is a coordination and lobbying body and does not implement programs.

52. Conclusions. While the Health SWAp is highly developed, harmonizing donor procedures and activities remains a challenge. Additionally, the current system for tracking health investments, IFE, functions effectively, but there are limitations to the data collected.

53. Recommendations

(a) Adjust or expand IFE categories to use more than just PESS fields, to better allow for reporting of provincial and district activities. As is, IFE data cannot distinguish funding channeled through NGOs to subnational levels or direct funding provided to subnational spending units.

(b) Link IFE data to government accounting systems to facilitate its use by MISAU during annual planning and budgeting processes.

(C) Strengthen monitoring and evaluation capacity in the sector, as approximately 70 percent of all spending is implemented directly by DPs.

33 Health Financing Profile for Mozambique 2016. Available at http://www.healthpolicyproject.com/pubs/7887/Mozambique_HFP.pdf.

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TABLE 8: HEALTH PROJECTS

Donor Project Title TimelineTotal

BudgetActive ProjectsCanada AA-PROSAUDE 2007–2017 134.3

Health Service Delivery Project 2010–2016 11.1Improving Integrated Local Services MNCH 2013–2017 4.5Maternity Center of Excellency 2014–2016 3.0

Clinton Health Access Initiative (CHAI)

Point of Care: Improving Diagnosis 2013–2019 5.6Supply Chain 2008–2016 1.6

Denmark AA-PROSAUDE 2007–2017 58.4RNH-SPS Phase V - Capacity Building Central Level 2012–2017 23.6RNH-SPS Phase V - Citizens’ Engagement Fund 2012–2017 11.9H_HSPS IV - Support of Infrastructure Development 2006–2016 10.4RNH-SPS Phase V - Capacity Building Provincial Level 2012–2017 10.1RNH-SPS Phase V - Multisectoral Support to Health 2012–2017 2.7RNH-SPS Phase V - Support to Nutritionist Capacity 2012–2017 1.3

EU Institutional Development to the CNCS (Phase 2) 2014–2016 7.6Upgrading Infrastructure in Manhiça (Gaza) and Gile (Zambezia) 2014–2016 6.0Support to Development of Human Resources in the Areas of Health Management and Administration

2012–2016 3.7

Flanders AA-PROSAUDE 2007–2020 28.2Focused Contribution to Health System Strengthening 2013–2016 2.1Building Knowledge for Improved Quality of Services and Community Involvement to Increase Use of Family Planning

2013–2017 1.9

Building Institutional Capacity at INS to Strengthen the Evidence Base of Public Health System in Mozambique II

2014–2016 1.5

Innovations in Maternal and Neonatal Health 2016–2018 1.3Accelerated Detection of TB 2014–2017 1.1

France Project to Reinforce Capacity in the Anesthetic and Resuscitation Sector

2012–2016 1.3

Germany (GIZ) HIV Mozambique 2014–2016 5.8The Global Fund to Fight AIDS, Tuberculosis and Malaria (GFTAM)

Reinforcing the Collaboration for a Better HIV and TB Response in Mozambique

2015–2017 436.6

Accelerating and Strengthening Malaria Control in Mozambique 2015–2017 263.0Reinforcing the Collaboration for a Better Response to HIV and TB in Mozambique

2015–2017 27.5

Strengthening Health Systems and Communities through Government-Civil Society Partnership R8

2010–2017 21.2

Irish Aid AA-PROSAUDE 2007–2016 141.0Niassa PES Support (HEAMONIASSA) 2012–2016 2.0

Italy 2009–2016 1.9Support to Development of Health Human Resources 2009–2019 18.7

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BudgetIntervention to Contribute to Training, Research, and Health Care in Beira MDG 4, 5 e 6

2015–2017 3.3

Every Newborn - Protection of Maternal and Newborn Health in the Province of CD

2015–2017 2.5

Japan (JICA) Construction of Infulene Health Training Institute 2013–2016 27.4Construction of Nacala Health Training Institute 2015–2018 27.3Project for Strengthening Pedagogical and Technical Skills Health Personnel in Mozambique (ProFORSA II)

2016–2019 3.1

Netherlands (DGIS)

AA-PROSAUDE 2012–2016 57.6Social Mobilization Youth 2013–2016 8.8

Spain (AECID) AA-PROSAUDE 2007–2017 25.4Multiannual Convention – Support for CISM in the Generation of Scientific Evidence

2014–2017 2.9

Multi-Year Agreement for the Promotion and Strengthening of Primary Health Care

2014–2017 2.9

Bilateral Multi-Annual Grant – Support for Research 2015–2018 2.3Switzerland (SDC)

AA-PROSAUDE 2007–2016 47.6Health Service Delivery Program (HSDP) 2009–2016 3.4Citizens Demand for Better Public Health Service Delivery 2013–2017 1.0

DFID AA-PROSAUDE 2012–2016 21.1Support to PSI Mozambique to Implement its Main Activities 2014–2016 4.9

UNFPA MOZ08MOH/FPRHCMOZ 2012–2016 10.4MOZ08CDL 2015–2018 10.1MOZ08PSI 2012–2016 1.7

UNICEF Children’s Health and Nutrition 2012–2016 98.6United States (DOD)

Support the Mozambican Armed Forces in the Fight Against HIV/AIDS

— 5.3

United States (HHS/CDC)

Rapid Expansion of ART for HIV Infected Persons in Mozambique for PEPFAR

2018–2011 61.5

Technical Assistance to the MOH 2011–2016 50.6Supporting to Implement and Expand Comprehensive HIV/AIDS Care

2011–2016 29.6

Support Indigenous Organizations to Implement and Expand HIV/AIDS Prevention

2011–2016 28.8

Avante Zambézia: Technical Assistance to the MOH for HIV 2012–2017 27.3ICAP TA 2011–2016 25.2Strengthening the National Institute of Heath in Mozambique 2011–2016 9.3UCSF SI HQ 2014–2015 1.7UCSF SI Technical Assistance 2015–2016 1.4Improving Implementation of Programs for Care and Treatment on HIV/AIDS in the Republic of Mozambique

2012–2017 2.5

ICAP Capacity Building Zambezia — 23.1National Public Health Reference Library — 3.4

United States TWINNING Center — 1.5

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Budget(HHS/HRSA)United States (USAID)

Central Contraceptive Procurement 1993–2018 17.2Health and Social Welfare Systems Strengthening Program (HSWSS)

2012–2017 11.2

Food and Nutrition Technical Assistance III (FANTA II and III) 2010–2017 3.5Construction of 11 Rural Health Centers — 6.2Construction of Rural Health Centers — 4.8World Food Program — 2.4REPSSI PSS Course — 2.3Construction Oversight 16 HC Centers and 3 Warehouses — 1.6Systems for Improved Access to Pharmaceuticals and Services (SIAPS)

—1.3

Promoting the Quality of Medicines (PQM) — 1.1Strengthening Health and Social Services System — 1.0Health Service Delivery Pilot Project (HSDP) — 1.4

World Bank Health Service Delivery Pilot Project (HSDP) 2013–2016 62.6Health Service Delivery Pilot Project (HSDP) — 1.4

World Food Programme

Initiative for the Prevention of Chronic Malnutrition 2013–2017 19.0Prevention of Chronic Malnutrition 2013–2017 6.4

WHO (UNFPA/ KIMCHI/Republic of Korea)

Health System Strengthening2015–2018 1.1

WHO (UNICEF/ DFATD/Canada)

Civil Registration and Vital Statistics (CVRS)2016–2020 1.6

Active Total — — 2,029.0Pipeline Projects —UNICEF Children’s Health 2017–2020 38.2

Nutrition 2017–2020 19.9Pipeline Total 58.1Health Total 2,087.2

Note: Total investments over US$1 million, in US$, millions.GIZ = German Agency for International Cooperation (Deutsche Gesellschaft fur Internationale Zusammenarbeit); SDC = Swiss Development Corporation.

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VII: Infrastructure (Roads)

54. Background. Donor coordination on transportation issues is conducted through two main coordination mechanisms: a donor coordination group and the coordination for the road sector SWAp. While there is no overall transportation strategy for the country, coordination on roads is more structured and institutionalized. The Integrated Road Sector Program (Programa Integrado do Sector de Estradas, PRISE) was established in 2006 as a SWAp to develop the road network, including capital investments and maintenance operations.34 PRISE’s first three-year rolling investment program (2007–2009) had more than US$1 billion in commitments from the 19 DPs.35 PRISE functions as a critical coordination mechanism for DPs to discuss sector activities, as well as a forum to discuss plans with Government representatives at the provincial level. A review of the Road Sector Strategy (RSS) in 2014 showed the program meeting targets for capital investments on the primary road network. In addition to PRISE coordination, DPs also have a separate coordination group, the Road Sector Working Group (RSWG), which was established as part of the GBS process.36

55. Objective. The objective of PRISE is to support the implementation of priorities in the RSS.

56. Structure. PRISE’s main coordination mechanism is biannual meetings of DPs and Government representatives to review plans, progress, and sector challenges. PRISE is implemented by the National Roads Administration (Administração Nacional de Estradas, ANE), a semiautonomous institution within the MOPH. ANE takes an active leadership role in ensuring DPs are aligned with sector priorities. As part of Mozambique’s overall decentralization strategy, ANE has established provincial offices that have development provincial road strategies, which can also be the basis for DP support.37 Reporting on PRISE investments is coordinated by an independent state-owned enterprise, Maputo Sud. In addition to PRISE coordination, the RSWG also holds 1–2 additional annual meetings, with comments from DPs consolidated by the Chair and presented during PRISE coordination meetings. The EU currently chairs the donor group, which has also been previously chaired by the World Bank and AfDB.38 Nontraditional donors have also made significant investments in the sector, such as the US$1.2 billion invested in the sector by China; however, these investments are less coordinated with PRISE or the donor coordination group.

57. Financing coordination. The Road Fund within the MOPH is responsible for PRISE resource allocation and financial management. It tracks all commitments and investments

34 PRISE had commitments from DPs on a common sector policy, strategy, and investment plan; common financing arrangements for overhead and maintenance, common financial management, and procurement procedures; and a common reporting and monitoring system with joint supervision missions.35 PID, Roads and Bridges Management and Maintenance Project. Available at http://documents.worldbank.org/curated/en/367031468321282582/text/Project0Inform1isal0Stage0April1207.txt.36 This working group is sometimes called the Transportation Sector Working Group. 37 EU’s Terms of Reference for the 11th EDF, 2014. Available at http://www.taseuro.com/images/joomcareer/attachment/165/151201_TOR_Pre-F_Study_for_11th_EDF_Rural_Roads.pdf.38 DP members of the RSWG include the World Bank, AfDB, the Islamic Development Bank (IsDB), Millennium Challenge Corporation (MCC), DFID, EC, JICA, Republic of Korea’s Export-Import (EXIM) Bank, the United Nations (UN), USAID, and bilateral agencies such as Sweden and Portugal.

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through e-SISTAFE. For DPs, the PRISE SWAp is the main financial coordination mechanism. Since establishment, however, actual investments have been below commitments, and many programs are implemented through tradition project arrangements: as of 2010, only 5 percent of funding for PRISE is through the common fund.39 The PRISE financial mechanisms faced some challenges in 2012, especially in procurement, that caused implementation delays. These arrangements were restructured, and the scope narrowed, which allowed the PRISE process to continue. Some DPs have also failed to meet their financing commitments to PRISE, forcing the Government to turn to alternatives and private sector funding to fill gaps.

58. Additional coordination mechanisms. PRISE has strong coordination with the MOPH and the MEF, both of which sit on the board of the Road Fund. Connections to other line ministry sectors are more limited, however, even in sectors that have important links to transportation development, such as rural development, agriculture, and conservation.

59. Conclusions. Challenges exist related to the coordination of investments with nontraditional donors, as well as increasing PPPs and whether PRISE is capturing contingent liabilities related to these investments.

60. Recommendations

(a) ANE should encourage nontraditional donors to coordinate with the SWAp.

(b) ANE and DPs should collaborate to channel more sector funding through the common fund. The World Bank transportation team is working with the BOOST team on conducting a Geographic Information System (GIS) mapping of PRISE financial data, allowing real-time reporting of PRISE investments, which may strengthen DP awareness and coordination across the sector.

TABLE 9: ROAD PROJECTS

Donor Project Title BudgetAfDB Asphalting of the National Road N13: Cuamba-Mandimba-Massangulo 34.5

Improvement of Road N14: Lichinga Litunde and the Construction of 7 Bridges in Troco Litundo and Marrupa 14.1

Improvement of the N13 Road: Nampula - Cuamba 18.4Improvement of the N14 Road: Montepuez-Ruaca - Lot A 14.1Preparation of Projects 2.2

EC Road Improvement N11: Milange - Mocuba 37.1EXIM BANK Improvement of the N13 Road: Nampula - Cuamba 4.9FCESTRADA Consulting and Studies 1.1

Maintenance of District Roads 9.9Maintenance of Paved Roads 4.7Support to the Private Sector 1.3

FED National Road Aspects N11: Mocuba-Milange Faseii 15.4Road Improvement N11: Milange - Mocuba 9.4

39 The OECD’s Country Program Review 2010. Available at https://www.oecd.org/countries/mozambique/46973267.pdf. Initial commitments to the pooled fund were larger—when established, DP contributions were to be around US$709 million of the total US$1 billion, of which US$114 million would be channeled through a pooled fund and the remaining funding implemented through traditionally dedicated projects.

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Donor Project Title BudgetSupport to the Private Sector 1.2

FIDA Rehabilitation of Regional Roads 17.2IND Rehabilitation of N6C Tica-Buzi'Nova Sofala National Highway 33.4Japan (JICA) Montepuez- Lichinga Road project (co-financed with AfDB) 30

Nampula- Cuamba Road upgrading project (co-financed with AfDB and KEXIM) 57Mandimba-Lichinga Road upgrading project (co-financed with AfDB) 65Project for Construction of Bridges on the Road between Ile and Cuamba 48

Republic of Korea

Asphalting of the National Road N104 Nampula-Namtil 2.4Improvement of the N13 Road: Nampula - Cuamba 1.9

OPECPRPES Economic Infrastructures-Improvement of Road Accesses-Civil Works 4.4Portugal Construction of the New Tete Bridge 34.0

Improvement of the N380 Road: Moçmbua Da Praia - Namoto 21.6Improvement of the Road Magoe - Mucumbura 7.8Improvement of the Road N221: Canicado - Chicualacuala 14.3Rehabilitation of Regional Road R601: Estema-Maroeira 10.0Rehabilitation of the N380 Road: Macomia-Oasse 4.2Road Improvement N103-R657: Magige - Cuamba 14.6Road Repair N260: Chimoio - Chipungambera 15.4

UEPRPESCA Economic Infrastructures-Improvement of Road Accesses-Civil Works 3.4World Bank Consulting and Studies 2.3

Costs and Administrative Support 1.8Emergency Maintenance 73.6Formation 2.1Preparation of Bridge Projects 2.9Preparation of Projects 11.8Rehabilitation of Est. Reg. R604: Ulongue-Domue-Furancungo-Poles Cresc. 7.4Rehabilitation of Road Reg. R702: Crz N12-Nacala Olish-Polos Crec. Integrated 4.3Rehabilitation of Regional Road R605: Crz N304 (Mphulu) -Tsangano-Ulongue 6.8Technical Assistance 1.3

Roads Total 660.2Note: Total investments over US$1 million, in US$, millions.Total budget calculated as the sum of 2014 and 2015 budgets, retrieved from e-SISTAFE and the BOOST database (project dates unknown). These may be lower than overall project budgets. US$ calculated based on yearly exchange rate from original MZN.

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VIII: Public Financial Management

61. Background. Following the approval of the PFM Reform Law (SISTAFE) in 2002, much of the technical assistance to the sector has been coordinated by DPs to support effective implementation of the law, including the IFMIS, e-SISTAFE. In 2012, the Government adopted the PFM Vision 2025, which provides strategic orientation for PFM reform processes. PFM reforms are also closely linked to the PAP process and the push for increased use of GBS, as many DPs require strong PFM systems as a prerequisite for engaging in GBS.

62. Objective. The objective of the PFM Coordination Group is to coordinate support for PFM systems and harmonize donors’ engagement with the GoM.

63. Structure. The PFM Coordination Group is chaired by the GoM’s Treasury and one DP, currently the SWE. The IMF also currently serves as co-chair. The group meets regularly to share information, prevent duplication in projects, and coordinate long-term technical assistance. Eighteen DPs currently participate in the forum. The PFM Coordination Group also has subgroups on budget analysis, e-SISTAFE, procurement, audits, and decentralization and service delivery.

64. Financing coordination. Information on ongoing and pipeline projects is collected in an Excel spreadsheet that is circulated among DPs. The most recent mapping, conducted in 2015, estimates over US$100 million in funding for 2014–2017.40

65. Additional coordination mechanisms. PFM reforms are linked to line ministries and service delivery issues. Other sectors, such as health, also have subgroups on sector-specific PFM issues. Many DPs engaging with PFM issues are also members of relevant sector working groups to reinforce the links between upstream PFM reforms and downstream service delivery issues.

66. Conclusions. The PFM Coordination Group appears to fulfil its core function of coordinating DP activities; however, the financial tracking of projects could be improved.

67. Recommendations

(a) The PFM Coordination Group should establish expectations of more timely and disaggregated financial data on ongoing and pipeline projects.

40 European Union. 2015. Action Document for “Good Governance and Development Contract for the Republic of Mozambique.” Available at https://ec.europa.eu/europeaid/sites/devco/files/ad1-annex-1-mozambique-aap-2015_en.pdf.

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TABLE 10: PFM PROJECTS

Donor Project Title Total Budget

Denmark e-Tax project (GBS-Component 2) 1.8IMF Technical Assistance to Tax Authority and CEDSIF 1.8Tax Common Fund 5.3

DFID Support to the National Procurement System 5.8Public Investment and Fiscal Risks Management 1.0Tax Common Fund 8.2

EU PFM Support Program 1.9Rule of Law 4.8

Germany Tax Common Fund 2.7Tax Authority - Implementation of Corporate Plan 2011 - 2014 (PLACORII) 1.1

Italy SISTAFE Common Fund 1.6Norway SISTAFE Common Fund 3.9

TA Norwegian Oil Taxation Office 1.1Tax Common Fund 3.3

Sweden Tax Common Fund 3.1Switzerland Tax Common Fund 1.5

No title 1.3World Bank Cities and Climate Change Project 1.5

PFM for Results Program 50.5World Bank, DFID Mining and Gas Technical Assistance Project - MAGTAP 1.5PFM Total 103.7

Note: Total investments over US$1 million, in US$, millions. While total project timelines are not captured in the PFM database, yearly commitments are included, both for prior years and future years.CEDSIF = Center for the Development of Financial Information Systems.

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IX: Social Protection

68. Background. Coordination in the social protection sector is conducted through the Social Action Working Group (SAWG), convened as part of the GBS process. Previously, DPs had engaged in discussions about a potential common fund for the sector. As they came to an agreement on the appropriate sector approach, however, no common fund was ever established. The main government strategy on social protection is the National Strategy for Basic Social Security (ENSSB), which was developed in 2009. The key government institutions responsible for social protection are the Ministry of Gender, Children, and Social Welfare (MGCAS), specifically the National Institute for Social Action (INAS). DPs also have an informal donor coordination group, chaired by DFID.

69. Objective. The objective of the SAWG is to provide an information-sharing platform for DP activities. Policy dialogue has also been a strong aspect of previous meetings; however, key differences emerged between DPs on their policy approaches.

70. Structure. The SAWG meets every 1–2 months, on an ad hoc basis. Main meetings are held jointly between the Government and DPs, with additional meetings held for coordination among DPs. Meetings are currently chaired by MGCAS and co-chaired by UNICEF, with plans for DFID to take on the co-chair role in 2018; the group has a system for rotating the chair position between organizations every two years. Key DPs include the WFP, DFID, Netherlands, Sweden, USAID, ILO, EU, Irish Aid, and civil society representatives.

71. Financing coordination. Information on sector projects are coordinated on an annual basis by the working group chairs. Information is collected on committed, disbursed, and undisbursed funding. While it is not yet collected, some DPs also see the need to collect information on the share of operational costs associated with the different DP program models. Financing coordination also takes place between partners who are part of the UN Joint Program. MGCAS also plays a role in coordination projects as part of the annual planning process.


UN Joint Program Coordination. Several DPs that participate in the UN Joint Program also have a separate coordination mechanism specific to that program.

73. Conclusions. Without strong leadership from the Government, many DPs are pursing separate approaches to social protection programs, for example social assistance subsidies, employment generation, targeting systems, or transfer systems.

74. Recommendations

(a) The GoM should exert stronger leadership to ensure that differences among DPs no longer stymie the potential for the SAWG to play an effective role in sector policy dialogue. Most DPs are increasingly aligning the design of new interventions to the national priorities set under the ENSSB, as a result of the improved sector coordination led by MGCAS. However, alignment to Government priorities can

34


have limited benefits if a harmonization in approaches from DPs does not happen. This has created significant fragmentation and limited sustainability of interventions.

(B) The SAWG should encourage INAS and DPs to collaborate in the collection and management of key missing data needed to establish social protection systems, such as consumption measures and other poverty measures, while also considering the climate vulnerability dimension.

TABLE 11: SOCIAL PROTECTION PROJECTS


Active ProjectsDFID Support to Social Protection Program (Phase 1) 2008–2016 31.2Irish Aid Contribution to Improved Quality of Social Protection and Social

Welfare Services for the Poorest and Most Marginalized Children in Mozambique

2012–2016 1.2

Netherlands Support to PSSB and Institutional Capacity 2012–2016 10.5Sweden Results-Based Financing for Economic Governance 2018–2021 2018–2021 17.4

Social Protection 2011–2016 2011–2016 13.5Social Protection 2017–2020 2017–2020 5.5

EU Nutritional Support 2017–2021 23.6Expand Access to Social Protection Program 2015–2019 1.5Expand Social Protection Program 2016–2019 2.0

Active Total 106.4Pipeline ProjectsDFID Climate Sensitive Public Works 2016–2020 9.8

Contingency Fund 2016–2020 7.5Support to Social Protection Program (Phase 2) 2016–2020 9.8

EU Starting Identification and Design 2017– 10.7Supporting Civil Society in Social Protection 2018–2022 2.7

World Bank Social Protection Project (P129524) 2013– 50Pipeline Total 90.5Social Protection Total 197.0

Note: Total investments over US$1 million, in US$, millions.

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X: Water and Sanitation

75. Background. Donor coordination in the sector is conducted through multiple coordination forums. GAS was established as part of the GBS and PAP process, which includes bilateral donors, multilateral organizations, and large NGOs.41 The sector is divided into two key subsectors supported by DPs: water supply and sanitation and integrated water resources management. In 2010, DPs formed a SWAp to address rural water supply and sanitation, the National Rural Water Supply and Sanitation Program (Programa Nacional de Abastecimento de Água e Saneamento, PRONASAR). PRONASAR includes a common fund to pool donor funding, which initially had commitments from the Netherlands, DFID, UNICEF, Canada, and SDC.42 PRONASAR also includes Joint Annual Reviews to assess sector performance. In addition, a sector donor coordination group, chaired by DFID, meets twice a year to discuss sector policies and budget allocations. Information on the overall functioning of the water and sanitation system is collected in the Information System for Water and Sanitation (SINAS); however, this tool is not updated regularly by provincial and district authorities.

76. Objective. The objective of GAS is to align DP support with the Government’s PQG and the 1995 National Water Policy and the National Water Development Program (NWDP), as well as to discuss and evaluate sector progress and review key sector issues.

77. Structure. GAS is chaired by the National Directorate of Water Supply and Sanitation (DNAAS) in the Ministry of Public Works (Ministério das obras Públicas, MOPHRH) and is currently co-chaired by DFID. The forum meets at least once a month and is a forum for Government-sector DPs’ discussions around development progress in the sector. GAS has two subgroups: water supply and sanitation is coordinated by UNICEF and the subgroup for integrated water management is coordinated by the Netherlands and the South Korea International Cooperation Agency (KOICA) since 2016.

78. Financing coordination. DP commitments and disbursements are not tracked within GAS or any other donor coordination mechanism nor are DPs using ODAmoz. The PRONASAR common fund does provide a coordination mechanism for participating DPs; however, overall contributions to the common fund have been decreasing. In 2015, only US$3.5 million was contributed by DPs, a 53 percent decrease from the 2014 levels.43

79. Additional coordination mechanisms. As part of NWDPII, a donor coordination group was established to conduct a joint analysis of water objectives in Mozambique’s Action Plan for the Production of Absolute Poverty (Plano de Acção para a Redução da Pobreza Absoluta, PARPA). A few coordination meetings on this project have been held with the participation of the World Bank, AfDB, the Netherlands, DFID, and France. An additional group on Hydraulic

41 Key partners include the SDC, Canada, JICA, the Water and Sanitation Program of the World Bank, and UNICEF. International NGOs include CARE, Helvetas, and WaterAid; the private sector company Cowater is also involved. 42 AfDB and other partners also provided additional funding outside of the common funding mechanism. See AfDP’s PRONASAR Program Document:http://www.afdb.org/fileadmin/uploads/afdb/Documents/Project-and-Operations/Mozambique_-__NRWSSP_.pdf.43 UNICEF Annual Report 2013. Available at https://www.unicef.org/about/annualreport/files/Mozambique_2015_COAR.pdf.

36


Resources (GRH) was established in 2016, which includes bilateral donors (JICA, World Bank, KOICA, DFID, and GIZ).

80. Conclusions. Current coordination mechanisms do not appear to be sufficient to support harmonization of DP activities in the water sector.

81. Recommendations

(a) DPs and the DNAAS should coordinate on the potential creation of a SWAp, as current coordination mechanisms do not appear to be sufficient to support the harmonization of DP activities.

(b) In the absence of other viable financial coordination mechanisms, DPs should be encouraged to engage and support the PRONASAR common fund mechanism, given its success in improving coordination.

(c) The DNA should provide clearer guidance and leadership to ensure that DPs do not pursue their own agendas instead of aligning with Government priorities.

(d) GAS should encourage better data reporting by DPs, as well as by provincial and district offices, on water supply, coverage, and completed works, as the sector’s monitoring and evaluation systems are weak.

(e) Relatedly, GAS should seek out additional support to strengthen the Government’s information collection and use, to improve the effectiveness of donor engagements.

TABLE 12: WATER AND SANITATION PROJECTS


AfDB National Development Program of the Water Sector II 15.0Project of Water Supply and Sanitation the Cities of Lichinga and Cuamba 3.6Project of Water Supply Sanitation - Nampula and Zambezia 15.0Rehabilitation of Massingir Dam - Emergency Company 31.2Rehabilitation of Massingir Dam - Supplementary Company 10.4

Arab Bank for Economic Development in Africa

Urban Sanitation 12.2

BID Water Supply and Rural Sanitation for Cabo Delgado and Gaza 7.7Canada Water and Sanitation - Inhambane 1.0Dutch Government Institutional Capacitation Project of Aias and Operators Under

Development1.5

National Development Program of the Water Sector II 2.5FCPRONASA National Program for Water Supply and Rural Sanitation (Pronasar) 14.4AFD National Development Program of the Water Sector II 11.0India Rural Water Development Program 1.4Italy Environmental Sanitation Program 16.9Japan (JICA) The Project for Sustainable Rural Water Supply, Sanitation and Hygiene

Promotion in Niassa Province7.9

KfW Cities and Climate Change 4.3National Bank for Construction of Mojba Major Dam 11.9

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Economic and Social Development (Brazil)UNICEF Sanitation and Hygiene Water Program 3.7World Bank Cities and Climate Change 18.8

National Development Program of the Water Sector II 27.9Rehabilitation and Maintenance of Corumana Dam 1.2Water Supply and Sanitation in Small Cities and Villages (WASIS) 6.7

Water and Sanitation Total 226.3Note: Total investments over US$1 million, in US$, millions. Total budget calculated as the sum of 2014 and 2015 budgets, retrieved from e-SISTAFE and the BOOST database (project dates unknown). These may be lower than overall project budgets. US$ calculated based on yearly exchange rate from original MZN.

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Annex I: List of DPs Interviewed and Consulted

World Bank Andre Rodrigues Aquino, Senior Natural Resources Management Specialist, World Bank Eric Zapatero Larrio, Senior Social Protection Specialist, World Bank Humberto Albino Cossa, Senior Health Specialist, World Bank Iolanda Fortes, Senior Operations Officer, World Bank Jan Joost Nijhoff, Senior Agriculture Economist, World Bank Jordi Jose Gallego-Ayala, Social Protection Specialist, World Bank Kulwinder Singh Rao, Senior Highway Engineer, World Bank Odete Duarte Muximpua, Water Supply and Sanitation Specialist, World Bank Pedro Arlindo, Agriculture Economist, World Bank Ross Hughes, Senior Natural Resources Management Specialist, World Bank Xavier F.P. Vincent, Senior Fisheries Specialist, World Bank

Other Development Partners Akari Aoyama, Economic Cooperation, Embassy of Japan in Mozambique Alberto Musatti, Health PFM Advisor, Belgium Development Cooperation Andrea Rossi, Social and Economic Policy Advisor, United Nations Children's Fund Anouk Rutter, Governance Adviser, Department for International Development (DFID) Castro Camarada, International Affairs Representative, Food and Agriculture Organization of

the United Nations Clarisse Barbosa Fernandes, Advisor, Norway Elizabeth Dodds, Program Officer, Development Policy and Finance, The Gates Foundation Els Berghmans, Governance and Economic Program Officer, European Union (EU) Eva Kohl, Senior Agriculture Specialist, Austrian Development Agency Evelin Stettler, Head of Health Domain, Embassy of Switzerland Geert Anckaert, Economic Development and Governance, European Union (EU) Gerson Nombora, National Officer, United Nations Children's Fund Luca Monge Roffarello, Senior Economic Advisor, United Nations Development Programme Mamunune Agy, Project Manager, Belgium Development Cooperation Manuel Felipe, Economic Specialist, United Nations Development Programme Mayke Huijbregts, Child Protection Chief, United Nations Children's Fund Paulo Mole, Country Head, Alliance for a Green Revolution in Africa (AGRA) Silvia Bignamini, Monitoring and Evaluation Specialist, World Health Organization Victoria Arboleda, Social Protection Advisor, United Nations Children's Fund Yayoi Arima, Japan International Cooperation Agency (JICA)

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Annex II: Overview of Sector Working Group Data Collection Fields

TABLE 13: DATA COLLECTION FIELDS BY SECTOR PROJECTS

Type Field Ag. Cons. Edu. Fish. Health PFM Roads Soc. Prot.

Bas

ic P

roje

ct In

form

atio

n

Donor Type of Institution Project Name Start Year Signing Date End Year Duration Implementing Partner Location Col+ List List Col ListObjectives Status (Active, Pipeline) Comments Contact Information

Stra

tegi

c A

lignm

ent

PQG Alignment Inc* Sector Plan Alignment DAC Alignment

Fina

ncia

l Dat

a

Funding Type (Grant, Credit) One fieldAid Modality (Project, In Kind)

Total Budget (Donor Currency) Total Budget (US$) Total Budget (MZN) Yearly Budget (Donor Currency) Yearly Budget (US$) Inc Yearly Budget (MZN) Yearly Disbursements (Donor Currency) Yearly Disbursements (US$) Yearly Disbursements (MZN) On/Off Budget Inc On/Off CUT Inc Overhead Costs In-Kind Costs

Res

ult

s Beneficiaries Outputs

Note: Core project fields that could be included in a standardized template are highlighted in bold.* Inc - Field is included in the table but no data entered by donors.+Col - Project locations are marked in individual columns for each province.

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Annex III: Comparison of Aid Data Collection Tools

Estimates of total DP commitments vary by the aid data collection tool. Figure 1 presents a comparison of the four key data collection tools for donor commitments used in Mozambique: sector spreadsheets, e-SISTAFE,44 PAP donor commitments to sector common funds, and ODAmoz.45 This comparison is limited to three sectors (agriculture, health, and PFM), as most sector spreadsheets do not include annual estimates of donor commitments.

FIGURE 1: AID DATA TOTALS FOR DONOR COMMITMENTS IN 2015

Agriculture Health PFM0

50

100

150

200

250

300

Sector SpreadsheetsOn-Budget External Investments (e-SISTAFE)Common Fund Commitments (PAP)ODAMOZ

Tota

l Com

mitm

ents

in U

S$, m

illio

ns

Source: Author

44 Data presented is on initial allocations, or budgets, made in e-SISTAFE for external investment in the main partner ministry (Agriculture, Health, and Economy and Finance) in 2015.45 Data was extracted from ODAmoz using the related DAC codes: Agriculture (31*), Health (12* and 13*), and PFM (15120).

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Annex IV: Disaggregated Totals of Projects by Sector

TABLE 14: TOTAL COMMITMENTS BY SECTOR BY DONOR (ACTIVE AND PIPELINE)46

Sector Donor Total BudgetAgriculture AACID 1.5

AGAR 22.9Austria 4.0CESAL/AACID 0.3Cruz Roja Española/AECID 0.4European Union 99.1FAO 43.8Finland 15.2Hmana/AECID 0.2IFDC 4.5Italy 12.8JICA 24.0MSU (Michigan State University) 3.9Mundulide/AECID 2.4Spain 1.2Sweden 17.7

Agriculture Total 253.9Conservation AFD 14.3

AfDB, International Finance Corporation, World Bank 25.0Conservation International/Global Conservation Fund 1.0Italy 5.0JICA 7.8Switzerland 0.6UNDP 20.8USAID 19.8World Bank 139.8

Conservation Total 234.1Education Canada 33.3

DFID 50.9European Union 1.7Germany 18.9Ireland 2.0Italy 47.4JICA 25.0Multi-Donor Common Fund 585.8Sweden 29.0USAID 82.7

Education Total 876.7Environment and Climate Changea

DANIDA 5.0DFID 0.0JICA 6.6Spain 0.1World Bank 0.6

Environment and Climate Change Total 12.3

46 This summary table includes all project commitments, including those under US$1 million. Therefore, the totals for each sector will be slightly larger than the totals for individual sector tables, which include only projects over US$1 million.

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Sector Donor Total BudgetFisheries IFAD 62.1

The Norwegian Ministry of Foreign Affairs 30.2World Bank 50.8

Fisheries Total 143.1Health Canada 153.0

CHAI 7.2Denmark 118.4DFID 26.0European Union 17.4Flandres 39.2France 1.4Germany 5.8GFTAM 748.4Ireland 143.8Italy 26.9JICA 58.8Netherlands 66.4Spain 34.1Switzerland 53.3UNFPA 26.2UNICEF 157.2United States (DOD) 5.9United States (HHS/CDC) 268.0United States (HHS/HRSA) 1.5USAID 59.7World Bank 65.8WFP 25.4WHO 5.5

Health Total 2,115.3Public Financial Management

Denmark 10.0DFID 13.5DFID/The World Bank 1.0European Union 9.2France 0.5Germany 3.8Ireland 1.7Italy 1.6Norway 8.6Portugal 0.2Sweden 3.1Switzerland 4.2World Bank 56.1

PFM Total 113.2Roadsa AfDB 83.3

BID 1.0European Union 37.6EXIM BANK 4.9FCESTRADA 17.3FED 26.7FIDA 17.2FIDAPRPES 0.3IND 33.4

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Sector Donor Total BudgetJICA 190Republic of Korea 4.2OPECPRPES 4.4Portugal 121.8UEPRPESCA 3.4World Bank 114.7

Roads Total 660.2Social Protection

DFID 58.3EU 41.8Ireland 1.2Netherlands 12.0Sweden 36.4World Bank 50.9

Social Protection Total 200.7Water and Sanitationa

AfDB 78.4Arab Bank for Economic Development in Africa 13.1BID 7.7Canada 1.0DANIDA 0.0Dutch Government 5.4FCPRONASA 14.4French Development Agency 11.0India 2.1Ireland 0.7Italy 17.9JICA 7.9KfW 5.0National Bank for Economic and Social Development (Brazil) 11.9NDF 0.7Portugal 0.9Sweden 1.3Switzerland 0.2UNICEF 4.2World Bank 59.7

Water and Sanitation Total 243.5Grand Total 4,852.9

Note: Donor commitments or budgets in US$, millions.a. Summary of 2014 and 2015 Budgets.

44