Document of The World Bank FOR OFFICIAL USE ONLY Report No: ICR00005545 IMPLEMENTATION COMPLETION AND RESULTS REPORT ON A SMALL GRANT IN THE AMOUNT OF USD(XX) MILLION TO THE SOA AFAFY HAMPAHOMBY NY HO AVY - SAHA NGO FOR Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) October 2021 Social Sustainability And Inclusion Global Practice Africa East Region Regional Vice President: Country Director: Idah Z. Pswarayi-Riddihough Regional Director: Mark R. Lundell Practice Manager: David Seth Warren Andrianjaka Rado Razafimandimby, Tiago Carneiro Task Team Leader(s): Peixoto ICR Main Contributor: Andrianjaka Rado Razafimandimby ABBREVIATIONS AND ACRONYMS COGE : Management Committee CSOs : Civil Society Organizations FDL : Local Development Fund (Fond de Développement Local) FEFFI : Local School Committee FM : Financial Management GDP : Gross Domestic Product GRS : Grievance Redress service GPSA : Global Partnership for Social Accountability IBRD : International Bank for Reconstruction and Development IDA : International Development Association LUP : The Civil Society Land Use Platform (Solidarité des Intervenants pour le Foncier – SIF) MOU : Memorandum of Understanding NGO : Non-Government Organization PAPSP : Public Sector Performance Support Project PDO : Project Development Objective PICOs : Public Inter-municipal Cooperation Organizations RETF : Recipient Executed Trust Fund RTRSM : Network for Transparency and Social Accountability in Madagascar SAHA : Soa Afafy Hampahomby ny Ho Avy (SAHA NGO) SLCs : Local Coordination Structure (Structure Locale de Concertation ) TASAN : Transparency and Social Accountability Network TABLE OF CONTENTS DATA SHEET ....................................................................... ERROR! BOOKMARK NOT DEFINED. I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES ....................................................... 4 II. OUTCOME ...................................................................................................................... 6 III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME .................................. 9 IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME .. 10 V. LESSONS LEARNED AND RECOMMENDATIONS .............................................................. 11 ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS ........................................................... 14 ANNEX 2. PROJECT COST BY COMPONENT ........................................................................... 21 ANNEX 3. RECIPIENT, CO-FINANCIER AND OTHER PARTNER/STAKEHOLDER COMMENTS ...... 22 ANNEX 4. SUPPORTING DOCUMENTS (IF ANY) ..................................................................... 24 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) DATA SHEET BASIC INFORMATION Product Information Project ID Project Name Citizen Involvement in Municipal Service Improvement P162170 (CIMSI) Country Financing Instrument Madagascar Investment Project Financing Original EA Category Revised EA Category Not Required (C) Not Required (C) Organizations Borrower Implementing Agency SAHA SAHA Project Development Objective (PDO) Original PDO The Project's objective is to improve transparency and accountability mechanisms between local governments and citizens through participative planning and budgeting in targeted municipalities. Page 1 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) FINANCING FINANCE_TBL Original Amount (US$) Revised Amount (US$) Actual Disbursed (US$) Donor Financing TF-A4471 700,000 700,000 688,660 Total 700,000 700,000 688,660 Total Project Cost 700,000 700,000 688,660 KEY DATES Approval Effectiveness Original Closing Actual Closing 23-Mar-2017 20-Apr-2017 31-Jan-2020 31-Mar-2021 RESTRUCTURING AND/OR ADDITIONAL FINANCING Date(s) Amount Disbursed (US$M) Key Revisions 25-Jun-2019 0.34 Change in Results Framework Change in Loan Closing Date(s) KEY RATINGS Outcome Bank Performance M&E Quality Satisfactory Satisfactory Substantial RATINGS OF PROJECT PERFORMANCE IN ISRs Actual No. Date ISR Archived DO Rating IP Rating Disbursements (US$M) 01 12-Feb-2018 Moderately Satisfactory Moderately Satisfactory 0.06 02 06-Feb-2019 Moderately Satisfactory Moderately Satisfactory 0.34 03 03-Apr-2020 Satisfactory Satisfactory 0.54 Page 2 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) ADM STAFF Role At Approval At ICR Regional Vice President: Makhtar Diop Hafez M. H. Ghanem Zviripayi Idah Pswarayi Country Director: Mark R. Lundell Riddihough Director: Deborah L. Wetzel Simeon Kacou Ehui Practice Manager: Asmeen M. Khan David Seth Warren Josef S. Trommer, Anne-Lucie Andrianjaka Rado Task Team Leader(s): Lefebvre Razafimandimby Andrianjaka Rado ICR Contributing Author: Razafimandimby Page 3 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES Context 1. Madagascar is an island nation with unparalleled biodiversity and many natural assets, but it is prone to weather-related disasters and recurrent political crises. It is one of the poorest countries in the world with almost fifth of its population classified as extreme poor and with a GDP per capita in 2010 lower than that of 1960. The country has a dual economy with a large subsistence agriculture and informal sectors, and a small but relatively diversified formal sector. 2. In spite of local taxes, provision of services at the local level is mainly financed by central government transfers. These central transfers represented only 1.5% of the national budget in 2012, an insufficient level to satisfy the demand for local public service provision. Moreover, the "Local Development Fund", a basket fund created with State and Donor contributions to complement central transfers has also decreased in the past few years. This decrease, combined with low local revenue intakes, has undermined even further the capacity of local governments to provide better services. 3. Citizens and officials at the commune level have reacted with creativity and resilience to the shortage of fiscal resources. This has led to some ad-hoc decentralization, though not on the path spelled out in the Constitution and the laws. Local governments have sometimes taken matters in their own hands in the areas of education, land management and taxes. They also negotiated some mining royalties, despite the stipulations of the Mining Code. In this context, participatory budgeting at the local level has been a success in some communes (the lowest level of government) with avid citizen participation, starting with pilot programs introduced in 2004 and progressive scaling-up reaching a total of 122 communes by 2014. 4. The Project aims at breaking the vicious circle of poor service delivery and low tax intake by improving transparency and accountability mechanisms between local governments and citizens. Through participative planning and budgeting, local communities actively participate in the planning and budgeting process of the municipalities to set development priorities. Stronger participation in local consultation processes to develop municipal plans and to evaluate their implementation will both improve the accountability of local authorities and increase the ability and willingness of citizens to pay for such services, thus increasing Local Governments resources. Jointly developed priority plans and service level definitions will allow local authorities to apply for higher regional and central government transfers. Project Development Objectives (PDOs) 5. The objective of the Project is to improve transparency and accountability mechanisms between local governments and citizens through participative planning and budgeting in targeted municipalities of the Member Country. Key Expected Outcomes and Outcome Indicators 6. The expected results are: • Percentage of target municipalities with institutionalized participatory planning and budgeting processes Page 4 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) • Percentage of target municipalities with operational Local Coordination Structures (SLCs) that meet periodically Components 7. Component 1: Strengthening Local Coordination Structures (SLCs) in municipalities targeted by the project. The objective of this component is to strengthen targeted SLCs’ ability to evaluate local municipal service delivery in health, education and land. Activities under this component include: a) Develop and implement a communication and information strategy (including a web-based platform, municipal and regional advocacy workshops and radio programs), on participatory planning and basic services evaluation outputs in the areas of education, health and land. b) Develop and produce community assessment tools in the areas of health, education, and land c) Train SLC members in municipal planning, evaluation methodologies, transparency and social accountability. d) Train SLC members and Communal Council members in budget and action plan analysis and advocacy. e) Assist SLCs in conducting community assessments of municipal services in education, health and if possible in land. 8. Component 2: Improving transparency and accountability of decentralized services in targeted municipalities. The objective of this component is to contribute to increase local tax revenue by strengthening transparency in budget preparation, public procurement and municipal planning and investment in health, education and land. Activities under this component include: a) Train Public Intermunicipal Cooperation Organizations, decentralized technical services, and local CSOs in (i) transparency; (ii) budgeting, planning and development of services improvement plant; b) Assist Public Inter-Municipal Cooperation Organizations, decentralized technical services and local CSOs in the implementation of existing tools in participatory planning and budgeting, and budget transparency. c) Support national and regional CSO activities on municipal and regional data disclosure. 9. Component 3: Knowledge Sharing and Learning and project management. The objective of this component is to institutionalize Project lessons into sector and decentralization of budget allocation mechanisms. The main activities of this component include: a) Knowledge Sharing and Learning:(i) developing mechanisms to capture and facilitate knowledge sharing, exchange and uptake among project stakeholders, including through activities to foster an adaptive learning and management approach of project implementation; (ii) disseminating knowledge and learning products tailored to target audiences; (iii) delivering tailored capacity development activities on Governance and Decentralization for members of Parliament and other key stakeholders; and (iv) Organizing or attending national and international sharing and exchange events. b) Project Management: support to carry out day-to-day Project implementation and monitoring, through the provision of consultant services (including audit), Operating Costs, and Training. 10. The project worked with seven main partners for the implementation of the Project as follows: Page 5 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) - Support partners including: o HELVETAS Swiss Intercooperation, o The National Civil Society Platform (SIF) in land, o The National Platform of Civil Society Organizations ROHY, o The ONCD or Office National de Concertation sur la Decentralization, and the Ministry of the Interior and Decentralization (MID), o The CCOC or Collecte des Citoyens et Organisation Citoyenne. - And the partners “supported / mentored� by the project, namely: o The civil society organization, Transparency and Social Accountability Network (RTRSM), o The civil society organization, the Coalition of RADIOs. II. OUTCOME Assessment of Achievement of Each Objective/Outcome 11. Based on the final objectives of the project, all PDO indicators were achieved beyond the expected targets. Despite the health crisis, at the closing of the project, the percentage of target communes with institutionalized participatory budgeting and planning processes was 85%, compared to the 75% forecast (ODP 1). The same is true for the percentage of target communes with operational Local Consultation Structures or SLCs that meet periodically, which was 52%, or 10% more than the target value (ODP 2). 12. Measures to improve services delivered by communes and local state entities following the citizen assessment process are considered in municipal budgets and plans (35/46 municipalities). Transparency and accountability effort are fostered as a result of an increased dialogue between municipality staff, civil servants, council and citizens. 13. Overall, the project substantially contributes to the establishment and operationalization of SLCs in concerned municipalities. Independent evaluation report notes that 43 out of 46 targeted communes accepted the integration of the SLC. The whole process helped public authorities and citizens to better understand the roles and responsibilities of each party in practical manners vis-à-vis of the constituents. Overall Outcome Rating 14. The overall outcome rating is Highly satisfactory. All of the two PDO indicators are substantially met as well as all five out of the seven intermediate indicators of the project. The project successfully proceeded all the disbursement associated with 5 agreed milestones. The final disbursement rate of the project in client connection is 99.29% as of July 2021. 15. With regard to Component 1: Strengthening of Local Coordination Structures (SLC) in the target communes, the project has achieved all the intermediate indicators. These structures continue to have the necessary momentum to: i) periodically monitor the delivery of public services in concerned communes (76% of target SLCs), ii) request the budget execution report (80% of target SLCs), and iii) conduct annual meetings with CSOs to discuss financial reports and analyze budgetary and financial management problems (85% of target SLCs). 16. As for component 2: Improvement of transparency and accountability of communal services and deconcentrated services in the targeted communes, the indicators were not fully achieved during the project Page 6 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) period. While the project expected that 75% of the target communes through the communal councils and executive offices would have integrated the proposals of the SLCs (at least in one of the sectors of health, education, land) in their budgets and plans, the component was able to achieve 70%. In contrast, only 48% of the deconcentrated technical services (STD) in the target communes contribute to the realization of the SLC proposals and/or the communal plan (at least in one of the health, education or land sectors). 17. Integration of SLC’s priorities into communal budgets can be described as follows: - 43/46 SLCs have analyzed the communal budget (including reporting on the budget) and prioritized investments with a view to budgeting them or carrying them out by the commune; the remaining 3 SLCs have had problems managing files at the level of the accounting treasurers or have delays in SLC meetings. - 33/46 communes have publicly posted their budget and budget report, a version that is accessible to the general public at the commune offices or on bulletin boards. Those that have not done so are waiting for their Administrative Accounts to be validated by the District Chiefs, or have used the absence of bulletin boards as an excuse. 18. According to CIMSI's monitoring evaluation and learning (MEL) system, the number of action plans proposed by SLC (following the citizen evaluation) that have been the subject of concrete follow-up by either the Commune or the communal technical services are as follow: - In the education sector: 23/26 - In the health sector: 18/25 - In the land sector: 6/11 19. On Component 3: Knowledge Sharing and Project Management, all intermediate indicators of this component were steadily achieved over the project’s life cycle. Here, the final phase of the project focused on conducting infomercials and producing documents to capitalize on the project's experiences in collaboration with the various stakeholders. These documents highlighted the sustainability aspects supported by the project, notably the mentoring of partners, the advocacy and coordination mechanisms available to partner CSOs. 20. Throughout the project, 6 blogs, 3 videos (success stories) and 2 capitalization documents had been produced: i. https://saha.mg/wp-content/uploads/2020/07/blog_cimsi_juillet_2020_fr.pdf ii. https://saha.mg/wp-content/uploads/2020/07/blog_cimsi_juillet_2020_en.pdf iii. https://www.saha.mg/wp-content/uploads/2019/10/Blog-CIMSI-Mahavelona-French.docx.pdf iv. https://www.saha.mg/wp-content/uploads/2019/10/Blog-CIMSI-Mahavelona-Eng.pdf v. https://www.saha.mg/wp-content/uploads/2019/02/blog_1_CIMSI_FR.pdf vi. https://www.saha.mg/wp-content/uploads/2019/02/blog_1_CIMSI_EN.pdf vii. Story 1: https://youtu.be/DT387q3rf18 viii. Story 2: https://youtu.be/PQJz4dgNLmo ix. Story 3: https://youtu.be/Q5iIoZ7ICiY x. https://www.saha.mg/wp-content/uploads/2021/03/MAGAZINE-CAPITALISATION-CIMSI_ONG- SAHA.pdf xi. https://www.saha.mg/wp-content/uploads/2021/08/note-3_capitalisation-2019.pdf Page 7 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) Other Outcomes and Impacts 21. During its implementation, the project adapted to the different contexts and challenges encountered. When some municipalities already had SLCs, the project intervened to improve i) the working and coordination of SLC members, and ii) communication with municipalities staff. Thus, the CIMSI project supported the municipalities in the restructuring of the SLCs so as to ensure diversity of college members and the representation of all existing sectors. 22. The project's strategy has contributed to reinforce citizen expression and consultation with governments through the SLCs and by promoting accountability and transparency mechanisms associated with planning and budgeting. In most cases, the SLC is considered as a venue for consultation, where various actors are invited to voice their vision and concerns. The degree of citizen ownership can be reflected in the emergence of debates on budget at local level, in the SLC monitoring of the effectiveness of agreed resolutions, and in a sustained demand for accountability. After the closing of the project, such practices promoted by the project are continuing. While CIMSI strived as a pilot project for SLC, currently the Mionjo1 project is scaling up in 134 communes the SLC work initiated by CIMSI in less than 10 communes in the south part of the country. 23. The project contributed to more structured CSOs at the regional and national levels. Competence transfer allowed CSO partners to conduct citizen assessment project on their own. This was made possible thanks to tailored tools and capacity building in organizational and planning skills. In the beginning, CSOs had difficulty to be aligned with the project’s objectives. Over time, their capacities gradually evolved with continued coaching of CSO leaders, and extensive trainings provided by the project team. For instance: - The RTRSM was a civil society organization that did not have a well-developed base. This situation had an impact on the quality of their intervention, due to the low capacity in contracting procedures and providing services to local associations. Similarly, they had a problem with internal management in terms of budget and accounting. It was not until the third year of the project that an improvement was noted in these aspects. - For the Coalition of radios, the scope of its involvement is initially very limited in providing communication services for the project in a centralized manner, whereas the purpose of their collaboration with CIMSI was to convey the voices of local actors. It was also during the third year of the project that the collaboration was more conclusive by partnering with local radio stations in broadcasting project’s messages. These organizations are now in position to serve other projects engaging citizen participation and promoting local governance. For instance, the Coalition of radios was taking the lead in July 2021 to advocate against a new decree on governorate that is putting at risk the decentralization effort in the country. 24. The project nurtured the national interest in SLC. CIMSI showcased the scope and limit of SLC in terms of citizen engagement and community driven development. Currently, two bank projects (the Integrated Urban Development and Resilience Project for Greater Antananarivo -PRODUIR- and Support for resilient livelihoods in the South of Madagascar - MIONJO (P171056) continue to work with SLC in light of CIMSI’s experience. When the Ministry of Interior was drafting the official SLC guide and capitalizing document, CIMSI was considered as the key contributors.2 In fact, the project generated first-hand experience and significant knowledge informing other similar projects in the country. 1 Support for resilient livelihoods in the South of Madagascar Project (MIONJO - P171056) amounting USD 100+ million 2 Extract from the SLC capitalizing document, Ministry of Interior, page 2 : “(…) Thus, the national capitalization of DCFs under the Page 8 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) 25. The communes experienced "collaborative social accountability" progressively by exercising it through 2 to 3 successive communal planning/budgeting cycles. Thanks to CIMSI, targeted communes have robust budget reflecting the need and priorities of various communities represented in the SLC. Also, it has been noted that changes of municipality leaders have not always resulted in a loss of capacities. In some communes, renewed dynamism in the application of accountability principles has been observed following changes in elected officials. The majority of newly elected mayors and councilors are more receptive and open to citizen participation, allowing the achievements of the previous term to be enhanced. 26. CIMSI's collaboration with the World Bank-funded Public Sector Performance Support Project (PAPSP) was undertaken in the first year of the project's implementation to exploit the potential for complementarity between the two projects. In all 46 communes, the project contributed to the monitoring by citizens of the use of state and FDL/PAPSP subsidies to support communal projects in order to strengthen trust between government and citizens. A monitoring form was developed by the Project and communicated to the ROHY Movement (which is initially in charge of monitoring grants) as part of the exchange for monitoring PAPSP beneficiary communes. The exchange covered two waves of grants made in 2018 and 2019. A restitution was made by CIMSI to the PAPSP team and to FDL (public body in charge of monitoring and evaluation). The efficient monitoring-evaluation-learning system is a key component of the project's adaptive capacity, without which the information/data feedback from project stakeholders is not harmonized or structured, allowing for the most objective analyses possible. III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME 27. During the Covid-19 pandemic, the project was able to pursue and complete activities thanks to ICT enabled tools. For instance, the CSO partners used smart phones with ODK Collect application to follow- up the participatory evaluation of public services in targeted communes. 28. The implementing partners had difficulty fitting into the project’s operating system as follows: - The RTRSM did not have a well-functioning organization. This situation had an impact on the quality of the execution of their tasks. Members of RTRSM needed capacity building and strong support in terms of managing procurement and providing services to local associations. Also, they had an internal financial management problem. It was only during the 2nd phase of the project that an improvement took place thanks to the support provided. - The Radio Coalition: at the beginning, their understanding of the tasks was a little out of step with the expectations and objectives of the project. It was also during the 2nd phase of the project that this collaboration was effective. The radios based near by the targeted communes that were useful to the project in achieving agreed objectives. 29. Limited engagement of the central government: The World Bank issued aide-mémoires and to each concerned ministry, but the project team did not receive any feedback. This is probably due to the fact that this project does not bring financial benefits to the ministries. It was planned that a national steering committee be set up with the ministries concerned to ensure the sustainability of the results of the strategic guidance of the MID, was jointly conducted between the MID/DACTD/ODDL and NGO SAHA (through the CIMSI project), while involving other CSOs and stakeholders. (…)� Page 9 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) project, but this committee failed to take place. In fact, the government officials at central level had limited incentive to fully involved in the CIMSI project. For similar trust fund project, it is important to clarify upfront the scope and roles of this stakeholder. Also, the project could have organized a series of round table with them on how they can contribute to CIMSI’s objectives and appointed focal point for each concerned ministry. 30. New public services at local level: Decentralized land management is still a recent practice in Madagascar’s administration since 2005. To be effective and fully assimilated, local land services necessitate further experience and targeted capacity building among concerned actors. This partly explains why only 6 out of 11 action plans proposed by SLC have been the subject of concrete follow-up by either the Commune or the communal technical services. 31. Limited role of the Districts: The Districts are the entities in charge of accompanying the SLC. However, the districts are not very familiar with the role of the SLCs (role of colleges, core team, etc.). Their role is limited to raising the awareness of municipalities on the establishment of SLCs. However, they should provide customized support to the municipalities on a one-on-one basis and follow up on the establishment and proper functioning of SLCs. 32. Conflict between communes and fokontany: A difficulty has been observed in some communes on the collaboration between communal officials and the Presidents of the Fokontany because of the decree according to which the fokontany are under the tutelage of the District. Some fokontany presidents believe that municipal officials no longer have the right to correct them when they make administrative errors. 33. Incentive for the SLCs: Although clarifications are given to the SLCs on the free nature of their function, the non-existence of per diem or travel expenses or even snacks during meetings discourage certain SLC members. In several cases, members have to stop working and travel far from their home village to join meetings at the municipal centers. According to the regulatory provisions, the municipalities should define a budget for the operation of the SLCs. But compliance with this provision depends on the availability of funding at the commune level. IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME 34. During the health crisis, the project implementing unit request the support of commune partners with products and materials to combat COVID-19. Yet Bank procedures were not able to meet such a legitimate demand. It is recommended that Bank’s operational system become more agile and relevant to the context facing the project’s beneficiaries. 35. The delay associated with information flow from the municipality coaches to the project’s core team made it difficult to deploy a timely response in addressing specific issues on the ground. Such a delay affected the decision-making process as well as the learning curve of the project and partners. 36. By the duration of the agreements with the partners, which were defined to cover the entire project period, preventing the taking of measures to change or add partners during implementation. 37. The project had engaged a contract to work with a certain OSC partners over the whole project’s life. Such locked contract made it difficult to take necessary adjustment measures and/or add other OSCs in the process. Page 10 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) V. LESSONS LEARNED AND RECOMMENDATIONS 38. To respond the Covid-19 crisis, the project provided adaptative solutions that paved the way to strong local mechanism ensuring sustainable results beyond the project’s lifetime. These are ICT enabled tools to follow up citizen evaluation of local public services, series of capacity building sessions provided to state actors at local level to coach communes and facilitate SLC’s activities toward its mission and objectives, as well as coordination mechanism of CSO network to better organize and channel advocacy. 39. The CIMSI project works closely with all stakeholders including institutions and entities at the level of municipalities. In particular, the FEFFI for the education sector, and the COGE (Management Committee) for the health sector. The project also considered the existence of traditional structures headed by traditional chiefs. 40. The CIMSI project supported the RTRSM so that it can provide quality services, by providing it with training in the process of managing procurement and providing services to local associations, and internal financial management. 41. During the implementation of the CIMSI project, the team mobilized local government officials, including Mayors, executive bureau and councils, as well as heads of health center, chiefs of pedagogic zones and land office managers. The latter greatly facilitate the process of citizen evaluation toward the improvement of the three key services (health, education and land) at local level. 42. The CIMSI project supported the municipalities in the restructuring of the SLCs to respect the diversity of college members and the representation of all existing sectors. The members of the SLC thus became colleges from the fokontany, well anchored in the zones. To name a few, the SLC consists of the Head of the Fokontany (Village), executives, councilors, technical services, CSOs, vulnerable group, youngsters, etc. 43. The CIMSI project has a planning, monitoring and evaluation system consisting of actions and activities scheduled and carried out on a regular basis. This system makes it possible during the implementation of the project to make corrections and reorientations relevant to the performance of activities and in achieving the objectives relating to the objectively verifiable indicators. 44. The CIMSI project determined lessons following the analysis of findings and experiences following the completion of the citizen assessment, a blog presenting this aspect was shared and posted online via the link below: - https://saha.mg/wp-content/uploads/2020/07/blog_cimsi_juillet_2020_en.pdf - https://saha.mg/wp-content/uploads/2020/07/blog_cimsi_juillet_2020_fr.pdf 45. Also, two notes and two “Guide� documents were produced over the course of the project: - Note 1: The model of constructive co-engagement based on the SLC promoted by CIMSI - Note 2: Summary note relating to Citizen Assessments in the 46 CIMSI intervention municipalities - Updated guide to French version on support for SLCs - Guide on the roles and functions of SLCs and Land Management in the municipalities. 46. Certain conditions are essential for the durability of the process and the results of the project, in particular: (1) better involvement of the District in monitoring the activities of the SLCs and municipalities, (2) maintenance of consultation between the stakeholders (3) existence of SLC budget in municipal Page 11 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) budgets for motivation of SLC members, (4) existence of dynamic CSO, partner of municipalities in development actions, (5) support from higher institutions, CSOs or partners, and (6) strategy for mobilizing the municipalities' own resources. At a higher level, advocacy actions at the level of the sectoral ministries are to be encouraged for the continuity of the process and the results of the project. 47. The project team realized that in order to advance towards its objectives, it was necessary to take into account and integrate into its support the priorities identified by elected officials, municipal leaders and municipal service providers. Indeed, even if the implementation of SLCs is part of the reforms initiated by the Ministry of the Interior and Decentralization, the functioning of a SLC involves all sectors such as the social, economic and environmental sectors or sustainable development. Thus, the communal priorities have benefited from the support/accompaniment of the project, either directly or indirectly. In addition, some projects/programs that support communal investments have used the proposals of SLCs to guide the priorities of their actions (e.g., the Diorano Wash project, the PIC or the Integrated Growth Pole project funded by the World Bank). 48. Other lessons include the following: a. Social accountability mechanisms are more likely to be effective and scalable when they complement broader sectoral policies and government programs3; b. The understanding of the political and economic stakes of key actors such as elected officials and community leaders is a factor to be considered in supporting consultation and social accountability;4 c. The formalization of a space for consultation such as the SLC must be done in parallel with, or even preceded by, the appropriation of accountability and transparency mechanisms, which guarantee citizen participation and the effective commitment of stakeholders5; d. Prior consultations at the community level or upstream of the SLCSLC are a strong guarantee of the success of the consultation at the communal level, provided that the SLCincludes community representatives; e. The citizen evaluation process helped to prepare citizen participation by strengthening the empowerment and institutional capacity of citizens to demand greater accountability. In addition, the citizen assessment of public services produced citizen proposals in the form of action plans that made them easy to budget for; 3 This is particularly true for civil servants and state services. They are more responsive to local demand when it falls under their priorities and existing programs. 4 As an illustration, clear differences were noted between the process of setting up the local consultation structure in urban communes and in rural communes, as the degree of acuity of political and economic issues is higher in urban communes (as it is in high-income communes such as mining towns) than in rural communes. Another example is that sometimes the strengthening of accountability mechanisms is more effective if the support begins with a team of newly elected governors because of their political interest in bringing citizens together from the beginning of their mandate. In the case of rural communes, the challenges of mobilizing resources are often a motivating factor for citizen engagement at the level of elected officials. 5 SLC, FEFI, COGE, etc. are structures created at the municipality, school and local health centers. They are often setup as an administrative requirement. To be effective, members of such organizations must take ownership of their mission beyond administrative dimension. Page 12 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) f. Before taking a decision to improve or to adopt a corrective measure at the project level, joint analyses with the stakeholders concerned should be conducted in a participatory manner to ensure their commitment to the implementation of the decisions/measures taken; g. It is preferable not to contract an implementing partner for the entire duration of the project in order to allow for change or adjustment during implementation if necessary. . Page 13 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS A. RESULTS INDICATORS A.1 PDO Indicators Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Municipalities that have Percentage 0.00 75.00 75.00 85.00 introduced and institutionalized participative 31-Mar-2017 31-Mar-2017 31-Mar-2021 31-Mar-2021 planning and budgeting processes Comments (achievements against targets): Result achieved beyond expectation Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Targeted municipalities with Percentage 0.00 75.00 75.00 93.00 operational Local Coordination Structures (SLCs) that meet 31-Mar-2017 31-Mar-2017 31-Mar-2021 31-Mar-2021 Page 14 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) periodically Comments (achievements against targets): Result achieved beyond expectation A.2 Intermediate Results Indicators Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion 1.1. Percentage of SLCs, in Percentage 0.00 75.00 75.00 91.00 the targeted municipalities, trained and which monitor 31-Mar-2017 31-Mar-2017 31-Mar-2021 31-Mar-2021 periodically public services' delivery at least in one of the key sectors (health, education or land registration). Comments (achievements against targets): Result achieved beyond expectation Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion 1.2. Percentage of target Percentage 22.00 75.00 75.00 91.00 Page 15 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) municipalities with publicly 31-Mar-2017 31-Mar-2017 31-Mar-2021 31-Mar-2021 available annual municipal budget and budget execution reports (including expenditure and procurement procedure application) Comments (achievements against targets): Result achieved beyond expectation Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion 1.3. Percentage of targeted Percentage 0.00 75.00 75.00 93.00 municipalities with institutionalized annual 31-Mar-2017 31-Mar-2017 31-Mar-2021 31-Mar-2021 meetings with SLCs and CSOs to discuss financial report of the municipality. Comments (achievements against targets): Result achieved beyond expectation Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Page 16 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) 2.1 (New) Percentage of Percentage 0.00 75.00 75.00 76.00 communes where the local authorities (Municipal council/ 31-Dec-2018 31-Dec-2018 31-Mar-2021 31-Mar-2021 local government) who consider proposals from the SLCs in their budget and plans Comments (achievements against targets): Result achieved Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion 2.2. (New) Percentage of Percentage 0.00 75.00 75.00 76.00 communes where the technical service of the State contributes 31-Dec-2018 31-Dec-2018 31-Mar-2021 31-Mar-2021 effectively to the implementation of the proposals from the SLC and the communal plan Comments (achievements against targets): Result achieved Unit of Actual Achieved at Indicator Name Baseline Original Target Formally Revised Measure Completion Page 17 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) Target 3.1. Intermediate Result Number 0.00 2.00 2.00 2.00 indicator One: Learning for improved results 31-Mar-2017 31-Mar-2017 31-Mar-2021 31-Mar-2021 Comments (achievements against targets): Result achieved Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion 3.2. Increased Knowledge Number 0.00 2.00 2.00 2.00 about politically informed social accountability strategies. 31-Mar-2017 31-Mar-2017 31-Mar-2021 31-Mar-2021 Knowledge products about political economy factors and dynamics affecting social accountability processes produced Comments (achievements against targets): Result achieved Page 18 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) B. ORGANIZATION OF THE ASSESSMENT OF THE PDO Objective/Outcome 1 1. Municipalities that have introduced and institutionalized Outcome Indicators participative planning and budgeting processes 1. Percentage of SLCs, in the targeted municipalities, trained and which monitor periodically public services' delivery at least in one of the key sectors (health, education or land registration). 2. Percentage of target municipalities with publicly available annual municipal budget and budget execution reports (including Intermediate Results Indicators expenditure and procurement procedure application) 3. Percentage of targeted municipalities with institutionalized annual meetings with SLCs and CSOs to discuss financial report of the municipality. Objective/Outcome 2 1. Targeted municipalities with operational Local Coordination Outcome Indicators Structures (SLCs) that meet periodically 1. Percentage of communes where the local authorities (Municipal council/ local government) who consider proposals from the SLCs in their budget and plans Intermediate Results Indicators 2. Percentage of communes where the technical service of the State contributes effectively to the implementation of the proposals from the SLC and the communal plan Objective/Outcome 3 Intermediate Results Indicators 1. Intermediate Result indicator One: Learning for improved results Page 19 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) 2. Increased Knowledge about politically informed social accountability strategies. Knowledge products about political economy factors and 3. dynamics affecting social accountability processes produced Page 20 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) . ANNEX 2. PROJECT COST BY COMPONENT Amount at Approval Actual at Project Percentage of Approval Components (US$M) Closing (US$M) (US$M) Strengthening Local Coordination Structures 0 .15 0 (SLCs) in municipalities targeted by the project Improving transparency and accountability of 0 .28 0 decentralized services in targeted municipalities Knowledge Sharing and Learning and project 0 .27 0 management Total 0.00 0.70 0.00 Page 21 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) ANNEX 3. RECIPIENT, CO-FINANCIER AND OTHER PARTNER/STAKEHOLDER COMMENTS Network for Transparency and Social Accountability in Madagascar (RTRSM) (Created in February 2015, under the regime of the ordinance 60 133 of October 03, 1960 on the general regime of associations, the RTRSM brings together sixty-eight Civil Society Organizations (CSOs) from all regions of Madagascar). Eighteen civil society organizations were trained in the tool for citizen evaluation of communal services. The RTRSM and its CSO partners are already familiar with the "citizen evaluation" tool used by the project. The network is grateful to the project for leading a capacity building in different areas that can be used beyond the project. These are the techniques for assessing the indicators, the approach to mobilizing citizens in relation to the SLCs, the formulation of proposals/resolutions with a view to their integration into the communal budget. The collaboration between RTRSM and the project has resulted in a better visibility of grassroots CSOs and the RTRSM network among stakeholders at the commune, district and national levels. Radio Coalition The collaboration between the Coalition of radios and the CIMSI project started in November 2017, in order to promote citizen participation through communication, education and capacity building of stakeholders as follows: - 09 local and proximity radio stations were mobilized in the production and broadcasting of programs covering all project intervention areas: o Analamanga Region: Radio Antsiva, Radio Aceem, Radio Vonizongo o Vakinankaratra Region: Radio Haja Antsirabe o Diana Region: Radio Feon'i Mahavavy Ambilobe, Radio Lazan'Ankarabe Ambilobe, Radio Ekar Fanantenana Ambanja, Radio Feon'i Sambirano Ambanja o Anosy Region: Radio Josvah Anosy - A radio drama composed of five episodes reporting on real events in a commune and on the project's themes was produced and broadcast. - More than 150 infomercials were produced and broadcast on the project's themes. - More than 500 participants took part in the production of the programs: Ministry officials, District Chiefs, Decentralized State Technical Services, Members of the Executive Board of the communes, Communal Councillors, Fokontany Chiefs, Members of the Hard Core and the SLC, CSOs, Citizens, Project Team and local accompaniers, Project partners. Throughout the project implementation, the Coalition of radios has strengthened its network and partners as well as its experience in community driven development project communication and in project experience dissemination. The partnership with the project also gave an opportunity to unfold its mission of making radios a forum for expression and citizen participation. As for the participating radio stations, the collaboration with the project gave incentive to value citizen participation. During the recording and interviews, journalists were able to establish a close relationship with local government officials and see the reality on the ground. From this experience, local radio partners are now more interested in reporting local development projects and their achievements. Page 22 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) Furthermore, the project helped local radios to face the Covid-19 crisis. Thanks to the contract with the Coalition des radios Madagascar association, local radio partners were able to cover recurrent expenses during this pandemic affecting the communication sector. National platform of civil society in land (SIF) The collaboration between SIF and the project started back in 2018. The main role of SIF is to support the project in the areas of land management at local levels. SIF’s contribution allowed the production and broadcasting of radio programs on various land issues and related fields. In its role of collecting and analyzing land information, SIF conducted a diagnosis of land situation in the Districts of Ankazobe and Antsirabe. Thanks to the project, SIF is now familiar with SLCs as a venue for public consultation to discuss land issues, such as land allocation for private operators willing to invest in the communes. From this experience, SIF has produced a guideline that can be used by SLCs while dealing with land issues within a given municipality. The guideline was validated by the General Directorate of land services under the Ministry in charge of land development. Page 23 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) ANNEX 4. SUPPORTING DOCUMENTS (IF ANY) Document Website link - Financial report - https://www.saha.mg/wp-content/uploads/2021/08/1_rapport-final-audit.pdf - Procurement’ plan - https://www.saha.mg/wp-content/uploads/2021/08/2_P162170_PPM.xlsx - Result framework - https://www.saha.mg/wp-content/uploads/2021/08/3_cadre-de-resultat.pdf - Disbursement and - https://www.saha.mg/wp-content/uploads/2021/08/4_tableau-indicatif-des- milestone table decaissements-et-des-etapes.pdf - Annual working and budget - https://www.saha.mg/wp-content/uploads/2021/08/5_PTBA-CIMSI-2020- plan 2021.pdf - Milestone achievement - https://www.saha.mg/wp-content/uploads/2021/08/6_tableau-de-verification- table des-milestones.pdf - Project 2020/2021 report - https://www.saha.mg/wp-content/uploads/2021/08/rapport-technique-annuel- 2020.pdf - Note 1 : Collaborative - https://www.saha.mg/wp-content/uploads/2021/08/note-1_modele-de- engagement model of CIMSI coengagement-constructif-promu-par-cimsi-dans-les-communes.pdf - Note 2 : Service - https://www.saha.mg/wp-content/uploads/2021/08/note-2_amelioration- improvement though citizen service-via-evaluation-citoyenne.pdf evaluation - - SLC guidelines - https://www.saha.mg/wp-content/uploads/2021/08/1-guide-accompagnement- slc.pdf - Land management - https://www.saha.mg/wp-content/uploads/2021/08/2-guide-foncier-slc.pdf guidelines - Baseline review report - https://www.saha.mg/wp-content/uploads/2019/02/Etude-Baseline-CIMSI.pdf - Mid-term review report - https://www.saha.mg/wp- content/uploads/2021/08/Rapport_principal_evaluation-mi-parcours_Vsf.pdf - Final review report - https://www.saha.mg/wp- content/uploads/2021/08/Rapport_principal_evaluation_finale_VF.pdf Page 24 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) Document Website link - M&E reports - https://www.saha.mg/wp-content/uploads/2021/08/rapport-technique-final.pdf - https://www.saha.mg/wp-content/uploads/2021/08/rapport-technique-annuel- 2020.pdf - https://www.saha.mg/wp- content/uploads/2020/03/rapport_technique_annuel_2019_vsf.pdf - https://www.saha.mg/wp-content/uploads/2019/02/Rapport-technique- 2018.pdf - https://www.saha.mg/wp-content/uploads/2021/08/rapport-technique-annuel- 2017.pdf - Partnership agreements - https://www.saha.mg/wp- with public sector content/uploads/2021/08/Convention_Partenariat_CIMSI_ONCD.pdf institutions - https://www.saha.mg/wp-content/uploads/2021/08/Convention-SAHA- DAGFD.pdf Accords de partenariat avec les OSC partenaires du projet : - https://www.saha.mg/wp- content/uploads/2021/08/Convention_Partenariat_CIMSI_RTRSM.pdf - https://www.saha.mg/wp- content/uploads/2021/08/Convention_Partenariat_CIMSI_CoalitionDesRadios.pdf - https://www.saha.mg/wp- content/uploads/2021/08/Convention_Partenariat_CIMSI_ROHY.pdf - https://www.saha.mg/wp- content/uploads/2021/08/Convention_Partenariat_CIMSI_Helvetas.pdf - https://www.saha.mg/wp- content/uploads/2021/08/Convention_Partenariat_CIMSI_SIF.pdf Page 25 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) Document Website link - Capacity building tools - https://www.saha.mg/wp-content/uploads/2021/08/1-guide-accompagnement- slc.pdf - https://www.saha.mg/wp-content/uploads/2021/08/3-flyers-slc.pdf - https://www.saha.mg/wp-content/uploads/2021/08/4-registre-slc.pdf - https://www.saha.mg/wp-content/uploads/2021/08/5-outil-sur-la-mobilisation- des-ressources-locales.pdf - https://www.saha.mg/wp-content/uploads/2021/08/6-guide-sur-affiche-budget- des-citoyens.pdf - https://www.saha.mg/wp-content/uploads/2021/08/7-affiche-budget-des- citoyens.pdf - https://www.saha.mg/wp-content/uploads/2021/08/8-fiche-de-consultation-des- citoyens.pdf - https://www.saha.mg/wp-content/uploads/2021/08/9-guide-sur-utilisation-du- tableau-de-bord-fiscal.pdf - https://www.saha.mg/wp-content/uploads/2021/08/10-tableau-de-bord- fiscal.pdf - https://www.saha.mg/wp-content/uploads/2021/08/11-guide-sur-le-suivi-des- services-ec.pdf - Magazine and blogs Magazines: - https://www.saha.mg/wp-content/uploads/2021/03/MAGAZINE- CAPITALISATION-CIMSI_ONG-SAHA.pdf - https://www.saha.mg/wp-content/uploads/2021/08/note-3_capitalisation- 2019.pdf Blogs: - https://saha.mg/wp-content/uploads/2020/07/blog_cimsi_juillet_2020_fr.pdf - https://saha.mg/wp-content/uploads/2020/07/blog_cimsi_juillet_2020_en.pdf - https://www.saha.mg/wp-content/uploads/2019/10/Blog-CIMSI-Mahavelona- French.docx.pdf - https://www.saha.mg/wp-content/uploads/2019/10/Blog-CIMSI-Mahavelona- Eng.pdf - https://www.saha.mg/wp-content/uploads/2019/02/blog_1_CIMSI_FR.pdf Page 26 of 27 The World Bank Citizen Involvement in Municipal Service Improvement (CIMSI) (P162170) Document Website link - https://www.saha.mg/wp-content/uploads/2019/02/blog_1_CIMSI_EN.pdf Aide-Mémoire de la mission d’appui à la mise en œuvre du Projet : - https://www.saha.mg/wp-content/uploads/2021/04/AM-Mission-CIMSI- Decembre-2020.pdf - https://saha.mg/wp-content/uploads/2020/11/am-cimsi-mission-juillet-2020.pdf - https://www.saha.mg/wp- content/uploads/2020/03/AM_CIMSI_Mission_Dec_2019-.pdf - https://www.saha.mg/wp-content/uploads/2019/10/Aide-memoire-CIMSI- Mission-Juin-2019.pdf - https://www.saha.mg/wp-content/uploads/2019/02/Aide-memoire-CIMSI- Mission-Decembre-2018.pdf - https://www.saha.mg/wp-content/uploads/2019/02/Aide-memoire-CIMSI- Mission-Juillet-Aout-2018.pdf - https://www.saha.mg/wp-content/uploads/2019/02/Aide-memoire-CIMSI- Mission-Decembre-2017.pdf - Success video stories - National : https://youtu.be/DT387q3rf18 - Taolagnaro (South) : https://youtu.be/PQJz4dgNLmo, - Diana (North) : https://youtu.be/Q5iIoZ7ICiY, Page 27 of 27