FOR OFFICIAL USE ONLY
Report No: PAD00017
INTERNATIONAL BANK FOR RECONSTRUCTION AND DEVELOPMENT
PROGRAM APPRAISAL DOCUMENT
ON A
PROPOSED LOAN
IN THE AMOUNT OF US$321 MILLION
AND A GLOBAL CONCESSIONAL FINANCING FACILITY GRANT
IN THE AMOUNT OF US$29 MILLION
TO THE
HASHEMITE KINGDOM OF JORDAN
FOR A
JORDAN PEOPLE-CENTRIC DIGITAL GOVERNMENT PROGRAM FOR RESULTS
(P180291)
March 5, 2024
Governance Global Practice
Middle East And North Africa
This document has a restricted distribution and may be used by recipients only in the performance of their official
duties. Its contents may not otherwise be disclosed without World Bank authorization.
CURRENCY EQUIVALENTS
(Exchange Rate Effective February 29, 2024)
JORDANIAN DINAR
Currency Unit =
(JD)
0.709 JD = US$1
FISCAL YEAR
January 1 - December 31
Regional Vice President: Ferid Belhaj
Regional Director: Nadir Mohammed
Country Director: Jean-Christophe Carret
Practice Manager: Jens Kromann Kristensen
Task Team Leader(s): Roland Lomme, Abdallah Jabbour, Elena Nikulina
ABBREVIATIONS AND ACRONYMS
AICS Italian Agency for International Cooperation
ASA Advisory Services and Analytics
CBJ Central Bank of Jordan
CPF Country Partnership Framework
CSO Civil Society Organization
DLI Disbursement-Linked Indicator
DLR Disbursement-Linked Result
DOS Department of Statistics
DPI Digital Public Infrastructure
DPL Development Policy Loan
EHS Electronic Health Solution
EMIS Education Management Information System
EMR Electronic Medical Record
EMV Economic Modernisation Vision
ESCJ Economic and Social Council of Jordan
E&S Environmental and Social
ESSA Environmental and Social Systems Assessment
EU European Union
FM Financial Management
FSA Fiduciary Systems Assessment
FY Fiscal Year
GCFF Global Concessional Financing Facility
GDP Gross Domestic Product
GHG Greenhouse Gas
GFMIS Government Financial Management Information System
GIZ German Agency for International Cooperation (Deutsche Gesellschaft für
Internationale Zusammenarbeit)
GOJ Government of Jordan
GPD General Procurement Department
GRM Grievance Redress Mechanism
GRS Grievance Redress Service
GSC Government Service Center
GTD General Tendering Department
HDQA Health Data Quality Assurance
HIE Health Information Exchange
HLO High-Level Outcome
HRM Human Resource Management
HRMIS Human Resource Management Information System
IBRD International Bank for Reconstruction and Development
ICT Information and Communication Technologies
ID4D Identification for Development
IMF International Monetary Fund
IPA Institute of Public Administration
IPF Investment Project Financing
IPS International Patient Summary
IPSAS International Public Sector Accounting Standards
IT Information Technology
IVA Independent Verification Agent
ESCJ Economic and Social Council of Jordan
JIACC Jordan Integrity and Anti-Corruption Commission
JD Jordanian Dinar
JONEPS Jordan E-Procurement System
JRP Jordan Response Plan
KACE King Abdullah Centre of Excellence
KfW Credit Institution for Reconstruction (Kreditanstalt für Wiederaufbau)
KPI Key Performance Indicator
M&E Monitoring and Evaluation
MDTF Multi-Donor Trust Fund
MENA Middle East and North Africa
MIS Management Information System
MODEE Ministry of Digital Economy and Entrepreneurship
MOE Ministry of Education
MOF Ministry of Finance
MOH Ministry of Health
MOPIC Ministry of Planning and International Cooperation
MOU Memorandum of Understanding
NAP National Adaption Plan
NDC Nationally Determined Contribution
PforR Program for Results
PAP Program Action Plan
PCC Procurement Complaint Committee
PDO Program Development Objective
PEFA Public Expenditure and Financial Accountability
PFM Public Financial Management
PIA Privacy Impact Assessment
PMDU Prime Minister Delivery Unit
PMIO Project Management and Implementation Office
PMO Prime Minister's Office
PMU Program Management Unit
POM Program Operations Manual
RA Result Area
RETF Recipient-Executed Trust Fund
SPAC Service and Public Administration Commission
TA Technical Assistance
Tawjihi Jordan’s General Secondary Education Examination
UN United Nations
UNHCR United Nations High Commissioner for Refugees
UNICEF United Nations Children’s Fund
USAID United States Agency for International Development
YTJ Youth, Technology, and Jobs Project
WB World Bank
WHO World Health Organization
TABLE OF CONTENTS
DATASHEET....................................................................................................................................... v
I. STRATEGIC CONTEXT ..................................................................................................................1
A. Country Context ............................................................................................................................... 1
B. Sectoral and Institutional Context ................................................................................................... 2
C. Relationship to the Country Partnership Framework and Rationale for Use of Instrument ........... 4
II. PROGRAM DESCRIPTION ............................................................................................................5
A. Government program ...................................................................................................................... 5
B. PforR Program Scope ....................................................................................................................... 7
C. Theory of Change ........................................................................................................................... 10
D. Program Development Objective and PDO-Level Results Indicators ............................................ 11
E. Disbursement-Linked Indicators and Verification Protocols ......................................................... 12
III. PROGRAM IMPLEMENTATION .................................................................................................. 14
A. Institutional and Implementation Arrangements .......................................................................... 14
B. Results Monitoring and Evaluation ................................................................................................ 15
C. Disbursement Arrangements ......................................................................................................... 15
D. Capacity Building ............................................................................................................................ 16
IV. ASSESSMENT SUMMARY .......................................................................................................... 17
A. Technical ........................................................................................................................................ 17
B. Fiduciary Aspects ........................................................................................................................... 19
C. Environmental and Social Systems Aspects ................................................................................... 20
V. RISK......................................................................................................................................... 22
ANNEX 1. RESULTS FRAMEWORK MATRIX ..................................................................................... XXV
ANNEX 2. SUMMARY OF TECHNICAL ASSESSMENT ............................................................................ 51
ANNEX 3. SUMMARY FIDUCIARY SYSTEMS ASSESSMENT .................................................................. 63
ANNEX 4. SUMMARY ENVIRONMENTAL AND SOCIAL SYSTEMS ASSESSMENT .................................... 71
ANNEX 5. PROGRAM ACTION PLAN .................................................................................................. 74
ANNEX 6. IMPLEMENTATION SUPPORT PLAN ................................................................................... 77
Page | iv
@#&OPS~Doctype~OPS^dynamics@padpfrbasicinformation#doctemplate
DATASHEET
BASIC INFORMATION
Project Beneficiary(ies) Operation Name
Jordan Jordan People-Centric Digital Government Program for Results
Does this operation have an IPF
Operation ID Financing Instrument
component?
Program-for-Results
P180291 No
Financing (PforR)
@#&OPS~Doctype~OPS^dynamics@padpfrprocessing#doctemplate
Financing & Implementation Modalities
[ ] Multiphase Programmatic Approach (MPA) [ ] Fragile State(s)
[ ] Contingent Emergency Response Component (CERC) [ ] Fragile within a non-fragile Country
[ ] Small State(s) [ ] Conflict
[ ] Alternative Procurement Arrangements (APA) [ ] Responding to Natural or Man-made Disaster
[ ] Hands-on Expanded Implementation Support (HEIS)
Expected Approval Date Expected Closing Date
26-Mar-2024 30-Jun-2028
Bank/IFC Collaboration
No
Proposed Program Development Objective(s)
To improve people-centric service delivery, government effectiveness, and transparency and accountability through
digitalization.
@#&OPS~Doctype~OPS^dynamics@padborrower#doctemplate
Page | v
Organizations
Borrower: Hashemite Kingdom of Jordan
Implementing Agency: MOPIC
Contact: Maher Abdulrahim
Title: Head of World Bank and UN agency Division
Telephone No: 0796559019
Email: mahir.abdulrahim@mop.gov.jo
@#&OPS~Doctype~OPS^dynamics@padfinancingsummary#doctemplate
COST & FINANCING (US$, Millions)
Maximizing Finance for Development
Is this an MFD-Enabling Project (MFD-EP)? No
Is this project Private Capital Enabling (PCE)? No
SUMMARY
Government program Cost 549.58
Total Operation Cost 549.58
Total Program Cost 548.78
Other Costs (Front-end fee,IBRD) 0.80
Total Financing 549.58
Financing Gap 0.00
Financing (US$, Millions)
World Bank Group Financing
International Bank for Reconstruction and Development (IBRD) 321.00
Non-World Bank Group Financing
Counterpart Funding 145.24
National Government 145.24
Trust Funds 29.00
Concessional Financing Facility 29.00
Other Sources 54.34
Page | vi
ITALY, Govt. of (Except for Dev. Coop. Dept. - MOFA) 54.34
@#&OPS~Doctype~OPS^dynamics@paddisbursementprojection#doctemplate
Expected Disbursements (US$, Millions)
WB Fiscal
Year 2024 2025 2026 2027 2028 2029
Annual 0.00 100.00 85.00 85.00 80.00 0.00
Cumulative 0.00 100.00 185.00 270.00 350.00 350.00
@#&OPS~Doctype~OPS^dynamics@padclimatechange#doctemplate
PRACTICE AREA(S)
Practice Area (Lead) Contributing Practice Areas
Digital Development; Health, Nutrition & Population;
Governance
Education; Poverty and Equity
CLIMATE
Climate Change and Disaster Screening
Yes, it has been screened and the results are discussed in the Operation Document
@#&OPS~Doctype~OPS^dynamics@padrisk#doctemplate
SYSTEMATIC OPERATIONS RISK- RATING TOOL (SORT)
Risk Category Rating
1. Political and Governance ⚫ Moderate
2. Macroeconomic ⚫ Moderate
3. Sector Strategies and Policies ⚫ Moderate
4. Technical Design of Project or Program ⚫ Moderate
5. Institutional Capacity for Implementation and Sustainability ⚫ Substantial
6. Fiduciary ⚫ Moderate
7. Environment and Social ⚫ Moderate
8. Stakeholders ⚫ Moderate
9. Overall ⚫ Moderate
Page | vii
@#&OPS~Doctype~OPS^dynamics@padpfrcompliance#doctemplate
POLICY COMPLIANCE
Policy
Does the project depart from the CPF in content or in other significant respects?
[ ] Yes [✓] No
Does the project require any waivers of Bank policies?
[ ] Yes [✓] No
@#&OPS~Doctype~OPS^dynamics@padlegalcovenants#doctemplate
LEGAL
Legal Covenants
Sections and Description
@#&OPS~Doctype~OPS^dynamics@padconditions#doctemplate
Conditions
Type Citation Description Financing Source
The Borrower has engaged
a Program manager, in
Adequate staffing of the accordance with terms of
Effectiveness IBRD/IDA
PMU reference, qualifications
and resources satisfactory
to the Bank.
Page | viii
I. STRATEGIC CONTEXT
A. Country Context
1. Jordan, one of the most water-scarce countries in the world, has shown remarkable resilience in maintaining stability
in an increasingly volatile region, while continuing to be a provider of a global public good, hosting over 1.36 million
Syrians, including 643,199 registered Syrian refugees1. The country is highly vulnerable to climate shocks, underscoring
its need to address water, energy, and food security concerns. Jordan’s population has doubled, from 5 million to 11
million, over the past two decades, putting pressure on its already very limited natural resources. Climate change will
decrease water availability even further for agriculture, cities, firms, and social systems. Jordan is also among the countries
hosting the most refugees in proportion to its population. In the face of crises, Jordan has adopted an accommodative,
but prudent monetary and fiscal policy. Annual headline inflation continued to decelerate to 1.6 percent in December
2023, down from its peak of 5.4 percent in September 2022, reflecting the Central Bank of Jordan’s monetary tightening
and lower global commodity prices. Yet with an unfinished structural reform agenda and buffeted by continuous shocks,
the country has not been able to break out of a low-growth equilibrium, averaging 2.2 percent in the past decade (2012-
2022). Real gross domestic product (GDP) growth reached 2.7 percent in the first three quarters of 2023 . Jordan has made
significant strides in recent years on fiscal consolidation, but debt levels remain elevated. General government debt (which
nets of the Social Security Investment Fund (SSIF) holdings) increased to 88.8 percent of GDP in 2022, up from 87.5 percent
in the previous year, and is expected to reach 88.7 percent in 2023.
2. With its small economy and domestic market, Jordan’s growth and job creation need to be driven by private sector
investment and exports; however, key structural constraints to growth remain entrenched, notably those related to
the labor market and the business environment. Despite recent reforms, the private sector still faces barriers to entry
and a challenging environment, resulting in low productivity and investment levels. Unemployment is high (hovering
around 22.3 percent in Q3 2023 overall and Jordan’s labor force participation rate is low (32.6 percent in Q3 2023),
especially for women (13.5 percent for Jordanian women, one of the lowest in the world). Labor market segmentation
between the public and private sectors and across gender and nationality, persistent informality, a large gender gap, and
structural constraints on employment for migrants prevent the full utilization of Jordan’s human capital wealth. According
to the latest official 2017/2018 poverty estimates, Jordan’s poverty rate, at 15.7 percent, is relatively low compared to
other countries in the Middle East and North Africa (MENA) region. However, vulnerability is increasing and there is also
significant variation in poverty across the country. In 2019, Jordan initiated a successful reform and expansion of its social
protection system. It is now the largest in the MENA region in terms of coverage of the poorest. Public investment
spending has been on a steadily declining path during the past two decades. Capital spending averaged 7.2 percent of GDP
in the fiscal years (FYs) 2000–2010, but it declined to an average of 3.7 percent in the following decade (FY11–FY21). In
comparative terms, spending on nonfinancial assets is lower than the average spending of that in upper-middle-income
countries and oil-importing MENA countries. Notable improvements in fiscal consolidation and domestic revenue
mobilization have been achieved with the support of International Monetary Fund (IMF) Extended Fund Facility programs.2
3. In 2021-2022, the Government of Jordan (GOJ) has adopted a three-track program of political, economic, and public
sector modernization reforms to address these challenges—and with the explicit purpose of strengthening the social
contract between the government and citizens. The three reform dimensions are closely interlinked. Political reforms
aim at modernizing the political system leading to party-driven parliamentary and political life; based on which a new
Elections Law and a new Political Parties Law were enacted in addition to constitutional amendments. The Public Sector
Modernization Roadmap targets improved government effectiveness and accountability, including through stakeholder
consultation, citizen feedback loops and e-participation, and reforming human resource management in the civil service.
The objective of the Economic Modernization Vision (EMV) is to double the country’s growth rate to absorb a million
Jordanian youth into the job market over the next 10 years, improve living conditions and welfare, and promote
sustainable growth.
1 United Nations High Commissioner for Refugees (UNHCR) Jordan, https://reporting.unhcr.org/jordan-operational-update-7188.
2 Including the IMF Standby Arrangement 2012-2015, EFF 2016-2019, and EFF 2020-2024.
Page | 1
B. Sectoral and Institutional Context
4. Public sector modernization and digitalization are an integral part of the government’s macro-fiscal and development
strategy. The EMV builds on public sector modernization and digitalization: it stresses the importance of “bolster[ing]
[the] public sector’s efficiency and capacity,” tracking its performance and remedying underperformance, and “the need
for comprehensive and regularly updated data to inform evidence-based decision making and policymaking and
adequately monitor and evaluate the implementation process.” A monitoring and reporting framework on the
implementation of the EMV for 2033 has been introduced for that purpose under the Prime Minister Delivery Unit
(PMDU). It also aims at developing the digital economy, including through a “digital government transformation” to
improve services to people and businesses through e-services, such as in the health sector, where it expects “an integrated
digitally enabled system” to “ensure a strong and well-knit continuum of care” and to improve prevention efforts, and the
quality of and access to health services. In support of the digital transformation, the EMV for 2033 also includes plans to
“empower a public data agency responsible for data availability, access, and decision-making support,” as well as to bridge
the gap between the demand for and supply of digital skills. Under the IMF program for 2024-28,3 the Government of
Jordan (GOJ) is committed to the “digitalization of all government services by end-2025, and to establishing a single service
platform by December 2024” to “operationalize a system that will enable payment of all government bills and fees under
the same platform, as well as options to connect e-wallets to the system.” In addition, the GOJ will digitalize business
licensing, increase the digitalization of taxpayers’ services, foster access to credit information through digital channels,
and further digitalize data capture and analysis. It is also committed to strengthening controls on wage bill increases
through the professionalization of the civil service and by mobilizing an “HR management information system that includes
real-time civil service data and performance management functions to support the roles and functions of the newly
established” Service and Public Administration Commission (SPAC).
5. The Public Sector Modernization Roadmap for 2022-2025, approved in 2022, builds on a sound diagnostic of
governance challenges in Jordan, aimed at both analog and digital governance reforms to improve governmental
effectiveness. It points to critical shortcomings across seven dimensions, which it aims to address: (1) deterioration in the
provision of government services and decreasing levels of satisfaction among service users; (2) weak documentation and
coordination in government procedures; (3) complexity and overlap; (4) slow development of digital infrastructure; (5)
weak implementation of plans and strategies, and linkages with human resource budgets and plans; (6) weak evaluation,
performance oversight, and impact assessment processes; and (7) the civil service’s efficiency and productivity, weak
workforce planning, performance management, leadership, and middle management, and limited ability to attract and
retain competencies. To remedy the identified weaknesses, it promotes the digitalization of government through the
mainstreaming of government-to-government digitalized procedures; the leveraging of information technology (IT)
systems for policy making (for example, crowdsourcing and artificial intelligence-based modeling and simulation); the
digitalization of government interactions with both businesses and citizens (based on “no-touch government,” and “once-
only government” processes), e-identification, and digital upskilling in the civil service. The roadmap further supports
analog governance reforms, such as the revamping of its strategic planning function, transitioning toward “open policies
that enhance citizen participation in decision-making,” and the establishment of one-stop citizen service centers in each
governorate to facilitate access to services, including digital services. The public sector modernization and digital
transformation are overseen by the Prime Minister’s Office (PMO) under the Deputy Prime Minister for Economic Affairs
and Minister of State for Public Sector Modernization.
6. Prior to the Public Sector Modernization Roadmap, a range of related governance reforms were adopted, but they
have yet to be fully operationalized. This is the case with the 2007 Access to Information Law; the 2015 and 2021
Decentralization Laws; the 2020 Civil Service Bylaws (fostering its professionalization);; the government commitments
under the Open Government Initiative that Jordan joined in 2005; the e-participation and open data policies; the
introduction of regulatory impact assessments in 2018; service delivery improvement programs, including those based on
the initiation of a range of online (such as the all of government online citizen feedback platform “At Your Service”) and
3
IMF, 2024, Request for an Extended Arrangement under the Extended Fund Facility and Cancellation of the Current Arrangement
under the Extended Fund Facility.
Page | 2
analog mechanisms for citizen feedback and grievance redress (mystery shoppers and outreach campaigns on anti-
corruption and the establishment of Government Service Centers (GSCs)). However, many of these reforms are still works
in progress and have yet to make a significant difference in the interaction between the government and its citizens. In its
2021 State of the Country Report, the Economic and Social Council of Jordan (ESCJ), an advisory body to the GOJ, has
stressed that so far, public sector reforms have not met expectations and that digital transformation calls for further
progress in the availability, management, and use of data to inform policy making and the implementation of government
activities.4
7. The National Digital Transformation Strategy and Implementation Plan for 2021-2025 also drives the digitalization of
government. It aims to develop digital public infrastructure (DPI),5 such as digital identity (ID) and e-payments, to
strengthen open government data and the management of government resources, expand government digital services
(with the objective of automating them fully by 2025), institutionalize e-participation, and promote change management.
The GOJ is also adopting a legal and regulatory institutional framework for the protection of personal data (with a
Cybersecurity Strategy adopted in 2018 and a Personal Data Protection Law enacted in 2023, both critical safeguards for
digitalization). Although the Ministry for Digital Economy and Entrepreneurship (MODEE) is responsible for the
implementation of the digital transformation, the PMO exercises oversight over the government’s digital transformation
through the Project Management and Implementation Office (PMIO), which falls under the authority of the Deputy Prime
Minister and Minister of State for Public Sector Modernization.
8. Jordan consistently ranks above average among middle-income countries on government effectiveness, rule of law,
regulatory quality, and control of corruption, but below average on voice and accountability. International benchmarks
and opinion surveys suggest that improvement is needed in transparency and access to information, social accountability,
and grievance redress mechanisms to support citizens’ trust in government. This is an objective of the government reform
agenda which aims at promoting e-participation, enforcing public access to information, institutionalizing stakeholder
consultation to inform policy making and implementation, and at improving government responsiveness to citizen
feedback. According to the United Nations (UN) e-government index and the World Bank (WB) GovTech Maturity index,6
despite significant progress in digital government, there is an opportunity for improvement to voice and accountability,
as well as to access to and quality of services. Internet and mobile connectivity and the use of internet social media is
widespread, with close to 10 million internet users in 2023 (an 88 percent penetration rate). There are over 8.5 million
active cellular mobile connections, and over 6.5 million social media users (that is, 58 percent of the population), with 45
percent of users being women.7
9. Jordan has been actively working on the digitalization of public services; however, user adoption remains limited.
The Sanad application implemented by MODEE includes digital ID, electronic signature, and a personal document store,
in addition to functioning as a unified online portal for accessing digitalized public services. Approximately 800,000 users
(that is, about 7 percent of the population) have activated their Sanad accounts as of January 2024, which is far below the
GOJ’s goal of 3.5 million active digital IDs by 2025. The limited adoption of Sanad is due to low perceived relevance for
many individuals and service providers, as well as to eligibility restricted so far to citizens, thus leaving various
demographic groups (such as non-Jordanians, amongst whom refugees, and military personnel) ineligible for a digital ID.
MODEE plans to increase the uptake of Sanad by (1) expanding eligibility and outreach to enroll additional users (for
example, through the operationalization of new GSCs and targeted visits to refugee communities); (2) introducing new
features to enhance trust, interoperability, security, and people centricity, such as adding a mechanism to collect user
consent for data sharing; and (3) implementing a DPI ecosystem approach that is aligned with international good practice,
to achieve effective, end-to-end, digitalized service delivery workflows. Taking a trusted, people-centric DPI ecosystem
approach offers the opportunity to embrace international standards and open internet technologies by using trusted data
4
See the State of the Country Reports on the ESCJ website at https://www.esc.jo/Reportsen.aspx.
5
DPI refers to digital ID, payment, and data exchange capabilities that are fundamental to enabling service delivery at scale and
supporting innovation in the digital economy. DPI provides reusable and foundational digital platforms that allow public- and private-
sector service providers to build and innovate their products and services.
6
See Jordan’s detailed rating in Technical Assessment.
7
Kemp, Simon. 2023. “Digital 2023: Jordan.” Datareportal. https://datareportal.com/reports/digital-2023-jordan.
Page | 3
for eligibility purposes, access control, and the provision of efficient, in-demand digitalized services. MODEE will be
responsible for setting the DPI ecosystem’s rules, such as those for identification, authentication, and interoperability, and
for ensuring all participants are aware of their responsibilities and act in compliance with DPI ecosystem requirements.
C. Relationship to the Country Partnership Framework and Rationale for Use of Instrument
10. The Program is aligned with the World Bank Group Country Partnership Framework (CPF) for Jordan for FY24–FY29
submitted to the World Bank Board of Directors concurrently with this operation. Under the CPF, this operation serves
as the anchor for one of the two cross-cutting themes, namely people-centric governance and digitalization, with its
support for monitoring and data-driven decision-making for reform results. The operation underpins one of the three
high-level outcomes (HLOs), specifically HLO2 on human capital, since the Program supports the improvement of health
services and government effectiveness in the education sector through digitalization. The Program also aims to support
Jordan as a provider of a global public good in hosting refugees, another CPF cross-cutting theme. Under the CPF, the
Program will synergize with three other flagship operations: (1) the Multi-Donor Trust Fund (MDTF), established in 2019
to support the implementation of the Reform Matrix (which includes public sector and governance reforms), including
through a Recipient-Executed Technical Assistance on Strengthening Reform Management, which was recently
restructured and granted additional financing (P178480); (2) the Jordan Inclusive, Transparent and Climate Responsive
Investments Program for Results (PforR) (P175662), which promotes improvements to government service standards,
statistical performance, and regulatory governance/evidence-based policy making; and (3) the Youth, Technology, and
Jobs Project (YTJ) (P170669), which supports the expansion of e-government services, the building of digital skills, e-
payments, and government resources management. The last two operations were recently restructured (see table on
synergies and complementarities between the Program and ongoing World Bank operations in Jordan in the Technical
Assessment)).
11. The Program is also consistent with the World Bank’s corporate strategy, including at the regional level. In alignment
with the Evolution Roadmap and new World Bank vision, it addresses the global challenge of enabling digitalization to
strengthen country institutions and improve government interaction with stakeholders towards the achievement of
Sustainable Development Goals. It meets the World Bank regional objective of supporting digital transformation,
structural reforms, governance, and service delivery to restore trust, as well as to spur job creation and economic
transformation. It also contributes to World Bank engagement on refugees and gender issues in the region. It is
underpinned by the findings of the Regional Economic Update issued in October 2022 concerning the economic and
development impact of transparency and accountability in MENA,8 which concludes that the state “could be transformed
by improved transparency, that is by measuring economic and social outcomes with purpose, regularity, and openness
coupled with heightened accountability, which aligns incentives for change.”
12. The Program is aligned with the goals of the Paris Agreement on both climate mitigation and adaptation as
consistent with Jordan’s Nationally Determined Contribution (NDC) and National Adaptation Plan (NAP) . In the latest
Jordan NDC submitted to the United Nations Framework Convention on Climate Change in 2021, Jordan raised its
greenhouse gas (GHG) emission reduction target from 14 percent to 31 percent of the business-as-usual scenario by 2030.
On adaptation, the NDC aims at reducing emissions from the health sector to reach net zero health sector emissions by
2050. The NAP aims to enhance the adaptive capacity of the health sector, address climate-induced health impacts and
emerging infectious diseases, including by “establishing an early warning system to trigger prompt public health
interventions when certain variables exceed a defined threshold, and building the capacity of public health and health
care professionals to monitor, diagnose, and treat cases of climate-sensitive health outcomes.”
13. The choice of instrument is warranted by the shared objective of the GOJ and the World Bank to support the
outcomes of government modernization through digitalization. Government digital transformation is well underway, as
8
Belhaj, Ferid, Roberta Gatti, Daniel Lederman, Ernest John Sergenti, Hoda Assem, Rana Lotfi, Mennatallah Emam Mousa. 2022. “A
New State of Mind: Greater Transparency and Accountability in the Middle East and North Africa.” Middle East and North Africa
Economic Update. October 2022. Washington, DC: World Bank. Doi: 10.1596/978-1-46481925-4. License: Creative Commons
Attribution CC BY 3.0 IGO.
Page | 4
reflected by Jordan’s performance in international benchmarks (See paragraph 9). Accordingly, the operation focuses on
the functionalities and operationalization of a range of digital systems already deployed or under development. It does
not focus on capital investment in IT infrastructure or capacity building, which would have warranted an investment loan
(Investment Project Financing or “IPF”). Since it focuses on reform implementation as opposed to policy decisions, it is
also a better fit than a Development Policy Loan. The availability of parallel technical assistance (TA) (under the Jordan
Growth MDTF, the Identification for Development (ID4D) MDTF, bilateral aid, the YTJ, and the Mashreq Digital Dialogue &
DD Watch Advisory Services and Analytics (ASA)), means that the Program will not require an IPF component. As needed,
it will also mobilize available TA already identified through donor mapping (see the implementation support plan in Annex
6), while also financing the sizable program of expenditures earmarked by the GOJ for the implementation of the public
sector modernization and digital transformation agendas.
II. PROGRAM DESCRIPTION
A. Government program
14. The government program supported by the Program is delineated by the intersection of the EMV, the Public Sector
Modernization Roadmap, and the National Digital Transformation Strategy and Implementation Plan for 2021-2025
(See Figure 1). The EMV for 2033, approved by the GOJ in August 2022, is the overarching government agenda. It is
underpinned by the Public Sector Modernization Roadmap, approved in August 2022, and the National Digital
Transformation Strategy and Implementation Plan for 2021-2025, which are both expected to be extended beyond their
initial timeline, upon review. Those programs of reforms target cross-cutting objectives—such as ease of access to and
quality of government services, government effectiveness, and transparency and accountability—as well as sector-specific
ones, such as education and health. In education, the government program aims to integrate the various tiers of education
to better align education outcomes to the market demand for skills. In the health sector, the focus is on improving the
oversight of the health sector and the management of health services.
15. The government program is also expected to benefit refugees and contribute to the implementation of the Jordan
Response Plan for the Syrian Crisis (JRP). The 2024-2026 JRP is under preparation, with an emphasis on the importance
of continued provision of basic services, notably education and health care. It also emphasizes the importance of fostering
inclusion and promoting livelihoods. The Program supports the JRP through the following mechanisms: (1) facilitating
refugee access to basic services through digital identification, through which refugees can also open e-wallets; (2)
incentivizing the improvement of health services (including through the rollout of electronic medical records (EMRs)) in
areas populated by refugees; and (3) expanding refugee access to the general secondary education examination (the
Tawjihi) by rolling out digital examination centers in camps and urban areas with a high concentration of refugees. During
implementation, the Program will coordinate with the United Nations High Commissioner for Refugees (UNHCR) on its
efforts in providing TA to support registration and the issuance of identification for refugees by incentivizing a more
streamlined, digitalized process. On the provision of education services to refugees, the Program will coordinate with KfW
on the establishment of examination centers and equipping schools with digital laboratories, and with United States
Agency for International Development (USAID) on the development of an item bank with competency-based questions
aligned with the new Tawjihi curriculum. On the provision of health services to refugees, it will coordinate efforts with the
European Union on supporting Hakeem systems in governorates with high concentrations of refugees, and with UNICEF,
USAID, and the World Health Organization (WHO) on shared health records.
Page | 5
Figure 1: Government program
Source: World Bank. Original figure developed for this report.
Note: HRM = human resource management; ICT= information and communication technologies.
16. The government program of expenditure includes relevant budget lines within the budgets of implementing
agencies. The program of expenditure amounts to a total of US$549.6 million over four years, 67.6 percent of which are
recurrent expenditures and 32.4 percent of which are capital expenditures (see details in the technical assessment in
Annex 2) and consists of the parts of relevant budget programs selected in the government’s general budget that underpin
the achievement of targeted results. The main components of the program of expenditure are:
• Prime Minister’s Office (PMO): A new budget line created for FY2023 is dedicated to the implementation of the
Public Sector Modernization Roadmap with a budget amount of JD 45.00 million (US$63.43 million) for 2024 and
the following years. It includes JD 30.00 million (US$42.50 million) for digital transformation. This budget line is
mostly transferred to line ministries, including MODEE, to finance the implementation of public sector reforms
and digitalization. Another budget line, although small (JD 100,000 (US$141,000) in 2024), is dedicated to the
financing of GSCs and is also included in the expenditure framework. This component of the program of
expenditure amounts in total to JD 172.90 million (US$243.60 million) over four years.
• Ministry of Education (MOE): in the budget program for secondary education, a budget line amounting to JD
23.80 million (US$33.55 million) per year (that is, US$120 million over four years) is earmarked for the Tawjihi
exam. It amounts to most of the MOE budget included in the program of expenditure, along with limited
expenditure for equipment and maintenance for the examination centers. Since this budget line is already
included in the expenditure framework of the Jordan Education Reform Program (P162407), which closes on May
31, 2025, it is only captured under the expenditure framework of the Program starting from June 2025. This
component amounts in total to JD 102.10 million (US$144.05 million) over four years.
• Ministry of Health (MOH): Various budget lines are earmarked for the digitalization of the health sector and for
improvement of the quality of health services. They are included in the expenditure framework for their relevance
Page | 6
to the achievement of targeted results. This component amounts in total to JD 82.65 million (US$116.45 million)
over four years.
• Ministry of Digital Economy and Entrepreneurship (MODEE): A full budget program is dedicated to e-
government. Relevant budget lines for the Program are included in the expenditure framework for a total amount
of JD 16.70 million (US$23.50 million) from March 2027 onwards, since prior to that, the budget program is already
included in eligible expenditures for the YTJ (P170669) that closes on February 28, 2027.
• Service and Public Administration Commission (SPAC), which replaced the Civil Service Bureau from January 1,
2024: Its entire budget is captured for a total amount of JD 16.70 million (US$23.55 million) over four years.
• Ministry of Planning and International Cooperation (MOPIC): A single budget line in the 2024, 2025, and 2026
budgets of the Department of Statistics (DOS) are earmarked for the completion of the 2025 population census.
It is included in the program of expenditure for a total amount of JD 24.00 million (US$33.80 million). This budget
line was not included in the DOS budget for 2023, which is part of the program of expenditure of the Jordan
Transparent, Inclusive and Climate Responsive Investment PforR.
B. PforR Program Scope
17. The Program supports the achievement of three cross-cutting strategic objectives of the government reform agenda
(service delivery, government effectiveness, and transparency and accountability) by leveraging government
digitalization across the board with a focus on human capital (health and education) and the refugee agenda.
Accordingly, the Program boundary is delineated by three Result Areas (RAs) (See figure 2):
1) Service delivery through digitalization
2) Government effectiveness through digitalization
3) Transparency and accountability through digitalization.
Within each RA, entry points for support are mostly cross-sectoral and foundational to governance reform. They focus on
the governance reforms that leverage government digitalization and directly impact the interaction of government with
people, including non-Jordanians amongst whom refugees. The Program supports the adoption of digital identification
and e-services, the digitalization of health services, the professionalization of the civil service, including through digital
skills enhancement, the digitalization of student assessment in secondary education, e-information, and the availability of
interactive statistical data. Within each cross-cutting RA, the Program supports digital transformation in two specific
sectors that rank high on the government’s digital transformation and development agenda—education and health—in
the expectation that it will lead to significant improvements in education and health outcomes. In the education sector, it
focuses on the digitalization of the Tawjihi, in alignment with the World Bank’s support for education reforms and
digitalization under two ongoing operations (the Jordan Education Reform PforR and the YTJ). In the health sector, the
Program supports the foundational stages of digital transformation to help improve the access to and quality of health
services, as well as promote greater efficiency in public spending on public health.
18. The Program also facilitates access for Syrian refugees to education and health e-services and supports their digital
identification. Jordan hosts an estimated at over 1.3 million Syrians, of whom 673,238 are registered refugees with
UNHCR. An estimated 82 percent of refugees live outside the camps and rely on existing infrastructure and service delivery
systems, adding additional demand on those systems, including the health, education, and municipal services. Registered
refugees have access to subsidized healthcare and education. According to the MOE, 149,000 Syrian children are currently
enrolled in schools, and an estimated 414,500 refugees availed health services in 2023, according to the MOH. As outlined
in the JRP, the annual cost of public services for Syrian refugees is estimated at US$480.00 million. An additional US$253.00
million per year in investments is required to improve the quality of services. Three direct potentially quality-enhancing
Page | 7
benefits have been identified in alignment with the 2024-26 JRP: (1) refugees’ access to e-services, public and private,
through digital identification; (2) the improvement of health services (including through EMRs) in areas populated by
refugees; and (3) access for refugees to higher education. In this regard, the relevant targeted Program results are
specifically aimed at benefitting Syrian refugees.
19. The timeline of the Program is four years. The timeline of the EMV extends until 2033, while the Public Sector
Modernization Roadmap is only for three years (2023 to 2025). It is expected that a significant part of the Program targeted
results, such as the full digitalization of government procedures and services, as well as the professionalization of the civil
service, will take longer than the Program’s timeline to achieve. Accordingly, the Program will be implemented from 2024
to 2028, with a closing date of June 30, 2028.
20. The Program promotes social and gender inclusion and accessibility. It promotes social and gender inclusion in access
to e-services, education, and health, for both Jordanians and non-Jordanians - amongst whom refugees). It further
promotes gender equity in recruitment and promotion to senior positions in the civil service. The public sector in Jordan
employs approximately 40 percent of working women and most applicants (up to 75 percent) for civil service jobs are
women. However, even though women account for nearly half of civil servants (45 percent), they are underrepresented
among senior executives (only 20 percent of secretary generals are women according to the 2023 GoJ’s HRM strategy in
the civil service for 2023-2027). Recent gender audits of two public sector institutions carried out by the Jordanian National
Commission for Women identified the need to improve gender mainstreaming, so as to ensure equal opportunities for
women to assume leadership positions as well as to engage in digital jobs created in the public sector. Furthermore, as
the government continues to digitalize its services and introduce citizen engagement platforms, the gender digital gap
around the adoption of digital ID and access to digitalized services through GSCs will be addressed.9 Women will directly
benefit from the Program in three main ways: (1) through improved representation in senior positions in the civil service
as a result of competency-based promotions and human resource management (HRM); (2) enhanced digital skills of
women employed by the government and applying for jobs in the civil service; and (3) gender-balanced and inclusive
access to and use of DPI and trusted, user-centric digitalized services, including through the equitable expansion of Sanad
coverage, free access to the internet in the GSCs, and facilitation of access to services for women, persons with disabilities,
and refugees through appropriate staffing at the GSCs. Also, persons with physical disabilities and elderly people (over 65
years of age) will benefit from the facilitated access to government services through GSCs, including because of the
enforcement of accessibility guidelines contained in the 2022 Jordan Government Websites Standards. These aim to make
the Jordanian government websites more usable, user-centric, and universally accessible. Specifically, they prescribe in
detail how government websites “should be developed with universal accessibility to allow the site to reach those who
are trying to access the website regardless of their type or disabilities (physical or visual).” They are also aligned with
international standards on web content accessibility.10
21. The Program will apply at the national level and also support decentralized service delivery. The Program aims to
extend the reach of digital government across the country, it supports the full coverage of EMRs to all public health
facilities, and it also supports the establishment of GSCs across governorates. While the Program does not focus specifically
on the lower tiers of government (such as municipalities), it promotes access to e-municipal services through GSCs and
the e-services government platform Sanad.
22. It is not expected that any activity or contract will be excluded from the Program, in accordance with the Bank’s
Policy and Directive on Program-for-Results Financing and the rationale for such exclusion. The Program does not
finance the purchase by the GOJ of any large IT systems under high-value contracts. The 2020 government cloud policy
promotes the use of cloud services across government entities. MODEE provides them with cloud infrastructure (through
the government’s private cloud). Further, IT developments are usually funded through fee for services rather than through
9
Only about 800,000 of the nearly 11 million ID holders have activated their digital IDs on Sanad as of January 2024, and only 35
percent of those are women. Similarly, of the 90,000 visitors to the two existing GSCs since their inauguration, fewer than 20 percent
have been women (the exact percentage is not available because MODEE has not been collecting GSC visitor demographics thus far).
10
MODEE. 2022. Jordan Government Websites Standards.
https://www.modee.gov.jo/ebv4.0/root_storage/en/eb_list_page/government_websites_guidelines_2022_v2.0_-en.pdf.
Page | 8
capital investment. The expenditure framework only includes limited capital expenditure earmarked for IT equipment,
essentially small servers and networks at health facilities and exam centers and some upgrades to data management
systems.
Figure 2: Program Boundaries
Government program Program boundaries
Economic Modernization Vision
Future Services
- ICT services: developing a future-ready highly skilled
workforce and creating a cabinet level department at PMDU
Digitizing Unit to drive and oversee the end-to-end digitized
services for citizens and investors and rolling-out of 5G
services.
- Healthcare: launching digital transformation of the
healthcare system.
Smart Jordan
- Education: reforming curriculum & pedagogy across the Result area 1: Improved Service delivery
education ladder, as well as reviewing, implementing, & through digitalization
mandating educator training program
- Data: developing a detailed National Data Strategy,
activating regulatory framework for data collection, exchange, Expanding trusted and inclusive access to people-
and establishing a National Information System to empower centric digitalized services
citizens, businesses, and governments in making evidence-
based decisions. Increasing the inclusive adoption of people-centric
Public Sector Modernization Roadmap digital public infrastructure (DPI)
Procedures and digitalization: agile, harmonious and
automated procedures that achieve complementarity and Enhancing medical record management
expedite digitalization, and support smart management and
efficient spending.
Result area 2: Enhanced government
Policy & Decision-making: adopt anticipatory plans that are
linked and cross-governmental in a participatory and effectiveness through digitalization
comprehensive manner, that employs digitization, simulation
and impact assessment to support the evidence-based Professionalization of civil service
decision and policy making process.
Human Resources: empowered, responsible and competent Digitalizing student assessment
leaders and talents, effective, specialized and ready for the
future, able to elevate performance and fulfill national visions Improving health information exchange
and priorities, employment, managed and retained as needed
based on equal opportunity and merit, which contributes to
enhancing the principle of reward and punishment.
Result area 3: Transparency & accountability
Government services: Citizen centered government through digitalization
services.
Digital transformation strategy Enhancing e-information
E-participation: transparency, accountability, unified e-
portal for e-participation Broadening access to interactive statistical data
Digital government services: digital by default, one-stop
shop, once-only principle, simple, fast, satisfactory services, Strengthening health data quality
leaving no one behind
Digital infrastructure: digital transformation technologies,
cloud platforms, digital ID, e-payments, Jordan as a platform,
broadband/fiber, Secure Government Network (SGN)
Data: national information system, classification of
government
Source: personal
data,PSM
EMV 2033, data protection,
Roadmap & Digital 0pen data
Transformation Strategy; World Bank staff.
Page | 9
23. The Program is financed through an International Bank for Reconstruction and Development (IBRD) loan and a grant
from the Global Concessional Financing Facility (GCFF) and expected to be co-financed by the Italian Agency for
International Cooperation (AICS) (Table 1). Jordan is eligible for the GCFF and the GOJ sent an application for financing to
its Steering Committee following appraisal and a grant of US$ 29 million has been confirmed. A bilateral donor, the AICS,
has confirmed its willingness to co-finance the Program with a concessional loan of €50 million (US$54.34 million), focusing
its co-financing on health-related disbursement-linked indicators (DLIs). The AICS loan will be processed in parallel and is
expected to become effective after AICS board approval scheduled in April 2024.
Table 1: Program Financing Sources
Source Amount (US$, millions) Percentage of Total
International Bank for Reconstruction and Development
321.00 79.39%
(IBRD)
Global Concessional Financing Facility 29.00 7.17%
Italian Agency for Development Cooperation (AICS) 54.34 13.44%
Total External Program Financing 404.34 100%
C. Theory of Change
24. The Theory of Change (Table 2) is structured around the Program’s three RAs:
• RA1 on improved service delivery through digitalization
• RA2 on enhanced government effectiveness through digitalization
• RA3 on transparency and accountability through digitalization.
25. The Program builds synergies across its results framework. The strengthening of trusted and people-centric DPI under
RA1 will bolster the digitalization of the education and health sectors and competency-based management in the civil
service in RA2 and RA3. Specifically, secondary education diplomas will be digitally verifiable using DPI, which will not only
increase trust in their authenticity but also allow them to be shared easily in a people-centric way (that is, with user
consent and data minimization). For core health systems, such as those that manage EMRs, their integration with trusted
DPI will improve the protection of sensitive health data while facilitating safe data sharing capabilities. The Program’s
results framework is further underpinned by three main cross-cutting dimensions across the three RAs:
1) People-centricity, that is, a focus on output- and outcome-level results at the interface between government and
the people (across e-services and in the education and health sectors).
2) Data generation and use for performance monitoring and evaluation (M&E) to inform policymaking and
implementation (through the release of interactive statistical data and the use of health quality data).
3) Direct and indirect benefits to Syrian refugees, since the Program supports enhanced refugee access to e-services
and digital ID, the digitalized secondary education examination, and e-health services. Disaggregated statistical
and administrative data will help provide evidence on socioeconomic indicators and inform policy dialogue.
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Table 2: Theory of Change
Note: DPI= digital public infrastructure; GRM=grievance redress mechanism; GSC=Government Service Center; TA=technical
assistance.
D. Program Development Objective and PDO-Level Results Indicators
26. The Program Development Objective is to improve people-centric service delivery, government effectiveness, and
transparency and accountability through digitalization.
27. PDO-level indicators focus on the outcome of DLIs across RAs, including for refugees. Under RA1, the PDO-level
indicators focus on the uptake of digital services, including health services. Under RA2, the PDO-level indicators focus on
Page | 11
the outcome of the digitalization of student assessment and of the professionalization of the civil service in terms of
gender equity; and under RA3, the PDO-level indicator focuses on e-participation as an outcome of e-information.
Result Area 1 on improved service delivery through digitalization: the PDO-level indicators are:
1) The number of individuals accessing digitalized public- and private-sector services using trusted, people-
centric DPI, which is enabled by increasing the inclusive adoption of people-centric digital identity and improving
trusted, people-centric data sharing. To promote social inclusion, the indicator consists of sub-indicators for type of user
(women, elders, refugees), as well as type of access (remote and GSC). The objective is to increase access to trusted and
people-centric digitalized services, whose uptake has been limited despite the activation of over 800,000 digital IDs on
Sanad (as of January 2024).
2) The number of beneficiaries who actively use patient-centric digital services offered through a national EMR
platform as an outcome of digital transformation in health service delivery. The indicator is disaggregated for Syrian
refugee users. Available patient-centric digital services include booking medical appointments and viewing select medical
information, including active and pending medications, recent immunization records, pending and completed laboratory
test results, allergies, vital signs, medicine refills, and delivery of health services for non-communicable diseases.
Result Area 2 on enhanced government effectiveness through digitalization: the PDO-level indicators are:
3) Increased student trust in the fairness of the general secondary education examination (Tawjihi) as an
outcome of the digitalization of student assessment. A recent survey11 reflects a widespread lack of trust in the fairness
of the exam by most students (47 percent). It is expected that the digitalization of the exam will enhance the perception
by students of its objectivity and fairness.
4) Increased representation of women in leadership positions in the civil service as a result of performance-
based promotions and competitive recruitment. In 2020, women were officially appointed to only 16 percent of
leadership positions in the civil service. The Program aims to improve the gender balance in leadership positions with
more performance-based promotions and competitive recruitments as a result of digital skills enhancement and by
leveraging the use of the Human Resource Management Information System (HRMIS) and other HRM digital platforms.
Result Area 3 on transparency and accountability through digitalization: the PDO-level indicator is:
5) Improved e-participation as an outcome of enhancing e-information and of interactive statistical
information. Jordan’s rating under the e-participation indicator of the UN E-Government Development Index in 2022 is
above the world average. However, it is far below regional best performers. It is expected that improved access to e-
information and online official communications concerning the implementation of the government program will
significantly enhance Jordan’s rating.
E. Disbursement-Linked Indicators and Verification Protocols
28. A total of 10 DLIs (Table 3) have been selected using the following selection criteria: (1) they reflect objective and
tangible results, as officially targeted in government policy documents (including budget documents); (2) they are
underpinned by a substantial program of expenditure in the government budget; (3) they mobilize government digital
systems that are already operational; and (4) they often target specific social groups (including women, elders, and
refugees) for the sake of social inclusion. Among a range of options meeting those criteria, they have been selected
based on their readiness for achievement, and their measurability and verifiability, as well as the likelihood that they
can be achieved during the Program’s timeline considering the institutional capacity of implementing agencies. The
11
Centre for Strategic Studies-University of Jordan. 2022. Public Opinion Poll: Tawjihi, Universities and the Unified Admission
System. https://view.officeapps.live.com/op/view.aspx?src=https%3A%2F%2Fjcss.org%2Fwp-
content%2Fuploads%2F2022%2F10%2FThe-pulse-of-the-Jordanian-street31English.docx&wdOrigin=BROWSELINK.
Page | 12
pricing of the DLIs is commensurate to both (1) the underlying budget cost of their achievement, and (2) the criticality
of their achievement for the achievement of the PDO.
Table 3: DLI Matrix and Rationale
DLI No. IBRD Co- Total Rationale for Selection and Pricing
financing financing financing
(US$ by AICF (US$
millions) (US$ millions)
millions)
Result Area 1 on Improved Service Delivery Through Digitalization
DLI1 on expanding 40.00 - 40.00 a. Limited adoption of digitalized services.
trusted and inclusive b. Inadequate accessibility and inclusiveness of digitalized services for women
access to people- and other vulnerable groups (including non-Jordanians - amongst whom
centric digitalized refugees, elders, and persons with disabilities).
services
DLI2 on increasing 20.00 - 20.00 a. Lack of trust in digitalized services due to low adoption of DPI by public and
the inclusive private service providers and individual users.
adoption of people- b. Inadequate accessibility and inclusiveness of DPI for women and other
centric digital vulnerable groups (including non-Jordanians – amongst whom refugees,
identity elders, and persons with disabilities).
DLI3 on improving 20.00 - 20.00 a. Inadequate data protection due to lack of user centricity, user control of
trusted, people- personal data, and transparency.
centric data sharing
DLI4 on digital 63.00 18.34 81.34 Partial coverage of the national EMR system developed and deployed to only
transformation of some of the MOH facilities over the last 10 years. For the remaining MOH
health service facilities, the MOH intends to complete the installation and operationalization
delivery within the next five years. This is in accordance with its strategic plans, which
will ensure full coverage and operationalization, thus promoting patient access
to e-health services, including for refugees.
Result Area 2 on Enhanced Government Effectiveness through Digitalization
DLI5 on 60.00 - 60.00 a. Prevailing seniority-based HRM in the civil service.
professionalization b. Need to enhance digital skills across the civil service.
of the civil service c. Underrepresentation of women in leadership positions.
DLI6 on establishing 29.00 18.00 47.00 a. Absence of a national HIE framework and multiplicity of health information
digital health systems.
standards across a b. Need to establish standards (including foundational registries and coding)
national Health to enhance the interoperability of health information systems.
Information
Exchange (HIE)
DLI7 on digital 50.00 - 50.00 a. Low trust in the fairness of student assessment for the general secondary
student assessment education examination.
b. High fiscal cost of the exam.
c. Limited access to the exam for refugees living in camps.
Result Area 3 on Transparency and Accountability through Digitalization
DLI8 on enhancing e- 30.00 - 30.00 a. Weak enforcement of the 2007 Access to Information Law on proactive
information disclosure of information and response to requests for information.
b. Opportunity to enhance government reporting to the public online about
progress achieved towards economic and public sector modernization.
DLI9 on interactive 30.00 - 30.00 Important gaps in open data coverage and openness to be mitigated by
statistical establishing a national data repository with an interactive interface and
information protocols to allow access to the data for policy analysis and research purposes.
DLI10 on 8 18.00 26.00 a. Weak health data management.
institutionalizing b. Need to institutionalize the data quality assurance mechanism in place,
effective health data establishing data quality standards and conducting routine assessments.
use c. Opportunity to better utilize quality data for more effective and timely
decision-making.
Front-end Fees 0.8025 TBD d.
Total 350 54.34 404.34
Page | 13
III. PROGRAM IMPLEMENTATION
A. Institutional and Implementation Arrangements
29. The Program builds on the institutional framework established for the implementation of the Public Sector
Modernization and Digital Transformation Strategy under the umbrella of the EMV. This institutional framework rests
on three main government entities: the PMO, MOPIC, and MODEE, which are vested with cross-cutting responsibilities.
Their respective roles are officially delineated in the three strategic documents that frame the government program.
(See detailed distribution of responsibilities assigned to the PMO, MOPIC and MODEE for the implementation of the
government program in the technical assessment). At the cabinet level, the two main Inter-Ministerial Committees
oversee the implementation of the EMV (the Economic Development Committee) and the Public Sector Modernization
Roadmap (the Public Sector Modernization Committee). Both are chaired by the Deputy Prime Minister for Economic
Affairs and the Minister of State for Public Sector Modernization. At the Royal Court, a Vision Unit monitors progress
on the implementation and results of the EMV. Such coordination will be ensured through (1) the convening of a
Program Technical Steering Committee consisting of representatives from the Program ’s implementing agencies,
chaired by MOPIC in coordination with the PMO and MODEE; and (2) reporting by MOPIC in coordination with the PMO
and MODEE on Program implementation to the Inter-Ministerial Committee on Public Sector Modernization.
Coordination between the PMO, MOPIC, and MODEE will also be facilitated by MOPIC’s leveraging of resources available
under the Reform Support Fund to support public sector efficiency under the Reform Matrix, as well as the mobilization
by the PMO of its budget line for public sector modernization and digitalization (with JD 45.00 million (US$ 63.50 million)
budgeted in 2023 and the next two years). It will support the achievement of targeted results under the Program.
30. The program management unit (PMU) will be anchored at MOPIC. Assigned responsibilities to the PMU include:
(1) coordination of the Program’s implementing agencies, including under the relevant Inter-Ministerial Committees
and Program Technical Steering Committee; (2) implementation progress monitoring and reporting to the political
leadership at the cabinet level and to the World Bank; (3) TA and capacity building to Program implementing agencies,
including by leveraging donor support; (4) compliance with social and environmental safeguards, including with regard
to stakeholder engagement, disclosure of information, and grievance redress; and (5) compliance with fiduciary
requirements, including financial management (FM), integrity, and procurement. MOPIC already has experience
coordinating the implementation of two large World Bank PforR operations (namely, the Economic Opportunities for
Jordanians and Refugees PforR, and the Jordan Transparent, Inclusive and Climate Responsive Investment PforR). It also
manages the Jordan Growth MDTF, including the Reform Support Fund under the Strengthening Reform Management
under the Recipient-Executed Trust Fund (RETF). It can provide both Bank- and recipient-executed TA for the
achievement of the Program’s targeted results, just as it already does for the Jordan Transparent, Inclusive and Climate
Responsive PforR. In addition, the DOS under MOPIC will be responsible for DLI9 concerning interactive statistical data.
31. The Program’s institutional set up includes three sector line ministries (MODEE, the MOE, and the MOH) and the
SPAC, the newly established authority on civil service and service delivery, in addition to MOPIC and the PMO.
• The MOH is responsible for the targeted digitalization of health services through the mainstreaming and
operationalization of EMRs, enhanced health data management and the exchange of information (DLIs 4, 6, and
10).
• The MOE is responsible for the digitalization of the Tawjihi and the strengthening of teachers’ digital skills (DLI7).
• MODEE is responsible for supporting the government’s digital transformation. It is specifically responsible for
the operationalization of DPI to access e-services and the adoption of digital identity (DLIs 1, 2, and 3).
• SPAC is responsible for the professionalization of the civil service (DLI 5).
• MOPIC is responsible for making statistical data interactive (DLI9).
Page | 14
• The PMO is responsible for reporting to the public concerning progress achieved in the implementation of the
EMV, as well as overseeing the enforcement of access to information (DLI8). It is also responsible for driving the
overall public sector modernization and digitalization agenda.
B. Results Monitoring and Evaluation
32. The verification of results will be vested with a single independent verification agent, the King Abdullah Centre of
Excellence (KACE), which has technical expertise in institutional performance assessment. It is independent from the
GOJ and has demonstrated capacity to assess institutional capacity and performance, including by granting the King
Abdullah Excellence Award for government performance and transparency to reward excellence and innovation in public
service. The KACE recently introduced a new assessment model for how public entities meet the requirements and
expectations of citizens in obtaining better quality government services. Specifically, it captures effectiveness in planning,
implementation, and transformation through eight criteria: (1) national and sectorial strategic directions; (2) leadership
role; (3) institutional strategic planning; (4) government resource management; (5) government workflow management;
(6) knowledge management; (7) institutional learning; and (8) change and innovation management. It mobilizes a long
roster of certified assessors and convenes former government officials whose authority is recognized. The KACE’s
institutional assessments of implementing agencies will also help to identify capacity needs to be addressed, including
through TA to be provided by donors, such as the German Agency for International Cooperation (Deutsche Gesellschaft
für Internationale Zusammenarbeit) (GIZ) under its service contract with the KACE (see donor-funded activities in Annex
6 on the Implementation Support Plan).
33. The achievement of targeted results will also be discussed with stakeholders through the ESCJ. The ESCJ is an
advisory body that consists of representatives from government, the business community, and civil society. It is mandated
to provide the GOJ with policy advice and to conduct policy impact evaluations. In this context, the GOJ requested that it
conduct a consultation with stakeholders of the Public Sector Modernization Roadmap, and it has publicly disclosed their
feedback.12 It publishes a State of the Country Report annually, as well as assessment reports, including in partnership with
international organizations (such as its Report on Gender Equality). These reflect both its technical expertise and capacity
for independent evaluation. Finally, it will conduct impact assessments of Program implementation with financial support
from GIZ.
34. The achievements of the Program will also be publicly reported by the PMDU in its periodic reports on the
implementation of the EMV, which the Public Sector Modernization Roadmap supports. This will significantly enhance
transparency and social accountability under the Program by leveraging a critical M&E mechanism. This mechanism is
established for the implementation of the EMV because the PMDU is vested with the responsibility “for the delivery of
the Vision initiatives, associated KPIs and ensur[ing] continuous coordination between ministries and public institutions.”
It calls for the establishment of delivery units across ministries and agencies to provide the PMDU with feedback on the
implementation of the vision. The PMDU has started reporting to the public and envisages that it will focus its reporting
on government priorities and key performance indicators (KPI) already included in its dashboard but not yet tracked. Some
of those priorities and KPIs are directly relevant to the Program. This would provide the Program with more visibility, thus
further anchoring it into the government’s reform agenda.
C. Disbursement Arrangements
35. The Program will disburse an advance of 25 percent of its total amount when the project is declared effective. The
advance will help finance expenses (both in terms of capital spending and recurrent expenditures), predicated on the
achievement of initial results: for example, the upgrading, deployment, and operationalization of IT systems (such as
myHakeem for the management of medical records or the digitalization of government archives); the completion of the
population census to generate microdata sets; or the operationalization of GSCs across governorates and examination
centers (to run digital student assessments), and so on.
12
ESCJ. 2023. Outcomes of the National Dialogue on Public Sector Modernization Map . https://www.esc.jo/Documents/2cf138c1-
4d81-491d-8c41-bf675fd8896e.pdf.
Page | 15
36. It will also disburse upon project effectiveness against the achieved targeted prior results (such as the official
approval of critical pieces of legislation, and so on). Those results have been identified and selected as strictly necessary
to the achievement of disbursement-linked results (DLRs) downstream.
37. Most DLIs are scalable to allow for incremental progress, as should be expected regarding targeted results. Apart
from prior results, no targeted results are timebound, thus allowing for greater flexibility. Their scalability also allows for
the frontloading of the achievement of targeted results.
38. The proceeds of the loan are not earmarked to any implementing agency because the identified expenditure
framework should ensure their adequate financing for the purpose of the Program. However, three financial
mechanisms are proposed to secure their adequate funding for Program implementation, with two of them already being
leveraged by the GOJ:
• Prioritization by the Ministry of Finance (MOF) of the release of budget lines deemed necessary to the
achievement of targeted results and included in the program of expenditure.
• Capacity building provided by MOPIC through the mobilization of resources from the Jordan Growth MDTF. This
is a continuation of activities already ongoing.
• Transfers of funds by the PMO from its budget line earmarked for public sector modernization and digitalization
to implementing agencies in continuation of current practice.
Also, the institutional assessment of implementing agencies conducted by the KACE each year could help identify capacity
needs, which may in turn call for additional fiscal resource allocations. This will inform further policy dialogue between
the World Bank and the GOJ regarding both human resource and budget allocations to implementing agencies during
Program implementation during the course of supervision missions.
D. Capacity Building
39. The Program will leverage capacity building for Program coordination and implementation. The PMU and the
implementing agencies will need to strengthen their capacity. At MOPIC, the PMU will need to strengthen its capacity for
the management of an additional PforR operation (that is, ensuring adequate staffing for environmental and social (E&S)
safeguards; M&E; stakeholder engagement and communications; and FM and procurement), as well as technical expertise
to manage public sector reforms. It is well funded for that purpose under the Jordan Growth MDTF. As it is, the Reform
Secretariat, funded by the Strengthening Reform Management RETF (P178480), partially but not fully meets those capacity
requirements. Thus, the following decisions are called for:
• The appointment of a Program Manager to work at least half-time on the Program for its duration (four years).
• The assignment of an experienced E&S safeguards specialist (who will also be in charge of stakeholder
engagement) and M&E specialist (who will also be in charge of communications) for the duration of the Program,
to work at least half-time on the Program.
• The recruitment of two to four seasoned public sector reform and digital transformation technical experts as part-
time consultants for the duration of the Program.
It is also expected that the Reform Secretariat will mobilize the Reform Support Fund it is managing to provide TA to
implementing agencies as it already does, including the PMO. This will help to ensure adequate oversight of the
implementation of the Public Sector Modernization Roadmap and the strengthening of e-information. MODEE already
benefits from substantial TA for e-government from the YTJ, which will be under implementation for another four years.
40. The Program calls for each implementing agency to assign Program implementation to a senior executive, who will
serve as a focal point, including for training in all matters pertaining to Program coordination and management. Focal
Page | 16
points are senior officials to be officially appointed and empowered by the chief executive of their respective
implementing agencies to push for and facilitate the achievement of results vested with their agency under the
implementation arrangements and to coordinate with the PMU on overall Program implementation. They will report on
progress and the achievement of results, as well as any bottlenecks and challenges. In addition, they will coordinate with
other implementing agencies and the PMU, including acting as the representative of their implementing agency on the
Program Technical Steering Committee. They will need to be trained by the PMU within six months after project
effectiveness for their respective responsibilities regarding E&S safeguards, M&E, and stakeholder consultations, as
specified in the Program Operations Manual (POM).
41. For capacity building, the Program will leverage ongoing TA provided in parallel by the World Bank and other
donors. The Jordan Growth MDTF will provide the necessary resources to support Program implementation because
public sector reforms fall under the Reform Matrix, whose coordination it assists both through recipient- and Bank-
executed activities. The ID4D MDTF will also provide support through Bank-executed TA. The RETF will finance the
operating costs of the PMU and TA provided by it to implementing agencies through the Reform Support Fund for the
duration of the Program. In consultation with the GOJ, the World Bank team has also identified the need for Bank-executed
TA, and the GOJ will apply to the MDTF Steering Committee for resources to finance needed activities. Substantial TA is
already provided by other donors to implementing agencies across the Program’s RAs. MOPIC will coordinate donor
assistance to leverage such TA for the achievement of targeted results. This coordination will be formalized and reflected
in the POM to ensure that TA effectively contributes to strengthening the capacity of implementing agencies. It will also
take into consideration the specific capacity needs of the PMO and of the SPAC. (See the detailed mapping of relevant
donor-funded TA for Program implementation in Annex 6: Implementation Support Plan).
IV. ASSESSMENT SUMMARY
A. Technical
42. The design of the Program is informed by extensive background analysis, policy dialogue, and operational
experience with governance reforms, including digital reforms, in Jordan. The World Bank has commissioned a range of
assessment reports of the transparency and accountability systems (such as the 2007 Access to Information Law and the
government’s grievance redress platform called At Your Service), service delivery (e-service public value assessments,
effectiveness of the judiciary system), and government digitalization (a GovTech diagnostic and a diagnostic on DPI are
being finalized). In 2022, the World Bank also applied the Country Level Institutional Assessment to Jordan, which
benchmarked it based on a range of governance indicators. The Bank also engaged in policy dialogue with the
governmental committee that drafted the Public Sector Modernization Roadmap and provided it with several on-demand
policy briefs (for example, on performance management, the governance of public-private partnerships, the governance
of accountability institutions and mechanisms, the planning function, the role and functions of the center of government,
policymaking, and change management) to inform the drafting of the roadmap. Finally, the World Bank is engaged in
policy dialogue and providing TA on service delivery (including for the drafting of policy documents such as a Service
Delivery Manual by the PMO) and supports the strengthening of statistical information under the Jordan Growth MDTF.
43. Background analysis and international benchmarks inform the scope and design of the Program across its RAs,
including its focus on health and education.
• World Bank diagnostics and international benchmarks warrant the leveraging of government digitalization under
the Program, including for service delivery. Although Jordan ranks among the best performers across the world
(in group A under both the 2022 World Bank GovTech Maturity Index and the UN E-Government Development
Index) in terms of its scoring and ranking on government digitalization, there is room for improvement on
modernization and interoperability of core systems, monitoring of the use and performance of digital platforms,
and digital citizen engagement. Under the UN’s E-Government Development Index, Jordan’s score on e-services
shows a significant improvement, rising from a score of 0.36 in 2020 to 0.66 in 2022, while still lagging the best
regional performer.
Page | 17
• World Bank diagnostics and international benchmarks also warrant the Program’s sectoral focus on education and
health. According to the Global Digital Health Monitor 202313, the digital landscape in the health sector is
considered more mature in Jordan compared to neighboring countries in the MENA region, especially in
developing digital services and applications (see the technical assessment for further detail). However, due to
limited governance and multiple services and systems designed and operated in silos, health information systems
have been fragmented with inconsistent data standards and quality. The education sector has also been advancing
on the digital front. Jordan was one of the first countries in the region to respond to the COVID-19 pandemic and
school closures by developing an online learning platform called Darsak covering the curriculum’s core subjects of
Arabic, English, math, and science for grades 1 through 12. In addition, a newly launched platform for teacher
training offers courses on distance learning tools, blended learning, and educational technology. The MOE has
developed an integrated, comprehensive, flexible, and trusted educational management information system
(EMIS) using OpenEMIS, which provides a system that is accessible countrywide, covering over 2 million students,
7,300 schools, and 170,000 educational staff.
• World Bank diagnostics and international benchmarks also warrant the Program’s focus on transparency and
accountability. Under international governance indicators, Jordan is on par with other upper middle-income
countries, but it lags on voice and accountability. Regarding transparency, although Jordan was the first country
in the region to legislate access to information, it is poorly rated under the Right to Information Index and ranks
among the 15 percent least well-performing countries. According to an assessment of the whole of government
citizen feedback platform, only 33 percent of citizens filing a grievance using the At Your Service online
government grievance redress platform surveyed in 2022 had received any response. Opinion surveys reflect a
pervasive perception of corruption in government and the private sector. According to a 2022 opinion survey by
the Centre of Strategic Studies of the University of Jordan,14 94 percent of Jordanians believe that the economy
and administrative bodies are “plagued by corruption,” and 82 percent believe that the government is not serious
or willing to fight corruption.”
44. The Program’s implementation arrangements are informed by the distribution of responsibility across selected
implementing agencies for the implementation of the government program and an assessment of their institutional
capacity and build on ongoing TA provided by the World Bank and other donors. The PMU under MOPIC benefits from
substantial capacity building support from the Jordan Growth MDTF (through the IPF Strengthening Reform Management
in Jordan RETF (P178480)). Implementing agencies, including MODEE, the PMO, and MOPIC (DOS) also receive extensive
TA by both the World Bank and other donors (through the WB YTJ investment loan, and the Jordan Growth MDTF), and
additional donor-funded TA will be mobilized in support of Program implementation (see Annex 6 on the Implementation
Support Plan for details).
45. The economic justification of the Program rests on its expected impact on the implementation of the EMV. It should
strengthen the effectiveness of the government delivery mechanisms for economic modernization by professionalizing
the civil service; improving the output and outcome of public expenditures; and enhancing access and quality of service
in strategic areas targeted by the EMV under its pillar on welfare. By strengthening the governance framework and
oversight of the EMV, it improves the probability of it being successfully implemented and achieving its objectives in terms
of accelerating economic growth and improving living conditions through the enhancement of service delivery. The
Program also fosters the digital economy by supporting the provision of digital services to the government in the
implementation of the digital transformation strategy and digital upskilling. By supporting people-centered improvements
to service delivery, government efficiency and effectiveness, and transparency and accountability, it is further expected
to strengthen institutional quality, which in turn, positively correlates with economic growth. Improved trust in
government and better public service delivery have also been linked to increased tax compliance, which, together with
productivity improvements and cost savings from public sector modernization (for example, from the digitalization of
public services and efficiency gains from a more competent and effective public work force) have the potential to generate
13
See State of Digital Health around the world today – Jordan profile.
14
Centre of Strategic Studies-University of Jordan, 2023, Two & half years after its formation: Jordanians’ opinion of the government
of Dr. Bishr Al-Khasawneh.
Page | 18
additional fiscal space: the introduction of e-auditing and e-invoicing has already contributed to a significant increase of
tax revenue in 202315 and the digitalization of the Tawjihi will significantly reduce the high fiscal cost of its organization
(see further details in the technical assessment summary in Annex 2).
46. The Program is also aligned with the goals of the Paris Alignment on mitigation and adaptation. The Program does
not finance major infrastructure or IT infrastructure. It will support the financing of servers at the facility level in education
and health, and entail the procurement of IT equipment, which will have to comply with energy-saving and carbon-
emissions requirements for IT hardware under Jordan’s Regulation on the Procedures and Means of Energy Rationalization
and Improvement of Energy Efficiency issued in accordance with Article 18 of the Renewable Energy and Energy
Conservation Law No. 13 of 2012. Access to e-services and e-procedures supported by the Program should contribute to
reduced emissions from transportation, and the enhanced efficiency of government processes should reduce paperwork.
Regarding resilience to climate risks, the GOJ’s 2020 Cloud Policy mandates that MODEE “develop the Government Private
Cloud to ensure the delivery of effective and safe cloud services, in addition to developing the efficiency and security of
the Secure Government Network [and] managing and providing the current cloud services in addition to developing new
cloud services for government entities such as the Security as a Service (SecaaS) and Disaster Recovery as a Service (DRaaS)
and data storage service (Government Drive).” The government cloud is protected against climate-inflicted disasters, and
climate-related risks are considered unlikely to have a material impact on the achievement of the Program Development
Objective (PDO). The only IT system that will be supported by the Program, which is not anchored to the government
cloud, Hakeem in the health sector, is also protected against disaster risks, including those triggered by climate change,
through a separate disaster recovery data center. (See detailed climate co-benefits in the technical assessment summary
in Annex 2).
B. Fiduciary Aspects
47. The World Bank conducted a fiduciary systems assessment (FSA) to confirm that the Program’s fiduciary systems
provide reasonable assurance that the financing proceeds will be used for the intended purposes, with due attention
to the principles of economy, efficiency, effectiveness, transparency, and accountability. The FSA was completed by
assessing the implementing agencies' FM institutional capacity and reviewing the current knowledge about Jordan's public
procurement and public financial management (PFM) systems. An assessment was also done of existing analytical and
diagnostic analyses, published information, and reports. (See the summary of the FSA in Annex 3).
48. Jordan's PFM systems continue to evolve and modernize. The Public Expenditure and Financial Accountability (PEFA)
Assessment of 2022 confirms that Jordan has made strides in developing its PFM systems, including the high coverage of
the Government Financial Management Information System (GFMIS). Jordan’s central government budget classification
system meets Government Financial Statistics standards, and fiscal reports are largely comprehensive. The budget
preparation process works well, with a clear budget calendar that is complied with. Ceilings previously approved by the
GOJ are issued to spending ministries, and in-year resource allocations are relatively predictable. There are strong payroll
controls, and all government transactions take place through the Treasury Single Account. Bank reconciliation takes place
daily, and most suspense accounts are reconciled and cleared without delay. The internal control framework in Jordan has
continued to evolve and modernize. However, there is no evidence yet of benefits from the improvement in public
investment planning. Also, comprehensive procurement statistics are lacking. Furthermore, the role of the National
Assembly in holding the government to account seems to have been weakened. Many of the initiatives to improve PFM
remain a work in progress, and continuing efforts will be needed to secure the benefits in terms of economy and efficiency,
as well as better services for citizens.
49. Major public procurement reforms are ongoing. The new Procurement Bylaw No. 8 of 2022 has made significant
improvements to the legal and institutional framework, as well as the procedural aspects of public procurement. This
bylaw applies to all government entities and units. Two independent committees were established under it: (1) a
15
IMF, 2024, Request for an Extended Arrangement Under the Extended Fund Facility and Cancellation of the Current Arrangement
under the Extended Fund Facility.
Page | 19
Procurement Policy Committee, which is responsible for policymaking, oversight, and the development of the
procurement system; and (2) a Procurement Complaint Committee (PCC), which handles administrative reviews of
unresolved complaints from bidders who allege unfair treatment in the procurement process. The Procurement Bylaw
aligns with international good practices and adheres to principles such as transparency, fairness, economy, integrity, and
value-for-money. However, effective implementation is still a work in progress. Various implementation tools are currently
being developed, including standard procurement documents, evaluation templates for different types of procurement,
and a procurement planning template.
50. The Program implementation requires a substantial level of follow-up and coordination. The role of MOPIC as a
coordinating entity is crucial to monitor the achievement of DLIs, the timely submission of reporting on commitments and
arrears twice a year, and yearly annual external audit report submission to the Bank (not later than six months after the
end of each fiscal year). It will also entail coordination concerning the auditor’s findings, the application of
recommendations, and the resolution of findings and irregularities. The World Bank will conduct an annual review of
budget performance. The Program will require that: (1) appropriate procurement staff are allocated for the procurement
transactions and contract management; (2) sound procurement plans are developed yearly and updated quarterly
following the Annual Work Plans; (3) qualified technical experts are assigned to support the development of technical
specifications and procurement documents; (4) training pertaining to procurement processing and contract management
is deployed; (5) internal audit will advise on procurement processing to increase its efficiency; (6) the procurement cycle
will cover planning, procurement processing, contract management, and inventory and acceptance of deliverables; (7)
there is systematic coordination between the implementing agencies and the central procurement departments (namely,
the General Tendering Department (GTD) and the General Procurement Department (GPD)); (8) a central agency (for
example, MOPIC) coordinates and integrates the Program by a central agency (for example, MOPIC), especially for RAs
that include multiple agencies; and (9) a procurement complaint log is maintained and published through the Jordan
Online E-Procurement System (JONEPS) or agency websites.
51. The implementing agencies will execute the activities in accordance with the World Bank's “Guidelines on
Preventing and Combating Fraud and Corruption in Program-for-Results Financing,” dated February 1, 2012, and revised
July 10, 2015. The Program will build on preventive tools recently introduced by the Jordan Integrity and Anti-Corruption
Commission (JIACC) and its reporting on corruption cases to mitigate the risk of corruption. JIACC will report annually to
the World Bank concerning identified corruption risks under the Program based on its investigations.
C. Environmental and Social Systems Aspects
52. An environmental and social systems assessment (ESSA) has been prepared to assess the E&S systems at the
Program level. The ESSA assessed the potential E&S effects of the PforR, including direct, indirect, induced, and
cumulative, as relevant. It also assessed the borrower’s capacity (including legal framework, regulatory authority,
organizational capacity, and performance) to manage those effects and ensure that they are in line with the core principles
of the World Bank policy on PforR. An assessment was also done of identified measures to enhance both the E&S
management systems and E&S outcomes during Program implementation. The E&S risks and impacts of the Program were
assessed and mitigated in line with the relevant laws of Jordan. Specific actions were also suggested to address identified
gaps, and they will be implemented by the relevant implementing agencies under the Program. In addition, the
preparation of the ESSA was carried out in a participatory manner involving feedback and inputs from a variety of key
stakeholders relevant to the sectors covered under the Program, including governmental institutions in the health,
education, and public service areas, as well as CSOs and international donor agencies supporting the digital transformation
agenda of the country.
53. In addition to the E&S risks, which are rated as Moderate, the Program will have E&S benefits. It is expected to have
several positive E&S effects in areas such as improved service delivery; enhanced government accountability; increased
transparency and equal opportunities; and a reduction in climate-related emissions. The Program may also result in direct
adverse E&S impacts and risks. These could be related to: (1) e-waste generation; (2) a lack of a social assessment and
stakeholder engagement vis-a-vis the targeted reforms; (3) weak awareness of and access to government digitalization
Page | 20
programs, and a lack of digital inclusion and accessibility, especially for vulnerable groups; (4) the lack of a grievance
redress mechanism (GRM) system for the public sector, especially in view of the restructuring of the Civil Service Bureau
under the SPAC and the new recruitment strategy; and (5) weak protection of personal data. MOPIC, as the main
implementing agency, will dedicate the necessary E&S resources to oversee and manage the E&S risks and impacts of the
Program.
54. The ESSA concluded that the GOJ has relevant and robust national E&S systems covering all areas of the Program.
Where gaps in these systems in relation to the core principles of the World Bank’s PforR policy were identified,
recommendations to bridge those gaps were also identified. Those recommendations are addressed in the DLI verification
protocols, the PAP actions, and the POM requirements.
55. Consistent with the World Bank PfoR policy, the Program will exclude any activities that are likely to have
significant, sensitive, diverse, or unprecedented impacts to the environment and/or affected people . This includes
significant land acquisition; economic or physical displacement; changes in land use; and significant impacts to critical
cultural heritage sites or natural habitats. Screening criteria were developed as part of the ESSA, and they will be
incorporated into the POM.
56. The Program will utilize the government’s revamped centralized At Your Service GRM and any other existing
mechanisms employed by implementing agencies. The Program will also support improvements to these systems,
consistent with good practice, thereby enabling all Program-level grievances to be reported.
Citizen Engagement
57. The operation will support people-centric digitalization and governance reforms, as well as leverage digital citizen
engagement mechanisms across its results framework. It will help develop and operationalize existing and planned digital
platforms to be used for citizen engagement, such as the online At Your Service GRM, which is already used as the GRM
for the Transparent, Inclusive and Climate Responsive Investment PforR; the National Registry of Government Services to
measure improvements to service standards, including those based on user feedback (and also supported by the same
operation); digital archiving of government documents to facilitate compliance with legal requirements under the Access
to Information Law; and the DOS interactive statistical data portal. The Program will also leverage reporting to the public
by the GOJ on the implementation of the EMV, and capture stakeholders’ feedback through impact assessments by the
ESCJ of achieved results during Program implementation.16
Gender
58. Within the scope of the Program, two main challenges for gender equity have been identified:
1) Low representation of women in leadership positions in the civil service, estimated at 16 percent in the
Government’s HRM Strategy for 2023-2027. According to the Civil Service Commission 2020 annual report, only six
women held the position of secretary general in 2020 out of a total of 70 positions. This underrepresentation results
from a range of factors, including: an earlier mandatory retirement age for women; gender disparities in access to
training opportunities; a lack of career development opportunities and biased staff performance appraisals; and
insufficient protection against moral harassment of those in or aspiring to leadership positions. The Jordan National
Commission for Women is promoting gender diversity practices in the public sector with support from USAID. This
includes the adoption of such practices by public entities, which should help improve gender balance in positions of
leadership (legally defined as positions of directors and above: director general, assistant secretary general, and
16
For more details, see the ESCJ discussion in the technical assessment summary in Annex 2.
Page | 21
secretary general), which should have a significant impact on the quality of jobs for women, since most employed
women work for the government.
2) Potential gender inequalities in the access to and use of DPI. Although a slightly higher percentage of women (97.9
percent) own a physical ID than men (95.8 percent),17 as of January 2024, only 35 percent of the over 800,000 people
who have activated their digital ID on Sanad are women. Given the overall low activation rate of digital ID as well as
the existing gender gap in access to mobile phones and internet (21 and 10 percentage points, respectively),18 the
operation will focus on gender-equitable expansion of digital ID, ensuring that gender gaps are mitigated as the
system grows. Similarly, of the approximately 90,000 total visitors at the two existing GSCs since their inauguration,
fewer than 20 percent have been women.19 With the GOJ’s planned expansion to 15 GSCs nationwide, the operation
will focus on avoiding the creation of a gender gap in the utilization of GSCs and access to the services they offer.
59. Accordingly, the Program will promote gender equity as follows:
1) It will support the increased representation of women in leadership positions in the civil service. As such, it
mandates the conduct of gender audits in the MOE and the MOH (under the PAP). It will promote gender diversity
practices in HRM, and it will disburse against gender-responsive career development. It will also support the
enhancement of the digital skills of women applicants to jobs in the civil service (women represented close to 75
percent of over 430,000 applicants in 2020 and far more since then). This will help to improve their chances of
being competitively recruited in the civil service or to find a job in the private sector.
2) It will contribute to bridging the gender digital gap by promoting gender-balanced and inclusive access to and
use of DPI and trusted, user-centric digitalized services, including through the equitable expansion of Sanad
coverage, free access to the internet in GSCs, and facilitation of access to e-services for women, persons with
disabilities, and refugees through appropriate staffing at GSCs.
60. Grievance Redress. Communities and individuals who believe that they are adversely affected as a result of a Bank-
supported PforR operation, as defined by the applicable policy and procedures, may submit complaints to the existing
program grievance mechanism or the Bank’s Grievance Redress Service (GRS). The GRS ensures that complaints
received are promptly reviewed to address pertinent concerns. Project-affected communities and individuals may
submit their complaint to the Bank’s independent Accountability Mechanism (AM). The AM houses the Inspection
Panel, which determines whether harm occurred, or could occur, as a result of Bank non-compliance with its policies
and procedures, and the Dispute Resolution Service, which provides communities and borrowers with the opportunity
to address complaints through dispute resolution. Complaints may be submitted at any time after concerns have been
brought directly to the Bank's attention, and Bank Management has been given an opportunity to respond. For
information on how to submit complaints to the Bank’s Grievance Redress Service (GRS), visit
https://www.worldbank.org/GRS. For information on how to submit complaints to the Bank’s Accountability
Mechanism, visit https://accountability.worldbank.org.
V. RISK
61. The overall risk is moderate.
62. Political and governance: Moderate. Public sector reforms are expected to face resistance and inertia, which can only
be overcome with strong political leadership. The strong support of the King and oversight by the Royal Court is expected
to mitigate the risk of inaction or inconsistency across the government. The GOJ is aware of the social risks of the targeted
17
World Bank. 2021. ID4D global dataset.
18
World Bank. Second State of the Mashreq Women Report . https://www.worldbank.org/en/country/jordan/publication/second-
state-of-the-mashreq-women-report-who-cares-care-work-and-women-s-labor-market-outcomes-in-iraq-jordan-and-
lebano#:~:text=Based%20on%20the%20analysis%20and,needs%2C%20particularly%20for%20the%20most.
19
The exact percentage is not available because MODEE has not captured the demographics of GSC visitors thus far.
Page | 22
reforms under the Program (including civil service reforms), as well as the need to address concerns that could lead to
policy reversal (including those of incumbent government employees and applicants to the civil service under the current
noncompetitive recruitment process). Regarding transparency and accountability, public authorities are trying to find the
right balance between the realization that strengthening the social contract implies responding to social demand for voice
and agency, and security concerns, which are leading to recent measures stifling freedom of information (including the
enactment of the 2023 Cybercrime Law). While the risk of policy reversal is significant and successive attempts at public
sector reforms proved challenging to implement in the past 10 years, this risk will be mitigated by implementation
oversight by the Royal Court and the PMO, and by the PMO’s reporting to the public on government performance towards
the achievement of the strategic objectives of the EMV and public sector modernization and digitalization efforts, as well
as through stakeholder consultations, the mitigation of social risks, and support for policy dialogue under the Program.
63. Macroeconomic: Moderate. Generating the necessary fiscal space for the implementation of the public sector
modernization and digitalization agenda will be challenging given strong fiscal constraints. However, the cost of the
Program should be limited with regards to recurrent and capital expenditures. While the professionalization of the civil
service is expected to increase the wage bill for government employees that will fall under the new competency-based
regime, the number of these employees (less than 10,000 a year or less than 10 percent of the total number of civil
servants) should be limited and only increase progressively. As such, incurred additional costs can be offset via the overall
control of the wage bill and productivity gains. Regarding capital spending, only small investments in IT systems or
infrastructure are required to achieve targeted results and, in most instances, the government can rely on existing systems
with limited upgrades. Significant cost savings are expected to result from the digitalization of government services and
processes under the Program and are further expected to help mitigate fiscal risks.
64. Technical design: Moderate. Program implementation entails several technical challenges across result areas,
including on digitalization, civil service reforms, health and education. The GOJ has proven capacity, even though limited,
to manage the technical challenges of digitalization and other targeted reforms across the Program’s RAs. Capacity needs
are well identified and already strengthened through TA provided by a range of donors20, and only limited additional TA
by the World Bank is deemed necessary (as detailed in Annex 6 on implementation support) and it is expected to be
financed under the Jordan Growth MDTF (including through additional contributions from donor agencies). A few donors
have agreed to mobilize ongoing TA programs (such as GIZ) or to initiate new TA activities (such as AICS) in support of
Program implementation. And residual risks pertaining to technical design will be mitigated further during implementation
through donor coordination, and specifically by leveraging parallel TA.
65. Institutional capacity for implementation and sustainability: Substantial. Complexity is inherent to a multiagency
program even though the number of implementing agencies remains narrowly limited, since it calls for robust interagency
coordination. Related risks will be mitigated through the establishment of the Program Technical Steering Committee
consisting of focal points from all implementing agencies, and oversight of the implementation by the PMO. In addition,
implementation issues will be escalated to political leadership through relevant Inter-Ministerial Committees. Any
implementation bottlenecks and challenges will be dealt with through regular reporting by the PMU. Institutional capacity
is generally limited in Jordan and the institutional set up for the implementation of the Public Sector Modernization
Roadmap and Digital Transformation Strategy is being revamped e.g. with the replacement of the Civil Service Bureau by
the SPAC. Also, the PMO is usually reorganized after a cabinet reshuffle. Accordingly, the Program’s implementation
arrangements factor in anticipated institutional changes. In most cases, it will easily adjust since the new entities are
expected to succeed current ones both legally and administratively. Adequate implementation will require capacity
building at MOPIC for Program coordination and management, as detailed in the section on implementation arrangements
above. Capacity building will also be required at the PMO for the management, coordination, and oversight of the overall
public sector modernization and digitalization agendas. Accordingly, the PAP includes adequate requirements for
institutional sustainability and capacity needs.
66. Fiduciary: Moderate. Key risks identified that could potentially impact the Program include: (1) potential budget cuts
due to fiscal constraints that could be exacerbated by the conflict in the Middle East; (2) high expenditure arrears,
20
See Annex 6 on the Implementation Support Plan for details on donor-funded TA across the RAs.
Page | 23
particularly in the health sector; (3) inefficiency in processing procurement transactions; (4) implementation challenges
due to the quality of technical specifications (for supplies and construction), terms of reference (for consulting services),
and qualification requirements for procurement (including goods, IT, works, and consultant services) affecting the bidding
process and contract implementation, thereby resulting in excessive variations in cost and timeline, as well as the quality
of deliverables; (5) weak capacity for contract management and administration due to delays in deploying officials of line
ministries and government agencies for training and capacity building. Training will cover the methods, techniques, and
innovations introduced in the new Procurement Bylaw No. 8/2022 and the associated standard procurement documents,
contract conditions, and evaluation templates; (6) lack of procurement planning and systematic tracking and monitoring
of procurement and contract performance throughout the procurement cycle, from needs assessment to inventory
management; and (7) coordination regarding the Program’s results, which could be challenged by complex
implementation through multiple agencies.
Environmental and social: Moderate. Based on the initial assessment, the Program shows several environmental benefits
and risks that might be caused by the Program’s activities under the different Results Areas (RAs). Improved service
delivery and digitalization of services will contribute to reducing emissions from unnecessary transportation. It will also
stimulate greater resource efficiency by reducing demand for paper. Within the scope of the Program, no major physical
activities are anticipated. Furthermore, there are no foreseeable major IT infrastructure investments under DLI1, DLI2,
DLI3, DLI6, DLI8, and DLI10. However, limited investment in IT equipment and systems are foreseeable under DLI4, DLI5,
DLI7, and DLI9. Other physical activities are limited to citizen and other stakeholder engagement, as well as training of
government employees to build their competencies. The training will take place at governmental offices and hired venues.
Although the use of computers and smartphones is widespread across Jordan, increased demand for electronic smart
devices (computers, smartphones, and so on) is expected. Accordingly, downstream generation of e-waste will increase.
The generation and mismanagement of e-waste (hazardous waste) carries the risk of pollution to soil, water, and the air
at e-waste final disposal areas. Consequently, this will carry risks of adverse impacts on human health and biodiversity.
The initial screening of the Program shows several social benefits, as well as social risks and impacts, that might be caused
by the Program under its RAs. The Program will generally improve accessibility to service delivery through digital identity
and e-medical records, digital students’ assessments, as well as through increased transparency and equal opportunity
resulting from the prioritization of skills through the new competency-based HRM that will be implemented by the new
SPAC. It will also broaden public access to information and participation. Some of the identified social risks and impacts at
this stage are common to all RAs. These are mainly related to: (1) the lack of adequate social assessments, geographic
considerations, and stakeholder engagement; (2) lack of transparency, and communication on the civil service reform; (3)
insufficient promotion and disclosure of the reform plan, as well as awareness of and access to information regarding
government digitalization programs; (4) gender-specific barriers to Program access and benefits (in public sector
recruitment); and (5) data privacy and protection risks.
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Jordan People-Centric Digital Government Program-for-Results (P180291)
ANNEX 1. RESULTS FRAMEWORK MATRIX
@#&OPS~Doctype~OPS^dynamics@padpfrannexpolicyandresult#doctemplate
Program Development Objective(s)
To improve people-centric service delivery, government effectiveness, and transparency and accountability through digitalization.
PDO Indicators by Outcomes
Baseline Closing Period
Improved people-centric service delivery through digitalization
Individuals accessing digitalized public- and private-sector services using trusted, people-centric DPI (Number) DLI
Dec/2023 Dec/2028
0 3,000,000
➢Women accessing digitalized public- and private-sector services using trusted, people-centric DPI (Number) DLI
Dec/2023 Dec/2028
0 1,500,000
➢Elders (65+) accessing digitalized public- and private-sector services using trusted, people-centric DPI (Number) DLI
Dec/2023 Dec/2028
0 175,000
➢Refugees accessing digitalized public- and private-sector services using trusted, people-centric DPI (Number) DLI
Dec/2023 Dec/2028
0 100,000
➢Individuals remotely accessing digitalized public- and private-sector services using trusted, people-centric DPI (Number) DLI
Dec/2023 Dec/2028
0 1,000,000
➢Individuals accessing digitalized public- and private-sector services at GSCs using trusted, people-centric DPI (Number) DLI
Dec/2023 Dec/2028
0 400,000
➢Individuals accessing digitalized education services using trusted, people-centric DPI (Number) DLI
Dec/2023 Dec/2028
0 750,000
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Improved access to patient centric digital services (Number)
Dec/2023 Dec/2028
108000 683000
➢Improved access to patient centric digital services - Syrian refugees (Number)
Dec/2023 Dec/2028
0 9500
Improved government effectiveness through digitalization
Increased student trust in the fairness of the tawjihi exam. (Percentage)
Dec/2023 Dec/2028
53 73
Increase women representation in leadership positions in civil service as a result of competency-based promotion and competitive recruitment.. (Percentage)
Dec/2023 Dec/2028
16 50
Improved transparency and accountability through digitalization
Improved e-participation (Number)
Dec/2023 Dec/2028
0.545 0.8
Intermediate Indicators by Results Areas
Baseline Period 1 Period 2 Period 3 Closing Period
Service delivery
Individuals adopting people-centric digital identity (Number) DLI
Dec/2023 Dec/2028
0 3,500,000
➢Women adopting people-centric digital identity (Number) DLI
Dec/2023 Dec/2028
0 1,750,000
➢Elders (65+) adopting people-centric digital identity (Number) DLI
Dec/2023 Dec/2028
0 200,000
➢Refugees adopting people-centric digital identity (Number) DLI
Dec/2023 Dec/2028
0 100,000
All DPI platforms supporting digitalized service delivery are fully accessible to non-citizens, including refugees (Yes/No)
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Jordan People-Centric Digital Government Program-for-Results (P180291)
Dec/2023 Dec/2028
NO YES
Service providers using trusted, people-centric DPI in their service design and workflow to facilitate service delivery (Number)
Dec/2023 Dec/2028
4 36
➢Private-sector service providers integrating trusted DPI into their service workflows (Number)
Dec/2023 Dec/2028
0 12
Availability of trusted, people-centric data sharing (Yes/No) DLI
Dec/2023 Dec/2028
NO YES
➢Adherence of DPI ecosystem participants to the applicable privacy-by-design principles (Yes/No) DLI
NO YES
➢Adherence of DPI ecosystem participants to the applicable data minimization principles (Yes/No) DLI
NO YES
➢Integration of accessible, available, secure, and transparent data audit logging by DPI ecosystem participants, as applicable (Yes/No) DLI
NO YES
➢Integration of consent-based data sharing by DPI ecosystem participants (Yes/No) DLI
NO YES
➢Integration of people-centric, standards-based, digitally verifiable credentials by DPI ecosystem participants, as applicable (Yes/No) DLI
NO YES
➢Integration of adequate grievance redress by DPI ecosystem participants (Yes/No) DLI
NO YES
Digital transformation of health service delivery (Percentage) DLI
Dec/2023 Dec/2028
37 100
Direct project beneficiaries – refugees (Number)
Dec/2023 Dec/2025 Dec/2026 Dec/2027 Dec/2028
0 30,000 60,000 90,000 120,000
➢Direct project beneficiaries - refugees (women) (Number)
Dec/2023 Dec/2025 Dec/2026 Dec/2027 Dec/2028
0 12,000 24,000 36,000 48,000
Direct project beneficiaries - refugees' host communities (Number)
Dec/2023 Dec/2025 Dec/2026 Dec/2027 Dec/2028
0 20,000 40,000 60,000 80,000
➢Direct project beneficiaries - refugees' host communities (women) (Number)
Dec/2023 Dec/2025 Dec/2026 Dec/2027 Dec/2028
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Jordan People-Centric Digital Government Program-for-Results (P180291)
0 8,000 16,000 24,000 36,000
Government effectiveness
Increased access to reliable and efficient digital student assessment. (Percentage) DLI
Dec/2023 Dec/2028
0 75
➢Increase in the share of refugee students sitting for the digital Tawjihi exam (Percentage) DLI
Dec/2023 Dec/2028
0 60
Mainstreaming of competency-based recruitment HRM practices of civil servants. (Percentage)
Dec/2023 Dec/2028
0 72
Transparency and accountability
Institutionalizing effective health data use (Yes/No) DLI
Dec/2023 Dec/2028
No Yes
Strengthened legal enforcement provisions and regulatory mechanisms of access to information. (Number)
Dec/2023 Dec/2028
56 72
Improved scoring on open data. (Number)
Dec/2023 Dec/2028
71 81
Disbursement Linked Indicators (DLI)
Period Period Definition Timeline
Period 0 Prior results, from CN decision meeting to loan signing. 2024
Period 1 FY25 2025
Period 2 FY26 2026
Period 3 FY27 2027
Period 4 FY28 2028
Baseline Period 0 Period 1 Period 2 Period 3 Period 4
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Jordan People-Centric Digital Government Program-for-Results (P180291)
1 : Individuals accessing digitalized public- and private-sector services using trusted, people-centric DPI (Number )
0 0 750,000 1,500,000 2,250,000 3,000,000
0.00 0.00 10,000,000.00 10,000,000.00 10,000,000.00 10,000,000.00
DLI allocation 40,000,000.00 As a % of Total Financing Amount 11.42%
➢ 1.1 : Women accessing digitalized public- and private-sector services using trusted, people-centric DPI (Number )
0 0 375,000 750,000 1,125,000 1,500,000
0.00 0.00 3,000,000.00 3,000,000.00 3,000,000.00 3,000,000.00
DLI allocation 12,000,000.00 As a % of Total Financing Amount 3.42%
➢ 1.2 : Elders (65+) accessing digitalized public- and private-sector services using trusted, people-centric DPI (Number )
0 0 43,750 87,500 131,250 175,000
0.00 0.00 875,000.00 875,000.00 875,000.00 875,000.00
DLI allocation 3,500,000.00 As a % of Total Financing Amount 1.0%
➢ 1.3 : Refugees accessing digitalized public- and private-sector services using trusted, people-centric DPI (Number )
0 0 25,000 50,000 75,000 100,000
0.00 0.00 500,000.00 500,000.00 500,000.00 500,000.00
DLI allocation 2,000,000.00 As a % of Total Financing Amount 0.57%
➢ 1.4 : Individuals remotely accessing digitalized public- and private-sector services using trusted, people-centric DPI (Number )
0 0 250,000 500,000 750,000 1,000,000
0.00 0.00 1,000,000.00 1,000,000.00 1,000,000.00 1,000,000.00
DLI allocation 4,000,000.00 As a % of Total Financing Amount 1.14%
➢ 1.5 : Individuals accessing digitalized public- and private-sector services at GSCs using trusted, people-centric DPI (Number )
0 0 100,000 200,000 300,000 400,000
0.00 0.00 500,000.00 500,000.00 500,000.00 500,000.00
DLI allocation 2,000,000.00 As a % of Total Financing Amount 0.57%
➢ 1.6 : Individuals accessing digitalized education services using trusted, people-centric DPI (Number )
0 0 187,500 375,000 562,500 750,000
0.00 0.00 375,000.00 375,000.00 375,000.00 375,000.00
DLI allocation 1,500,000.00 As a % of Total Financing Amount 0.43%
2 : Individuals adopting people-centric digital identity (Number )
0 0 875,000 1,750,000 2,625,000 3,500,000
0.00 0.00 5,000,000.00 5,000,000.00 5,000,000.00 5,000,000.00
DLI allocation 20,000,000.00 As a % of Total Financing Amount 5.72%
➢ 2.1 : Women adopting people-centric digital identity (Number )
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0 0 437,500 875,000 1,312,500 1,750,000
0.00 0.00 1,750,000.00 1,750,000.00 1,750,000.00 1,750,000.00
DLI allocation 7,000,000.00 As a % of Total Financing Amount 2.0%
➢ 2.2 : Elders (65+) adopting people-centric digital identity (Number )
0 0 50,000 100,000 150,000 200,000
0.00 0.00 250,000.00 250,000.00 250,000.00 250,000.00
DLI allocation 1,000,000.00 As a % of Total Financing Amount 0.29%
➢ 2.3 : Refugees adopting people-centric digital identity (Number )
0 0 25,000 50,000 75,000 100,000
0.00 0.00 375,000.00 375,000.00 375,000.00 375,000.00
DLI allocation 1,500,000.00 As a % of Total Financing Amount 0.43%
3 : Availability of trusted, people-centric data sharing (Yes/No )
NO No Yes Yes Yes Yes
0.00 0.00 5,000,000.00 5,000,000.00 5,000,000.00 5,000,000.00
DLI allocation 20,000,000.00 As a % of Total Financing Amount 5.72%
➢ 3.1 : Adherence of DPI ecosystem participants to the applicable privacy-by-design principles (Yes/No )
NO No Yes Yes Yes Yes
0.00 0.00 875,000.00 875,000.00 875,000.00 875,000.00
DLI allocation 3,500,000.00 As a % of Total Financing Amount 1.0%
➢ 3.2 : Adherence of DPI ecosystem participants to the applicable data minimization principles (Yes/No )
NO No Yes Yes Yes Yes
0.00 0.00 812,500.00 812,500.00 812,500.00 812,500.00
DLI allocation 3,250,000.00 As a % of Total Financing Amount 0.93%
➢ 3.3 : Integration of accessible, available, secure, and transparent data audit logging by DPI ecosystem participants, as applicable (Yes/No )
NO No Yes Yes Yes Yes
0.00 0.00 812,500.00 812,500.00 812,500.00 812,500.00
DLI allocation 3,250,000.00 As a % of Total Financing Amount 0.93%
➢ 3.4 : Integration of consent-based data sharing by DPI ecosystem participants (Yes/No )
NO No Yes Yes Yes Yes
0.00 0.00 875,000.00 875,000.00 875,000.00 875,000.00
DLI allocation 3,500,000.00 As a % of Total Financing Amount 1.0%
➢ 3.5 : Integration of people-centric, standards-based, digitally verifiable credentials by DPI ecosystem participants, as applicable (Yes/No )
NO No Yes Yes Yes Yes
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0.00 0.00 812,500.00 812,500.00 812,500.00 812,500.00
DLI allocation 3,250,000.00 As a % of Total Financing Amount 0.93%
➢ 3.6 : Integration of adequate grievance redress by DPI ecosystem participants (Yes/No )
NO No Yes Yes Yes Yes
0.00 0.00 812,500.00 812,500.00 812,500.00 812,500.00
DLI allocation 3,250,000.00 As a % of Total Financing Amount 0.93%
4 : Digital transformation of health service delivery (Percentage )
37 50 63 75 100
0.00 0.00 13,000,000.00 13,000,000.00 12,000,000.00 25,000,000.00
DLI allocation 63,000,000.00 As a % of Total Financing Amount 18.0%
5.0 : Professionalization of the civil service (Yes/No )
No Adoption and issuance by Adoption by SPAC of Targets for 5.2 to 4 Targets for 5.2 to 4 Targets for 5.2 to 4 achieved
Cabinet of the Public regulations of 1) achieved achieved
Services Administration competency profiles and
and Governance by-law job descriptions and 2)
staff performance
evaluations.
0.00 1,000,000.00 1,000,000.00 18,000,000.00 20,000,000.00 20,000,000.00
DLI allocation 59,197,500.00 As a % of Total Financing Amount 17.0%
➢ 5.1 : Mainstreaming of competitive recruitment (Percentage )
0 0 18% of civil servants 36% of civil servants 54% of civil servants 72% of civil servants recruited
recruited through recruited through recruited through through competency-based
competency-based competency-based competency-based assessments
assessments assessments assessments
0.00 0.00 6,500,000.00 6,500,000.00 6,500,000.00 6,500,000.00
DLI allocation 26,000,000.00 As a % of Total Financing Amount 7.5%
➢ 5.2 : Mainstreaming of performance-based promotion: % of civil servants promoted through performance-based assessments (Yes/No )
0 0 Establishment of the 36% of civil servants 54% of civil servants 72% of civil servants
functional competency promoted through promoted through promoted through
assessment performance-based performance-based performance-based
administration, 18% of civil assessments assessments assessments
servants promoted
through performance-
based assessments
0.00 0.00 5,197,500.00 4,000,000.00 4,000,000.00 4,000,000.00
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Jordan People-Centric Digital Government Program-for-Results (P180291)
DLI allocation 17,197,500.00 As a % of Total Financing Amount 5.0%
➢ 5.3 : Enhanced digital literacy/skills (Number )
0 0 Prime Ministry endorses 2,000 civil servants with 3,000 civil servants with 4,000 civil servants with
the curricular for digital certified digital certified digital certified digital literacy/skills
training adopted by IPA, literacy/skills literacy/skills
1,000 civil servants with
certified digital
literacy/skills
0.00 0.00 3,000,000.00 2,000,000.00 2,000,000.00 2,000,000.00
DLI allocation 9,000,000.00 As a % of Total Financing Amount 2.57%
➢ 5.4 : Increase in the utilization of HRMIS and other digital platforms by public entities for competitive recruitment, performance-based promotion and digital upskilling.
(Percentage )
0 0 18% of recruitments, 36% of recruitments, 54% of recruitments, 72% of recruitments,
promotions, and digital promotions, and digital promotions, and digital promotions, and digital skills
skills trainings recorded skills trainings recorded skills trainings recorded trainings recorded using
using HRMIS and other using HRMIS and other using HRMIS and other HRMIS and other digital
digital platforms digital platforms digital platforms platforms
0.00 0.00 1,250,000.00 1,250,000.00 1,250,000.00 1,250,000.00
DLI allocation 5,000,000.00 As a % of Total Financing Amount 0.0%
6 : Establishing digital health standards across a national Health Information Exchange (HIE) (Yes/No )
0 No Yes (a committee Yes (five registries and Yes (four registries and Yes (all results achieved)
established) standards) standards and HIS
upgraded)
0.00 0.00 3,000,000.00 10,000,000.00 8,000,000.00 8,000,000.00
DLI allocation 29,000,000.00 As a % of Total Financing Amount 8.29%
➢ 6.1 : Establishment and functioning of a multi-sectoral committee to conduct core health information governance tasks. (Yes/No )
No No Yes Yes Yes Yes
0.00 0.00 3,000,000.00 0.00 0.00 0.00
DLI allocation 3,000,000.00 As a % of Total Financing Amount 0.75%
➢ 6.2 : Establishment of foundational registries and standards (Number )
0 0 0 5 4 0
0.00 0.00 0.00 10,000,000.00 8,000,000.00 0.00
DLI allocation 18,000,000.00 As a % of Total Financing Amount 4.5%
➢ 6.3 : Upgrading of Health information systems to share minimum datasets within the national HIE framework and utilizing common registries. (Yes/No )
No No No No No Yes
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0.00 0.00 0.00 0.00 0.00 8,000,000.00
DLI allocation 8,000,000.00 As a % of Total Financing Amount 2.0%
7 : Increased access to reliable and efficient digital student assessment. (Percentage )
0 Adoption by the MoE of a Targets for 7.2-7.6 Targets for 7.2-7.6 Targets for 7.2-7.6 Targets for 7.2-7.6 achieved
strategy for mainstreamed achieved achieved achieved
blended learning
0.00 1,000,000.00 10,000,000.00 16,000,000.00 12,500,000.00 10,500,000.00
DLI allocation 50,000,000.00 As a % of Total Financing Amount 14.3%
➢ 7.1 : Establishment and operationalization of digital assessment centers and rooms. (Number )
0 0 1 digital assessment 1 digital assessment 1 digital assessment 11 rooms established and
centers and 25 rooms centers and 25 rooms centers and 25 rooms operationalized
established and established and established and
operationalized operationalized operationalized
0.00 0.00 3,300,000.00 3,300,000.00 3,300,000.00 1,100,000.00
DLI allocation 11,000,000.00 As a % of Total Financing Amount 3.0%
➢ 7.2 : Establishment of digital assessment rooms in refugee camps and districts with high concentration of refugees (Amount(USD) )
No digital assessment 0 15 digital assessment 15 digital assessment 10 digital assessment
rooms in refugees camps rooms established in rooms in refugees camps rooms in refugees camps
and areas with high refugees camps and areas and areas with high and areas with high
concentration of refugees with high concentration of concentration of refugees concentration of refugees
refugees
0.00 0.00 1,500,000.00 1,500,000.00 1,000,000.00 0.00
DLI allocation 4,000,000.00 As a % of Total Financing Amount 1.0%
➢ 0 : Increase in the share of refugee students sitting for the digital Tawjihi exam (Percentage )
0 None None None None None
0.00 0.00 0.00 0.00 0.00 0.00
DLI allocation 0.00 As a % of Total Financing Amount 0.0%
➢ 7.3 : Enhancing teachers’ digital skills at the secondary level to be able to integrate digitalization in the assessment proc ess and to support the digitization efforts (Number )
0 0 5000 teachers with 5000 teachers with 5000 teachers with 5000 teachers with certified
certified digital skills. certified digital skills. certified digital skills. digital skills.
0.00 0.00 2,000,000.00 2,000,000.00 2,000,000.00 2,000,000.00
DLI allocation 8,000,000.00 As a % of Total Financing Amount 2.0%
➢ 7.4 : Increased percentage of students, including refugees, sitting for the digital Tawjihi exam (Percentage )
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0 0 0 20 % increase of the share 20 % increase of the share 20 % increase of the share of
of students sitting for the of students sitting for the students sitting for the digital
digital Tawjihi exam digital Tawjihi exam Tawjihi exam
0.00 0.00 0.00 8,000,000.00 8,000,000.00 8,000,000.00
DLI allocation 24,000,000.00 As a % of Total Financing Amount 7.0%
➢ 7.5 : Increase in the share of refugee students sitting for the digital Tawjihi exam (Percentage )
0 percent of refugee 0 20 percent of refugee 20 percent additional 20 percent additional 0
students taking digital students taking digital refugee students taking refugee students taking
exam exam digital exam digital exam
0.00 0.00 1,000,000.00 1,000,000.00 1,000,000.00 0.00
DLI allocation 3,000,000.00 As a % of Total Financing Amount 1.0%
8 : Enhanced e-participation (Yes/No )
No Enactment of targets for 7.1 - 7.4 targets for 7.1 - 7.4 targets for 7.1 - 7.4 targets for 7.1 - 7.4 achieved
amendments to 2007 achieved achieved achieved
Access to information law
0.00 2,000,000.00 9,000,000.00 9,000,000.00 7,000,000.00 3,000,000.00
DLI allocation 30,000,000.00 As a % of Total Financing Amount 8.6%
➢ 8.1 : Tabling by government to the Parliament of amendments to 2007 Access to information law. (Yes/No )
No Tabling by government to 0 0 0 0
the Parliament of
amendments
strengthening the
enforcement of 2007
Access to information law.
0.00 2,000,000.00 0.00 0.00 0.00 0.00
DLI allocation 2,000,000.00 As a % of Total Financing Amount 0.6%
➢ 8.2 : Reporting through the PMDU public dashboard on digital transformation under the EMV. (Number )
0 0 2 bi-annual updates 2 bi-annual updates 2 bi-annual updates 2 bi-annual updates published
published by PMO published by PMO published by PMO by PMO
0.00 0.00 1,400,000.00 1,200,000.00 1,000,000.00 400,000.00
DLI allocation 4,000,000.00 As a % of Total Financing Amount 1.14%
➢ 8.3 : Enhanced government responsiveness to online request for information (Percentage )
0 0 20 percentage points 20 percentage points 20 percentage points 20 percentage points increase
increase on average in increase on average in increase on average in on average in response rate to
response rate to requests response rate to requests response rate to requests requests for information filed
for information filed online for information filed online for information filed online
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for selected government for selected government for selected government online for selected
entities entities entities government entities
0.00 0.00 4,000,000.00 4,000,000.00 2,000,000.00 2,000,000.00
DLI allocation 12,000,000.00 As a % of Total Financing Amount 3.4%
➢ 8.4 : Online compliance with legal requirements on proactive information disclosure across government entities. (Number )
0 0 6 compliant ministries and 6 compliant ministries and 6 compliant ministries and 6 compliant ministry and
agencies with proactive agencies with proactive agencies with proactive agency with proactive
information disclosure information disclosure information disclosure information disclosure
requirements requirements requirements requirements
0.00 0.00 3,000,000.00 3,000,000.00 3,000,000.00 3,000,000.00
DLI allocation 12,000,000.00 As a % of Total Financing Amount 3.5%
9 : Expanding access to user-friendly and interactive statistical data (Number )
0 COM submits the draft Targets for 8.1 to 3 Targets for 9.1 to 3 Targets for 9.1 to 3 Targets for 9.1 to 3 achieved
National Statistics Law to achieved achieved achieved
Parliament with selected
provisions on the role of
the department of
statistics in accessing and
validating administrative
data as well as on public
access to micro-data
0.00 2,000,000.00 3,000,000.00 5,000,000.00 13,800,000.00 6,200,000.00
DLI allocation 30,000,000.00 As a % of Total Financing Amount 8.6%
➢ 9.1 : DOS launches and publishes a statistical interface with key DOS and administrative indicators (Number )
No statistical interface No Launch of the statistical 5 additional public entities 10 additional public 0
interface with key DOS whose key administrative entities whose key
indicators. indicators are integrated administrative indicators
into the interface and are integrated into the
validated. interface and validated
0.00 0.00 3,000,000.00 5,000,000.00 10,000,000.00 0.00
DLI allocation 18,000,000.00 As a % of Total Financing Amount 4.0%
➢ 9.2 : Access to selected anonymized micro-data for selected policy analysis and researchers, in line with the statistical law and government policy (Number )
No digital interface 0 0 3 core micro-data sets 5 core micro-data sets 0
made available via an made available via an
online portal to users in online portal to users in
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adherence with the access adherence with the access
protocols protocols
0.00 0.00 0.00 3,000,000.00 5,000,000.00 0.00
DLI allocation 8,000,000.00 As a % of Total Financing Amount 3.0%
➢ 9.3 : An additional premium for every core micro-data set made available via an online portal with indicators for gender, disability and residency status (Number )
0 0 0 0 2 core micro-data sets 3 core micro-data sets made
made available via an available via an online portal
online portal with with indicators for gender,
indicators for gender, disability and residency status
disability and residency
status
0.00 0.00 0.00 0.00 800,000.00 1,200,000.00
DLI allocation 2,000,000.00 As a % of Total Financing Amount 0.5%
10 : Institutionalizing effective health data use (Yes/No )
No No No Yes Yes Yes
0.00 0.00 0.00 3,250,000.00 1,500,000.00 3,250,000.00
DLI allocation 8,000,000.00 As a % of Total Financing Amount 2.29%
➢ 10.1 : Establishment of a national health data quality assurance (HDQA) framework and action plan established. (Yes/No )
No No No Yes Yes Yes
0.00 0.00 0.00 3,250,000.00 0.00 0.00
DLI allocation 3,250,000.00 As a % of Total Financing Amount 1.0%
➢ 10.2 : Two HDQA evaluations as per the HDQA framework and action plan conducted and published (Yes/No )
0 0 0 0 1 1
0.00 0.00 0.00 0.00 1,250,000.00 1,250,000.00
DLI allocation 2,500,000.00 As a % of Total Financing Amount 0.5%
➢ 10.3 : Improved score in the subsequent HDQA evaluation compared to the previous HDQA evaluation conducted (Yes/No )
No No No No No Yes
0.00 0.00 0.00 0.00 0.00 2,000,000.00
DLI allocation 2,000,000.00 As a % of Total Financing Amount 0.5%
➢ 10.4 : Select key performance indicators (KPIs) evaluated and published (Yes/No )
No No No No Yes No
0.00 0.00 0.00 0.00 250,000.00 0.00
DLI allocation 250,000.00 As a % of Total Financing Amount 0.07%
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Verification Protocol Table
PDO-level Indicators
Result Area 1 on improved service delivery through digitalization
Expanding trusted and inclusive access to people-centric digitalized services
Description Individuals accessing digitalized public- and private-sector services using trusted, people-centric DPI [Number].
Frequency Annually.
Data source Annual reports on the usage of digital services from MODEE, sectoral ministries, and the private sector.
Methodology for Data Indicator values will be collected from MODEE’s administrative data on the usage of transactional digital services that
Collection incorporate trusted, people-centric DPI, and cross-checked by the IVA through spot surveys.
Responsibility for Data
MODEE.
Collection
Improved access to patient-centric digital service
Number of beneficiaries who actively use patient-centric digital services offfered through an eletronic medical record
Description (EMR) platfrom. Active users refer to those with active acccounts who had logged into accounts at least twice since
registration (disaggregated for Syrian refugee users). .
Frequency Annually.
Data source Electronic Health Solution (EHS).
Methodology for Data
Data extracted from myHakeem to measure the number of active users.
Collection
Responsibility for Data
MOH and EHS.
Collection
Result Area 2 on enhanced government effectiveness through Digitalization
Increased student trust in the fairness of the Tawjihi exam.
Description Increased percentage of students expressing trust in the fairness of the Tawjihi exam.
Frequency Once, at Program closure.
Public opinion poll by the Centre for Strategic Studies at the University of Jordan on Tawjihi, Universities and the
Data source
Unified Admission System.
Polling of a national representative sample of high school students covering all governorates, and regions. Question
Methodology for Data
asked: “Do you believe that the Tawjihi exam constitutes a fair educational and academic evaluation for students?”
Collection
This would include a representative sub-sample of refugee students.
Responsibility for Data
Centre for Strategic Studies.
Collection
Increased representation of women in leadership positions in the civil service as a result of competency-based promotions and competitive
recruitment.
Description Percentage of women appointed to leadership positions in the civil service.
Frequency Once, by Program closure.
Data source Annual report on civil service from the SPAC.
Methodology for Data
Leadership positions are defined by Article 16 of the 2020 CivilSservice Bylaw.
Collection
Responsibility for Data
SPAC.
Collection
Result Area 3 on transparency and accountability through digitalization
Improved e-participation
Description Jordan rating under the e-participation indicator of the UN e-Government Development Index.
Frequency Every two years.
Data source UN e-Government Development Index
Questionnaire based on the 2022 UN e-Government Development Survey methodology. E-participation questions
Methodology for Data cover three dimensions: 1) e-information, 2) e-consultation, and 3) e-decision making. In 2022, these three dimensions
Collection are further categorised into six sub-dimensions as follows: e-notification and e-enabling (under e-information); e-
discourse and e-dialogue (under e-consultation); and e-collaboration and e-empowerment (under e-decision-making).
Responsibility for Data UN.
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Collection
Intermediate Result Indicators
Result Area 1 on improved service delivery through digitalization
Increasing the inclusive adoption of people-centric digital identity
Description Individuals adopting people-centric digital identity [Number].
Frequency Annually.
Data source Annual reports on digital ID implementation by MODEE.
Methodology for Data Indicator values will be collected from MODEE’s administrative data on digital ID activations and cross-checked by the
Collection IVA through spot surveys.
Responsibility for Data
MODEE.
Collection
Description All DPI platforms supporting digitalized service delivery are fully accessible to non-citizens, including refugees [Yes/No].
Frequency Annually.
Data source Annual reports on DPI implementation by MODEE.
Methodology for Data Indicator values will be collected from MODEE’s administrative data on DPI registrations and usage, and cross-checked
Collection by the IVA through spot surveys.
Responsibility for Data
MODEE.
Collection
Service providers integrating trusted, people-centric DPI in their service design and workflow to facilitate service
Description
delivery, including private-sector service providers [Number].
Frequency Annually.
Data source Annual reports on DPI implementation by MODEE and public- and private-sector relying parties.
Indicator values will be collected from the administrative data of MODEE and public- and private-sector relying parties
Methodology for Data
on the use of transactional digital services that incorporate trusted, people-centric DPI, and cross-checked by the IVA
Collection
through spot surveys.
Responsibility for Data
MODEE.
Collection
Improving trusted, people-centric data sharing
Description Availability of trusted, people-centric data sharing [Yes/No].
Frequency Annually
(a) Annual reports on DPI implementation from MODEE, sectoral ministries, and the private sector, (b) MODEE’s
Data source
software documentation and testing reports, and (c) Third-party assessment reports.
Indicator values will be collected from (a) DPI implementation reports released by MODEE, sectoral ministries, and the
Methodology for Data private sector, (b) MODEE’s software documentation, and testing reports, and (c) Official reports submitted by third-
Collection party assessment bodies recruited to carry out the Privacy Impact Assessments. All indicator values will be cross-
checked by the IVA.
Responsibility for Data
MODEE.
Collection
Enhanced management of medical records
Promoting digital transformation in health servcie delivery by scaling up the coverage of an existing EMR platform to all
Description
MOH facility sites, prioritizing facility sites in districts with a high concentration of Syrian refugees.
Frequency Biannualy .
Data source Administrative data from the EHS.
Methodology for Data Data collected from the EHS to measure how many MOH facility sites had installed and operationalized the EMR
Collection platform.
Responsibility for Data
MOH and EHS.
Collection
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Direct project beneficiaries – Refugees and Host Communities
Number of direct beneficiaries of digital identification, EMR and Tawjihi digitalization who are refugees or living in host
Description
communities with a high concentration of refugees (>10 percent of the population), disaggregated by gender
Frequency Annual
Reports on digital ID implementation by MODEE, administrative data from the EHS, Education Management
Data source
Information System (EMIS)
Methodology for Data Data collected and compiled from administrative sources by MOPIC to measure the number of refugee beneficiaries
Collection and host communities
Responsibility for Data
MOPIC
Collection
Result Area 2 on enhanced government effectiveness through digitalization
Increased access to reliable and efficient digital student assessment (DLI)
Description Percentage of students sitting for the digital Tawjihi exam, including refugees.
Frequency Annually .
Data source MOE, Education Management Information System (EMIS)
Methodology for Data
Review of EMIS-generated report.
Collection
Responsibility for Data
MOE.
Collection
Strengthened digital skills in civil service
Description Number of senior officials and applicants to jobs in the civil service with digital skills certified as a result of training.
Frequency Once, by Program closure.
Data source Roster of digitally skilled trained and certified senior officials and applicants.
Methodology for Data
SPAC annual report on civil service and/or IPA/MODEE annual report on training in digital competencies.
Collection
Responsibility for Data
SPAC/MODEE/IPA.
Collection
Result Area 3 on transparency and accountability through digitalization
Strengthened legal enforcement provisions and regulatory mechanisms on access to information
Description Improved Jordan rating under the Right to Information Index.
Frequency Once, by Program closure.
Data source Right to Information Index (RTI) of the Centre for Law and Democracy.
The RTI assesses both the overall strength of the legal framework and the strengths and weaknesses of the legal
Methodology for Data
framework across seven dimensions: Right of Access, Scope, Requesting Procedures, Exceptions and Refusals, Appeals,
Collection
Sanctions and Protections, and Promotional Measures.
Responsibility for Data
Centre for Law and Democracy.
Collection
Improved scoring on open data
Description Jordan rating under the Open data openness sub-indicator of the Open Data Inventory Index (ODIN).
Frequency Every two years.
Data source Open Data Watch website.
Openness of data are measured based on the five following elements that measure how well a country’s data offerings
meet international standards of openness:
- Availability of data in machine readable format
Methodology for Data - Availability of data in non-proprietary format
Collection - Availability of reference metadata
- Availability of download options that make the data more accessible: bulk downloads, Application Programming
Interfaces (APIs), and customizable data export options
- Availability of an open data license or open data terms of use.
Responsibility for Data
Open Data Watch.
Collection
Disbursement-Linked Indicators
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DLI 1: Number of individuals accessing digitalized public- and private-sector services using trusted, people-centric DPI
The DLI will disburse US$5 for each unique individual accessing digitalized public- and private-sector services
using trusted, people-centric DPI, up to a total of 3 million individuals, in the limit of US$15 million. Moreover, it
will disburse the following additional amounts:
• US$8 for each unique woman accessing digitalized public- and private-sector services using trusted,
people-centric DPI, up to 1.5 million women, in the limit of US$12 million
• US$20 for each unique elder accessing digitalized public- and private-sector services using trusted,
people-centric DPI, up to 175,000 elders, in the limit of US$3.5 million
• US$20 for each unique refugee accessing digitalized public- and private-sector services using trusted,
Formula people-centric DPI, up to 100,000 refugees, in the limit of US$2 million
• US$1 million lump sum for each 250,000 unique individuals accessing digitalized public- and private-
sector services remotely using trusted, people-centric DPI, up to a total of 1 million individuals, in the
limit of US$4 million
• US$500,000 lump sum for each 100,000 unique individuals accessing digitalized public- and private-
sector services at GSCs using trusted, people-centric DPI, up to a total of 400,000 individuals, in the limit
of US$2 million
• US$2 for each unique individual accessing digitalized educational services using trusted, people-centric
DPI, up to 750,000 individuals, in the limit of US$1.5 million.
The Program disburses against the number of unique individual beneficiaries accessing digitalized public-
and private-sector transactional services using trusted, people-centric DPI, disaggregated by the type of
user (women, elders, refugees), type of access (remote, GSC) and type of service (education).
"Unique" means an individual beneficiary accessing multiple digitalized public- and private-sector services,
Description or the same service more than once, counts as one individual as far as DLI 1 disbursements are concerned.
Remote access is defined as online access to digitalized services that does not require in-person interaction.
GSC access is defined as access to digitalized services in person at Government Service Centers. Digital
services are considered to be accessed using trusted, people-centric DPI when such access is enabled by
people-centric digital identity (DLI 2) and trusted, people-centric data sharing (DLI 3).
Data source/ Agency Annual reports on the usage of digital services from MODEE, sectoral ministries, and the private sector.
Verification Entity KACE.
Indicator values will be collected from MODEE’s administrative data on the usage of transactional digital
Procedure
services that use trusted, people-centric DPI and cross-checked by the IVA through spot surveys.
DLI 2: Number of individuals adopting people-centric digital identity
The DLI will disburse US$3 for each unique individual activating people-centric digital identity, up to a total
3.5 million individuals, in the limit of US$10.5 million. Moreover, it will disburse the following additional
amounts:
• US$4 for each woman activating people-centric digital identity, up to 1.75 million women, in the
Formula limit of US$7 million
• US$5 for each elder activating people-centric digital identity, up to 200,000 elders, in the limit of
US$1 million
• US$15 for each refugee activating people-centric digital identity, up to 100,000 refugees, in the
limit of US$1.5 million
The Program disburses against the number of unique individuals activating people-centric digital identity,
Description
disaggregated by type of user (women, elders, refugees).
Data source/ Agency Annual reports on digital ID implementation by MODEE.
Verification Entity KACE.
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Indicator values will be collected from MODEE’s administrative data on digital ID activations and cross -
checked by the IVA through spot surveys.
People-centric digital identity is verified as follows: (1) it uniquely identifies users through strong identity
assurance against existing identity evidence; (2) it allows the secure digital verification of users’ identity
attributes and credentials by relying parties; (3) it is optimized for use for both remote/online and in-person
transactions, according to the use case; (4) it is equally usable, irrespective of whether the user initiates a
transaction from within the DPI environment or outside of it; (5) it is equally accessible to Jordanian citizens
Procedure and eligible non-citizens, including refugees; (6) it allows the integration of digital identity verification into
service workflows, including existing services and legacy systems, through standards-based protocols and
interfaces that are well documented and accessible to relying parties; (7) it is equally accessible to relying
parties across the public and private sectors; (8) it is usable by diverse populations including women, elders,
persons with disabilities, and rural populations, as assured through implementation of human-centered
design approaches.
A relying party is any public- or private-sector entity that relies on a digital identification or other trust service
for verification, or on an authoritative data source for shared data.
DLI 3: Availability of trusted, people-centric data sharing
[Yes/No] The DLI disburses the following amounts against the fulfillment of each of the 6 design elements
detailed in the description below, for a total of $20 million:
• US$3.5 million for the adherence of DPI ecosystem participants to the applicable privacy-by-design
principles.
• US$3.25 million for the adherence of DPI ecosystem participants to the applicable data
minimization principles.
Formula • US$3.25 million for the integration of accessible, available, secure, and transparent data audit
logging by DPI ecosystem participants, as applicable.
• US$3.5 million for the integration of consent-based data sharing by DPI ecosystem participants.
• US$3.25 million for the integration of people-centric, standards-based, digitally verifiable
credentials by DPI ecosystem participants, as applicable.
• US$3.25 million for the integration of adequate grievance redress by DPI ecosystem participants.
The Program disburses against improvements to Jordan’s DPI to improve trusted and people-centric data
sharing.
Data sharing is considered “trusted” when DPI ecosystem participants: (1) adhere to the applicable privacy-
by-design principles; (2) adhere to the applicable data minimization principles; (3) integrate accessible,
available, secure, and transparent data audit logging, as applicable, to provide people with transparency
about how their data is used.
Data sharing is considered “people-centric” when DPI ecosystem participants: (4) integrate consent-based
Description
data sharing by default when sharing personal data; (5) integrate people-centric, standards-based, digitally
verifiable credentials as a data sharing mechanism, as applicable; and (6) integrate adequate grievance
redress.
A DPI ecosystem means all DPI providers and at least five DPI relying parties. A DPI provider means MODEE
and any other entity that provides digital identification, data sharing, or other trust services to DPI relying
parties. A DPI relying party is any public- or private-sector entity that relies on a digital identification or other
trust service for verification, or on an authoritative data source for shared data, as provided by a DPI provider.
(a) Annual reports on DPI implementation from MODEE, sectoral ministries, and the private sector, (b)
Data source/ Agency
MODEE’s software documentation and testing reports, and (c) Third-party assessment reports.
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Verification Entity KACE.
3.1 Privacy by design. Adherence to the applicable privacy-by-design principles by DPI ecosystem participants
is verified as follows: (1) the recommendations of regular Privacy Impact Assessments (PIA) are implemented
at the policy, process, and technology levels, including through the update of DPI ecosystem rules; (2) relying
parties are compliant with relevant policies and DPI ecosystem rules, and such compliance is assured through
adequate supervision and oversight; (3) DPI ecosystem participants adhere to the applicable data
minimization principles; and (4) DPI is designed and implemented in compliance with national privacy laws
and international data protection standards.
3.2 Data minimization. Adherence to the applicable data minimization principles by DPI ecosystem
participants is verified as follows: (1) data is requested only when there is a clear purpose; for example, to
enable access to or eligibility for a service; (2) no shared data is retained beyond its intended use, or used
for additional service provision unless further consent is gained from the person; and (3) categorical data
sharing and selective attribute disclosure are available to be implemented by relying parties in cases where
sharing the actual data values is not required by the use case (for example, requesting confirmation that a
person is in good health rather than requesting disclosure of the person’s full health record ); and (4) shared
data is used to directly enable a service delivery workflow on a need-to-know basis; otherwise, no personal
data is shared.
3.3 Data audit logging. The integration of accessible, available, secure, and transparent data audit logging
by DPI ecosystem participants, as applicable, is verified as follows: (1) unique transactions involving sharing
of or access to personal data – whether complete or incomplete – are identified, along with metadata, such
as identifiers for the service or relying party, person accessing the service, and any other entities, such as
administrators or third-party services involved in data processing or digital service provision; (2) data audit
logs are protected from unauthorized access; for example, as part of a wider access control policy and/or
information security policy; (3) data audit logs are digitally signed to prevent tampering and preserve data
integrity; and (4) data audit logs are encrypted when the risk of unauthorized access to sensitive data is
Procedure identified.
3.4 Consent-based data sharing. The integration of consent-based data sharing by DPI ecosystem
participants is verified as follows: (1) the system provides a dynamic consent management platform that
enables users to grant, review, modify, and revoke their consent at any time; (2) this platform allows users
to easily access and understand the terms of consent before granting it, including what data is collected,
how it is used, who it is shared with, and for how long it is retained; (3) it is possible for relying parties to
require ex-ante consent to be given by users in real time prior to data sharing in cases where such consent
may be required by the use case; (4) the available data sharing mechanisms that relying parties can use
include standards-based, digitally verifiable credentials that put people at the center of a data sharing
transaction and allow the shared data to be authenticated by relying parties online or offline; (5) the
system maintains comprehensive logs of all consent activities, including timestamps, user identity
verification, and details of consent; and (6) systems used for sharing personal data use people-centric
digital identity as the primary method of authentication and authorization for the sharing of personal data.
3.5 Digitally verifiable credentials. The integration of digitally verifiable credentials by DPI ecosystem
participants is verified as follows: (1) digital representations of a collection of data attributes can be
securely and reliably verified by relying parties using trusted digital technologies, enabling data to be
shared with a relying party from an authoritative data source while keeping the individual data subject at
the center of the data sharing transaction. Examples of digitally verifiable credentials include electronic
passports, national identity cards, digital education diplomas, and other credentials that can be issued to
individuals and be digitally verified by relying parties; and (2) the credentials are portable, resistant to
tampering, enable streamlined verification processes in online and offline scenarios, and have adequate
measures in place to ensure that they can be trusted by verifiers. The availability of these trust measures is
verified as follows: (a) there is a common, agreed-upon set of rules (a trust framework) describing the
standards and operational requirements that must be followed by issuers and verifiers of credentials
(participating entities); (b) the standards and procedures reflected in the trust framework follow
internationally-recognized standards to allow for interoperability between credential issuers as well as
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cross-border verification of Jordanian credentials; (c) the standards and processes chosen allow for digitally
verifiable credentials to be issued into a software wallet, such as the Sanad smartphone application; (d)
there is an assurance process that allows confirmation that participating entities are in compliance with the
rules of the trust framework; (e) participating entities have been confirmed compliant with the rules of the
trust framework by undergoing this assurance process; (f) there are supervision measures that ensure
continued compliance of participating entities with the rules of the trust framework; (g) the public keys
used by credential issuers are published on a trusted list or registry to enable relying parties to
cryptographically verify the credential (in particular, by verifying the issuer and the integrity of the data it
contains), and there are measures that allow for key revocation; and (h) the trust framework is open to
qualified private-sector entities to participate, either as credential issuers or verifiers.
3.6 Grievance redress. The integration of adequate grievance redress by DPI ecosystem participants is
verified as follows: (1) there are transparent service standards for grievance redress, processing, and
communication (2) grievance redress is accessible to all users of the DPI ecosystem; and (3) service standards
are upheld by DPI ecosystem participants, as applicable.
Digital identity and data sharing systems are considered to be foundational DPI when they are designed and
implemented as scalable, extensible building blocks that can be used by relying parties across the public and
private sector; can be fully integrated into their service delivery workflows through standards-based
protocols and interfaces; and are equally usable irrespective of whether the user initiates a transaction from
within the DPI environment or outside of it.
For the purposes of the present DLI, it is not required for an individual to use all the above DPI functionalities
when accessing a service, or for all the above features to be implemented for a given service. The only
requirement is that the DPI functionality the service uses be fully integrated into the service delivery
workflow.
DLI 4 on digital transformation of health service delivery
Scalable. The DLI disburses US$1 million for each percentage point increase in the number of MOH facility
Formula sites which installed and operationalized the national EMR platform out of a total number of MOH health
facility sites21 in Jordan (as of calendar year [CY] 2023) within the limit of US$63 million.
The DLI supports the installation and operationalization of the national EMR platform (that is, Hakeem) to
produce electronic medical records across all MOH health facility sites. The operational status will include
at least four core functions:
1. The ability to query and/or access a record22 in the system.
Description
2. The ability to create and/or update a record in the system.
3. The ability to refer a patient to a different facility with a common facility identifier across the system.
4. The ability to generate administrative activity reports that demonstrate the utilization of the system.
5. The ability for patients to access and view personal medical records.
A delivery notice from the EHS concerning the installation of the EMR platform, and the confirmation notice
Data source/ Agency
from the MOH about the installed EMR being operational at supported facility sites.
Verification Entity KACE.
21
MOH health facility sites refer to sites that are required to have the EMR platform in accordance with the MOH decision. This includes primary and
comprehensive health centers, hospitals, and other sites (for example, central public health laboratories and national blood banks). At the end of
CY2023, 37 percent of MOH facility sites (including 27 hospital sites, 67 comprehensive health centers, and 100 primary health centers, and five other
sites as of October 2023) installed and use the national EMR platform. The Program aims to install and operationalize the national EMR platform to all
540 MOH facility sites in Jordan. Therefore, the Program will install and make it functional at remaining MOH facility sites, including 10 hospital sites,
62 CHCs, 256 PHCs, and 13 other sites during the Program duration.
22
Record refers to a medical (patient) record, report, and/or result generated by the system.
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Achievement will be verified by reviewing the delivery notices from the EHS for the physical installation at
Procedure targeted facility sites and confirming its operational and utilization status. Operational and utilization status
will be verified by the five core functions as described above.
DLI 5 on the professionalization of the civil service
Scalable. The DLI disburses up to US$ 59,19 million against 4 DLRs as follows:
DLR 5.1disburses a) US$ 1 million against the adoption and issuance by the Cabinet of Ministers, the Public
Services Administration and Governance Bylaw (prior result), and b) US$ 1 million against the adoption of
regulations on 1) competency profiles and job descriptions and 2) staff performance evaluation.
DLR 5.1 disburses US$1.625 m for each 4.5 percentage points increase in competitive recruitments of civil
servants, in the limit of US$26,000,000.
DLR 5.2 disburses a) USD$ 1,197,500 million for the establishment of a functional competency assessment
Formula administration and b) US$1 m against each 4.5 percentage points increase in performance-based
promotion for civil servants, up to a percentage of 72%, in the limit of US$18,000,000.
DLR 5.3 disburses a) US$1 m for the Prime Ministry’s endorsement of the curricular for digital training; and
b) US$1 m for each batch of 500 civil servants with certified digital literacy/skills, up to a percentage of
72% and in the limit of US$8 m.
DLR 5.4 disburses US$ 1.25 million against each 18-percentage points increase in the number of
competitive recruitments, performance-based promotions and certification of digital literacy/skills training
using HRMIS and other digital platform, in the limit of US$ 5 million.
The DLI supports competency-based and gender-sensitive human resource management and digital skills
development in the civil service. It consists of the five following DLRs:
DLR 5.0: Adoption of the regulatory framework for civil service professionalization.
DLR 5.1: Mainstreaming of competitive recruitment for all new civil servants.
Description
DLR 5.2: Mainstreaming of performance-based promotion for civil servants.
DLR 5.3: Enhanced digital literacy/skills.
DLR 5.4: Utilization of the HRMIS and other digital platforms for recording competitive recruitments,
performance-based promotions, and digital upskilling.
DLR 5.0: SPAC
DLR 5.1 and 2: SPAC Assessment Center HR interview and evaluation records, as well as HRMIS data
Data source/ Agency records.
DLR 5.3: Training registry maintained by the IPA and HRMIS data records.
DLR 5.4: HRMIS data reports.
Verification Entity KACE.
DLR 5.0: Verification of adopted SPAC by-law and subsidiary regulation.
DLR 5.1: Verification of recruitment records and competency assessment reports shared biannually by the
SPAC and competence-based recruitments recorded by the HRMIS.
DLR 5.2: Verification of promotion records and competency assessment reports shared biannually by the
Procedure SPAC and performance-based promotions recorded by the HRMIS and other digital platforms.
DLR 5.3: Verification of digital skill certifying training records shared annually by IPA and digital skill
credentials recorded by the HRMIS and other digital platforms.
DLR 5.4: Cross-validation of HRMIS and other digital platforms data reports with SPAC Assessment Center
interview and evaluation records and IPA training assessment reports.
DLI 6 on the establishment of digital health standards across a national Health Information Exchange (HIE)
Formula Scalable. The DLI disburses up to US$29 million across the three following DLRs:
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- DLR 6.1 disburses US$3 million once a multi-sectoral committee is established and functional and able to
conduct core health information governance tasks. This includes health data stewardship, setting health
data standards, enhancing interoperability, setting compliance targets, and utilizing data.
- DLR 6.2 disburses US$18 million for a total of five foundational registries23 (client, terminology [common
data dictionary], facilities, health professionals, product catalogue) and four core standards 24 (content,
terminology, transport, and security) established (US$2 million per registry/standard).
- DLR 6.3 disburses US$8 million against the upgrading of health information systems to share minimum
datasets within the national HIE framework and to utilize common registries.
The DLI supports the establishment of digital health standards across a national Health Information
Exchange framework, and it consists of the following 3 DLRs:
- DLR 6.1: A multi-sectoral committee is established and functional and able to conduct core health
information governance tasks, including health data stewardship, setting health data standards, enhancing
interoperability, setting compliance targets, and utilizing data.
Description
- DLR 6.2: Five foundational registries (client, terminology [common data dictionary], facilities, health
professionals, product catalogue) and four core standards (content, terminology, transport, and security)
are established.
- DLR 6.3: Health information systems25 upgraded to share minimum datasets within the national HIE
framework while utilizing common registries.
Data source/ Agency Reports from the Ministry of Health.
Verification Entity KACE.
DLR 6.1: The Terms of Reference (TOR) will be verified to confirm that the membership includes multi-
sectoral, technical stakeholders. The TOR needs to clearly articulate responsibilities with assigned
institutions to take the following actions: establish health data governance, define health data standards,
enhance interoperability, and utilize data. The meeting minutes will be used to verify the decisions made by
the committee.
DLR 6.2: Established registries and standards will be verified to confirm whether the registries use unique
and standardized IDs assigned and if health-related standards are based on international standards, such as
Procedure
the International Patient Summary (IPS), the international Classification of Diseases (ICD), and Health Level
7 (HL7). The IVA will confirm the availability of published national data standards, guidelines, and/or
interface specifications by the MOH.
DLR 6.3: The IVA will conduct system checks for the implementation of shared registries and
interoperability across health information systems. A minimum dataset utilizes standardized registry data
such as: a unique facility ID, a unique patient ID, a unique provider ID, a unique product ID, an appropriate
or common clinical code, and/or a unique service coding.
DLI 7 on the digitalization of student assessment
23 Foundational registries are accessible,common, and utilized across multiple health information systems. These shall include: (1) a client registry (that
supports the unique identification and management of patient identities); (2) one or more terminology registries accessible as a service (that provide a
standardized classification or a query-able source for health information exchange, including clinical terminologies, ontologies, dictionaries, code
systems, and value sets); (3) a universal facility registry (that sets the unique identifier for locations where health services are provided); (4) a health
professional registry (that sets the unique identifier for health workers that provide services within a country); and (5) a common product catalogue
(that properly defines and categorizes medical products or commodities).
24 Core standards include: (1) content standards (that dictate the structure of electronic documents and types of data they must contain by ensuring
data is properly organized and represented in a clear manner); (2) terminology standards (that ensure that all parties will be able to understand and
use it while exchanging health data); (3) transport standards (that facilitate data exchange between different systems by defining what formats,
document architecture, data elements, methods, and application programming interfaces to use for achieving interoperability); and (4) security
standards (that establish administrative and technical rules to protect sensitive data from misuse, unauthorized access, or disclosure).
25
Health information systems could include the national EMR platform, supply chain management information system, and surveillance systems
managed by the MOH. Selected health information systems will be described in the Program Operational Manual (including the verification protocol).
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Scalable. The DLI disburses up to US$ 50 million against 6 DLRs as follows:
DLR 7.1 disburses US$ 800,000 for every new Digital Assessment Center (up to a total of 3) and US$ 100,000
for each digital assessment room in school facilities (up to a total of 86) that is equipped and utilized, up to
a total of US$ 11 million.
DLR 7.2 disburses a premium in the amount of $100,000 for each new digital assessment room (up to a
total of 40) in refugee camps and in districts with a high concentration of refugees (>10 percent of
Formula population) for up to a total of US$ 4 million.
DLR 7.3 disburses US$40,000 for every batch of 100 teachers with certified digital skills in digital student
assessment (with a target of 20,000 teachers), up to a total of US$ 8 million.
DLR 7.4 disburses US$4 million for every 10-percentage points increase in the share of students sitting for
the digital Tawjihi exam, for up to a total of US$ 24 million.
DLR 7.5 disburses US$ 500,000 for every 10-percentage points increase in the share of refugee students
sitting for the digital Tawjihi exam, for up to a total of US$ 3 million.
The DLI supports the digitalization of student assessments through:
- DLR 7.1 on the establishment of digital assessment centers across Jordan to host the General Secondary
Certificate Examination (Tawjihi) in its digital format. The digital assessment centers will be fully equipped
with the required digital devices, furniture, and broadband access to meet the physical infrastructure
requirements for administering the digitalized Tawjihi. These can be in standalone centers or schools
equipped to serve as such. The centers will be distributed geographically to ensure equitable access, and
they will be equipped to be cross-functional, that is, used for multiple purposes, including other
Description assessments as well as teacher training.
- DLR 7.2 provides an incentive for digital assessment centers in refugee camps and districts with high
concentrations of refugees, thus removing barriers to access.
- DLR 7.3 on the mainstreaming of digital student assessments in secondary education by having all
students access the digitalized Tawjihi, including refugees living in camps.
- DLR 7.4 on enhancing teachers’ digital skills at the secondary level to integrate digitalization in the
assessment process and to support the digitalization efforts.
- DLR 7.5 incentivizes refugee students taking the digital Tawjihi.
Data source/ Agency MOE / EMIS.
Verification Entity KACE
DLR 7.1 & 2: Verification of infrastructure records and random spot checks to confirm whether equipped
centers are functional and are successfully accommodating the Tawjihi exam, that is, that digital devices
can be turned on, the network can be accessed, emergency measures are in place
DLR 7.3: Verification of MOE training records and certification data regarding G10-12 teacher completion of
Procedure training. The verification agent will also go through the online training material and program, as well as
interview a sample of randomly selected teachers that have completed the training according to training
records data. The agent will then verify completion of training.
DLR 7.4 & 5: Review of MOE records and system concerning the number of students completing the digital
Tawjihi exam as a share of total students sitting for Tawjihi in the same round.
DLI 8 on enhancing e-information
Scalable. The DLI disburses against online reporting by the PMDU regarding progress achieved toward the
objectives of the Economic Modernization Vision on public sector modernization and digitalization; and the
strengthening of the enforcement of the Access to Information Law. It disburses up to a total of US$ 30
million as follows:
Formula
Against DLR 8.1: US$ 2 million upon the strengthening of legal provisions for the enforcement of 2007
Access to Information Law (prior result).
Against DLR 8.2: US$ 0.5 million in each calendar year for each of the bi-annual updates to the PMDU public
dashboard regarding relevant information up to the limit of US$ 4 million.
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Against DLR 8.3: US$ 2 million in CY2024 and 2025 and US$ 1 million in CYs 2026, 2027 and 2028 for each
10 percentage point increase on average in response rates to requests for information filed online for
government entities, for a limit of US$ 12 million.
Against DLR 8.4: US$ 0.5 million every year for each compliant ministry and agency with proactive
information disclosure requirements for the limit of US$ 12 million.
The DLI supports the strengthening of online official communications regarding progress achieved toward
the objectives of the Economic Modernization Vision on digital transformation, as well as enforcement of
the 2007 Access to Information Law. It consists of the 4 following DLRs:
DLR 8.1: Tabling by government to the Parliament of amendments strengthening the enforcement of 2007
Access to information law (prior result).
Description
DLR 8.2: Reporting through the PMDU public dashboard concerning the progress achieved regarding digital
transformation toward the objectives of the Economic Modernization Vision.
DLR 8.3: Enhanced government responsiveness to online requests for information.
DLR 8.4: Online compliance with legal requirements concerning proactive information disclosure across
selected government entities.
DLR 8.1: The source of information is official documents approved by the Government of Jordan on the
enforcement of 2007 Access to Information law.
Data source/ Agency DLR 8.2: Public dashboard and semi-annual reports of the PMDU.
DLR 8.3 & 4: Annual report on the implementation of access to information from the Information
Commission.
Verification Entity KACE.
DLR 8.1: Verification of official notification documenting the submission by the GoJ to Parliament of
amendments to the 2007 Access to Information Law that they include the following provisions: (1) opening
of the Information Council, which oversees the enforcement of the law to Civil Society Organizations
(CSOs), strengthening its oversight responsibility; (2) specifying that exceptions do not include information
related to human rights violations, war crimes, and crimes against humanity; (3) mandating proactive
information disclosure and the appointment of information officers in all departments; and (4) shortening
Procedure
delays to respond to requests for information.
DLR 8.2: Verification of the availability of information on the PMDU dashboard every semester.
DLR 8.3 & 4: Verification of annual reports to be submitted by the Information Council regarding the
enforcement of the Access to Information Law based on spot checks by the IVA in government entities.
DLI 9 on expanding access to user-friendly and interactive statistical data.
Scalable. The DLI disburses against the strengthening of the statistical legal framework; progress toward
the integration of data from various government entities; the public disclosure of key indicators, as well as
their underlying micro-data, subject to an established protocol for access. It disburses a total of US$ 30
million as follows:
Against DLR 9.0: US$ 2 million for the approval and tabling to Parliament by Cabinet of the National
Formula Statistics bill, provided it contains adequate provisions concerning the role of the Department of Statistics
(DOS) in accessing and validating administrative data, as well as on public access to micro-data. (prior
result)
Against DLR 9.1: US$ 3 million for the launch of the statistical interface with key DOS indicators, and an
additional US$ 1 million for each additional public entity whose validated administrative indicators are
integrated into the interface and validated, up to a total of US$ 18 million.
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Against DLR 9.2: US$ 1 million for each core micro-data set made available via an online portal to users in
adherence with the access protocols for up to a total of US$ 8 million.
Against DLR 9.3: An additional US$ 400,000 for every core micro-data set made available with indicators for
gender, disability and residency status, for up to 5 micro data sets and in the limit of US $2 million.
The DLI supports the operationalization of an interactive statistical interface by DOS to allow users to query
key statistical indicators (such as unemployment, labor force participation, and so on). This can be done
according to user-defined cross tabulations, including gender, age, education-level, nationality and
governorate. The DLI also supports the integration of administrative data on the platform from key line
ministries to allow for a ‘one-stop shop’, with incentives for each additional line Ministry that is integrated.
It consists of one prior result and three DLRs:
Description
DLR 9.0: COM submits the draft National Statistics Law to Parliament with selected provisions on the role of
the department of statistics in accessing and validating administrative data as well as on public access to
micro-data (prior result)
DLR 9.1. DOS launches and publishes a statistical interface with key DOS and administrative indicators
DLR 9.2 & 3. Access to selected anonymized micro-data for selected policy analysis and researchers, in line
with the statistical law and government policy
DLR 9.0 Cabinet decision.
Data source/ Agency DLR 9.1: Dos interactive websiste
DLRs 9.2 and 3: DOS online portal
Verification Entity KACE.
DLR 9.0: Verification of cabinet approval of the National Statistics bill and of its tabling to Parliament, as
well as the inclusion of adequate provisions concerning the role of the the National Statistical Centre in
Procedure accessing and validating administrative data, including public access to micro-data.
DLR 9.1: Verification of the availability of indicators on the DOS interactive portal annually.
DLR 9.2 & 3: Verification of access to micro-data in line with protocols using the ‘secret shopper’ approach.
DLI 10 on Institutionalizing effective health data use
Scalable. The DLI disburses up to US$8 million against four following DLRs:
- DLR 10.1 disburses US$3.25 million against the establishment of the National HDQA framework and action
plan, provided that the framework includes data effectiveness metrics for timeliness, availability, precision,
reliability, and that the action plan includes targets set against the framework and activities to be
conducted to achieve targets.
- DLR 10.2 disburses US$1.25 million for each HDQA evaluation, for up to a total of US$2.5 million.
Formula
- DLR 10.3 disburses US$2 million against an improved score in the subsequent HDQA evaluation compared
to the previous HDQA evaluation conducted under the HDQA framework (adopting the readily available
international tool(s) as much as possible) — and conducted to assess data quality according to defined
elements (that is, accessibility, accuracy, and timeliness).
- DLR 10.4 disburses US$0.25 million upon select key performance indicators (KPIs)26 evaluated in
accordance with the HDQA and published in the annual MOH report.
The DLI supports the adoption of a national HDQA framework and action plan for health data quality,
Description including its use to inform better decision-making and monitoring over time. The results from regularly
applying HDQA will feed into the policy dialogue to effect data use.
Data source/ Agency Publication by MOH of the HDQA evaluations upon completion.
Verification Entity KACE.
26
KPIs will be defined in the Program Operational Manual (including Verification Protocol).
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DLR1: The defined HDQA framework will be verified to confirm that the tool uses international standards to
measure data quality standards (for example, in terms of validity, integrity, precision, reliability, and
timeliness). The HDQA will be verified to confirm it clearly articulates the principles of health data quality,
health data governance and the data use framework. The IVA will conduct desk reviews, including for the
quality assurance mechanism for data entry and data management at the facility level.
DLR2: Verification entity will verify that the periodic HDQA evaluation has been completed and made
Procedure available for public review (that is, disseminated, and published).
DLR3: Review of HDQA evaluations across at least two reporting periods, verifying that they have been
completed according to HDQA framework, asserting improved scores across the reporting periods, and that
the findings have been disseminated to stakeholders.
DLR4: Verification entity wil review HDQA evaluations for the select KPIs, verifying that they have been
completed according to the HDQA framework, and that KPIs have been published in the national annual
MOH report.
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ANNEX 2. SUMMARY OF TECHNICAL ASSESSMENT
Program Description
1. The Program consists of three Result Areas: 1) Service delivery; 2) Government effectiveness; and 3) Transparency and
accountability, as well as several DLIs for each Result Area. It targets cross-cutting objectives and focuses on two critical,
sector-specific ones for education and health.
Under Results Area 1 on improving people-centric service delivery through digitalization, the Program supports: (a)
expanding trusted and inclusive access to people-centric digitalized services; (b) increasing the inclusive adoption of people-
centric digital identity; (c) improving trusted, people-centric data sharing, and (d) digital transformation in health service
delivery.
Under Result Area 2 on government effectiveness, the Program supports: (1) the professionalization of the civil service;
(2) the establishment of an enabling foundational environment for digital transformation in the health sector; and (3) the
digitalization of student assessments.
Under Result Area 3 on transparency and accountability, the Program supports: (1) the enhancing of e-information; (2)
data accessibility; and (3) the institutionalization of the effective use of health data.
Strategic Relevance and Technical Soundness of the Program
2. The design of the Program is informed by extensive analytical background work, policy dialogue and operational
experience with governance reforms, including digital reforms, in Jordan. The World Bank has commissioned a range of
assessment reports regarding transparency and accountability systems (such as the 2007 Access to Information Law and
the government’s Grievance Redress platform called At Your Service) and service delivery (including e-service public value
assessments, and the effectiveness of the judiciary system). Under its ongoing projects, the World Bank is also financing
the commissioning by the GOJ of critical evaluations for the purpose of the operation, such as a taxpayer journey mapping
by the Income & Sales Tax Department and e-services public value evaluations by MODEE. In 2022, the World Bank has
also applied the Country-Level Institutional Assessment to Jordan. It has engaged in policy dialogue with the governmental
committee, which drafted the Public Sector Modernization Roadmap. It also provided it with several on-demand policy
briefs (for example, on performance management, the governance of public-private partnerships, the governance of
accountability institutions and mechanisms, the planning function, the role and functions of the center of government,
policy making, and change management). In addition, the Bank advised the Committee on Digital Transformation. Finally,
the Bank is also engaged in policy dialogue and providing technical assistance regarding service delivery and the
strengthening of statistical information under the Jordan Growth Multi-Donor Trust Fund (MDTF).
3. The operation is targeting people-centric outputs and outcomes of the Public Sector Modernization Roadmap to help
strengthen social accountability through digital governance. This focus is warranted by Jordan benchmarking under a
range of governance indicators presented in the full technical assessment.
4. Within the Public Sector Modernization Roadmap, the operation also aims at supporting the implementation of
selected reform programs reflected in the government budget, that is, costed, budgeted, implemented by an established
government entity, and targeting specific objectives. Most of those reform programs are financed by the budget which is
program-based. Taken together, they add up to the government’s program of expenditures. A few have been selected
based on policy dialogue with implementing agencies (such as the PMO and Civil Service Bureau [CSB] on civil service
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reform, the Ministry of Education on digital examinations, the Ministry of Health on the digitalization of the health sector,
the Information Council regarding Access to Information) after ascertaining institutional capacity and fiscal resources.
* * *
6. Result Area 1 on service delivery addresses one of the main strategic objectives of the Public Sector Modernization
Roadmap and Digital Transformation Strategy, with a focus on increasing the inclusive adoption of people-centric digital
identity, improving trusted, people-centric data sharing, and expanding trusted and inclusive access to people-centric
digitalized services, including health services.
- Jordan has been actively working on the digitalization of public services; however, user adoption remains low due to
limited end-to-end service digitalization, low perceived relevance for many individuals and service providers, and
eligibility restricted thus far to citizens. The Sanad application implemented by MODEE includes digital identity (ID),
electronic signature, and a personal document store, in addition to functioning as a unified online portal for accessing
digitalized public services. Approximately 800,000 users (that is, around 7 percent of the population) have activated their
Sanad accounts as of January 2024, which is far below the Government’s goal of 3.5 million active digital IDs by 2025. The
limited adoption of Sanad is due to low perceived relevance for many individuals and service providers, as well as to
eligibility restricted so far to citizens, thus leaving various demographic groups (such as non-Jordanians – amongst whom
refugees, and military personnel) ineligible for a digital ID. MODEE plans to increase the uptake of Sanad by: (1) expanding
eligibility and outreach to enroll additional users (for example, through the operationalization of new Government Service
Centers (GSCs) or targeted visits to refugee communities); (2) introducing new features to enhance trust, interoperability,
security, and people centricity, such as adding a mechanism to collect user consent for data sharing; (3) implementing a
Digital Public Infrastructure (DPI)27 ecosystem approach that is aligned with international good practice, to achieve
effective, end-to-end, digitalized service delivery workflows. Taking a trusted, people-centric DPI ecosystem approach
offers the opportunity to embrace international standards and open internet technologies by using trusted data for
eligibility purposes, access control, and the provision of efficient, in-demand digitalized services. MODEE will be responsible
for setting the DPI ecosystem’s rules, such as those for identification, authentication, and interoperability, and for ensuring
all participants are aware of their responsibilities and act in compliance with DPI ecosystem requirements.
- A trusted, people-centric DPI ecosystem approach enables the digitalization of services at scale and aligns Jordan with
international best practice. To create rich digital services, it is important that trusted data is available for eligibility
purposes, access control, and efficient service provision. This is achieved in the DPI ecosystem through unique identification
of persons and digital verification of their identity during service access (digital identity), as well as through consent-based
data sharing from authoritative sources (data sharing). The sharing of personal data should be, where relevant and possible,
under the control or consent of the data subject or person to whom that data relates. A person’s data is not necessarily all
in one place or in one database, and in most cases, it is maintained by an authoritative source, such as a government
ministry or a public entity. An example is a record of achievement in education (proof that the person has a qualification,
such as a degree), a medical record (details of the person’s current medication and conditions), or an entitlement
document, such as a national identity card (identifying the person’s legal name). Holding and managing all this data in a
single database is impractical and creates security vulnerabilities. Sharing this data securely and reliably under the consent
of the individual offers many advantages over silos of data and functionality. People should have the ability to manage their
consent with a particular service or dataset, including the ability to review and revoke consent as necessary. Taking a
27
Digital Public Infrastructure (DPI) refers to digital ID, payment, and data exchange capabilities that are fundamental to enabling
service delivery at scale and supporting innovation in the digital economy. DPI provides reusable and foundational digital platforms
that allow public and private sector service providers to build and innovate their products and services.
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people-centric DPI ecosystem approach offers the opportunity to embrace international standards and open internet
technologies to create a trusted data sharing capability as part of the implementation of the Digital Transformation
Strategy. This includes technologies that encapsulate trust into the transfer of credentials, rather than the creation of new
trust management systems that add operational overhead or risk. Approaches such as digital wallets and verifiable
credentials in an open data sharing environment, alongside digital identity to provide proof of ownership for those
credentials, come together into a complementary DPI stack that promotes trust in digital interactions. As part of its
mandate to implement the Digital Transformation Strategy, MODEE will be responsible for setting the DPI ecosystem’s
rules, such as those for identification, authentication, and interoperability, and ensuring all participants are aware of their
responsibilities and act in compliance with DPI ecosystem requirements.
- The GOJ is operationalizing Government Service Centers (GSCs) nationwide to facilitate access to and build trust in
digitalized public services. GSCs promote a unified, efficient, inclusive, and citizen-centric approach for the delivery of
national and municipal services from a single location, in addition to facilitating the activation of digital ID for first-time
visitors and applicants to e-services. They also offer training on the use of digitalized services and provide the GOJ with in-
person, real-time feedback on the quality and efficiency of digitalized service delivery. Since its inauguration in September
2022, the Amman GSC site — which offers over 100 services from 20 ministries and agencies — has had over 80,000 visitors
and executed more than 170,000 transactions as of October 2023. A second GSC was inaugurated in August 2023 at Queen
Alia International Airport, and the GOJ plans to have fifteen sites operationalized nationwide by the end of 2025. These
GSCs will serve as an important interface for the Government’s engagement with citizens and residents.
- The Personal Data Protection Law, enacted in September 2023, incorporates key principles recommended under
international good practice, such as the UN Principles on Personal Data Protection and Privacy and the EU's General Data
Protection Regulation (GDPR), including legitimacy of the processing, purpose limitation, accuracy of personal data, and
confidentiality. The law also underscores the significance of the data subject's consent and determines the conditions
under which such consent justifies the processing of personal data, including specificity, informativeness, expressiveness,
and alignment with the purpose. In addition, data subject rights are clearly articulated, and sensitive personal data is
distinctly defined and aligns with international good practice.
- The Government of Jordan launched several national strategic plans in 2023 to improve the coverage and quality of
healthcare services, including the efficiency and effectiveness of the health system. Digital transformation is one of the
priorities that would enable effective monitoring of population health trends, as well as the production and use of reliable
and timely quality data for effective decision making at all levels. These include computerization of hospitals and medical
centers; the development of an inventory management system; a human resource management information system;
accounting/billing systems for healthcare facilities; the introduction and scale-up of telemedicine; improved data sharing,
security, and privacy; and digitalization of people-centric services (for example, licensing and insurance card issuance). In
line with the national programs, the following Result Areas will be prioritized for the World Bank’s Program support: (1)
improved governance in the health sector, that is, establishing a national framework for the HIE and improved data sharing;
(2) rolling out an existing national electronic medical record system (that is, Hakeem) to all Ministry of Health (MOH)
primary (comprehensive and primary), secondary, and tertiary healthcare facilities in all 14 health directorates; and (3)
strengthening institutional capacity for effective and timely decision-making. The support is expected to promote a unified
health system from the citizen and health-client information standpoint, as well as the enable the ability to target and
effectively manage programs and the allocation of health resources. For example, this could include stronger referral
systems that can support the transfer and referral of patient information across facilities and networks if all providers utilize
the national patient record system through a HIE; the establishment of key foundational registries; and the building blocks
for the integration of insurance schemes and claims across different health system elements.
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6. The Program aims to address challenges that prevents Jordan’s health system to be more efficient and effective to
provide people-centric quality services. According to the Global Digital Health Index (2018), Jordan has developed a more
mature digital health landscape (with an overall score of 4 out of 5), compared to other neighboring countries, such as Iraq
and Kuwait. However, due to multiple electronic information systems designed and operated in silos, data systems have
been fragmented with inconsistent data quality. Other assessments also highlight areas for improvement, such as
governance (for example, a lack of standards across different systems and enforcement), ICT infrastructure (for example,
limited coverage of ICT equipment and broadband coverage at health facilities), and institutional and workforce capacity.
Accordingly, the Program aims to address critical gaps by supporting the expansion, interoperability, and effective use of
digital health information systems in Jordan. With Jordan’s mature digital health landscape, expected results from the
Program will enable Jordan to establish a conducive governance environment for more transparent and effective
integration of innovative technologies in the health sector. In addition, the Program builds on the legacy that Jordan had
invested in during the last 10 years. As such, it would help to transform health sector service delivery and produce more
quality data for timely decision-making. The Program aims to address critical gaps by supporting the expansion,
interoperability, and effective use of digital health information systems in Jordan. The Program includes Results Areas that
foster a foundational environment, thus enabling digital transformation at scale via the HIE and appropriate oversight,
governance, and management mechanisms. Building on the strong interoperability layer, the national EMR system will be
expanded to all MOH facilities at the primary, secondary, and tertiary levels. Currently, the Electronic Medical Records do
not track refugee status, making it difficult to determine whether a registered non-Jordanian – including Syrian refugee
patient is eligible for subsidized healthcare services. This contributes to the low uptake of health-services by refugees.
Collected data from the national EMR will then be used to strengthen institutional capacity in data use through
institutionalized data quality audits.
7. Result Area 2 on government effectiveness supports a cross-cutting objective of enhancing the professionalization of
the civil service, including its digital literacy, as well as two sector specific strategic objectives, namely: improving student
assessments through digitalization and enhancing the quality of health data.
- Enhancing the professionalization of the civil service in Jordan is one of the main strategic thrusts of the Public Sector
Modernization Roadmap. It seeks to uplift the overall quality and efficiency of the civil service, thereby addressing the
weak partnership with the private sector and civil society. As part of this initiative, the Government has set an ambitious
goal to competitively recruit 100 percent of new civil service entrants by 2027 through competency-based promotions. This
represents a significant shift, especially when considering that only 12 percent of recruitments currently are based on
competency-based assessments. To further strengthen the reform, the Government has outlined pivotal milestones, such
as the introduction of transparent career paths and the formation of a job competencies system by May 2024. A
competency assessment center, expected to be operational by September 2024, will be instrumental in enhancing both
recruitment and promotions. This approach resonates with the identified need for effective public institutions and
responsible, competent civil employees who can translate national visions into actionable policies and plans. Moreover, in
keeping with global technological trends and the recognition of Jordan's rank in the electronic government development
index, capacity-development programs will be facilitated through the Institute of Public Administration (IPA). These
programs will emphasize enhancing digital literacy, ensuring that public officials are equipped to utilize technology
effectively. In tandem, a focus on gender sensitization will foster an inclusive work environment, aligning with the need to
bolster citizen trust and confidence in government institutions.
- The government has demonstrated a renewed commitment to reform the content, modality, and purpose of the
General Secondary Examination (Tawjihi), which remains the single most influential and decisive high-stakes exam in
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Jordan’s education system. This examination has been used for decades with the dual purpose of being a gateway to high
school (upon achieving a passing score), and to determine the admissions track to higher education. The Government has
recently approved a comprehensive reform plan for the Tawjihi to separate the dual function of the exam and have it
administered over two years (during grades 11 and 12). This change will provide students with greater flexibility and ensure
that secondary graduates receive a certificate upon completing their education, regardless of their Tawjihi result (if they
opt to sit for the exam). The reform also includes plans to digitalize the exam and establish assessment centers for
administering the digitalized Tawjihi. The objective of digitalizing the Tawjihi is to address several shortcomings present in
the current paper-based version of the exam. These include the following:
• The lengthy process involved in conducting paper-based exams, including tasks such as preparing exam papers,
administering them, correcting answer sheets, and extracting results. This process can take up to 5 months for each
round, making it challenging to hold the exam more than twice a year.
• The psychological and societal stress associated with the examination, which sometimes requires the involvement of
state agencies.
• The significant cost associated with conducting the General Secondary Examination in its current format, which would
reach over JOD 20 million (over US$ 30 million) per year. The supervision budget is particularly high because every 15
students must have 2 supervisors in the same room to limit cheating incidents as much as possible.
• Variations in the difficulty of exam papers and pass rates across different rounds. This variability is attributed to the
fact that exam paper questions are untested, and their difficulty depends on the judgment of those who create the
questions.
• The simultaneous announcement of results for all students and subjects, which puts strain on government agencies in
managing public feedback. This includes dealing with increased road traffic and potential internet crashes.
8. Result Area 3 on transparency and accountability supports e-participation, the government’s open data agenda and
the enhancement of data quality in the health sector.
- Regarding e-information, the electronic participation policy approved by the GOJ in 2021 has yet to be implemented
and the 2007 Access to Information Law, as amended in 2024, has yet to be enforced. As a result, Jordan lags regional
best performers under the e-participation indicator of the UN’s E-government Readiness Index. Also, even though Jordan
was the first country in MENA to legislate the right to information, it ranks amongst the 10 least-performing countries the
Right to Information Index (RTI) published by is badly rated by the Centre for Law and Democracy. It has particularly room
for improvement on the right to access to information and on sanctions for non-compliance with legal requirements and
protection of applicants. The GOJ tabled amendments to the Parliament in 2019 to address significant weaknesses and
loopholes in the initial legislation. This should lead to a significant improvement in Jordan’s rating under the RTI.4 Those
amendments include: (1) open the Information Council, which oversees the enforcement of the law to Civil Society
Organizations (CSOs) and strengthens its oversight responsibility; (2) frame exceptions to access to information for national
security reasons; (3) mandate proactive information disclosure and the appointment of information officers in all
departments; and (4) shorten delays to respond to requests for information. Those amendments have not yet been passed,
but they have been tabled again in the fall of 2023. In the meanwhile, the GOJ has approved enforcement procedures under
an executive order (called protocol28), which even though limited in its scope, contains important requirements on access
to information online. Specifically, it prescribes that government entities should post electronic forms for citizens and
businesses to file online requests for information and ensure on time follow-up; publish on their website information
frequently asked for and proactively disclose on their website a list of disclosable information (specified in another Protocol
28
See Protocol on procedures for implementing the law guaranteeing the right to access information.
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on Information Classification, also approved by the government in 2020). The government also mandates the Information
Commission to elaborate and apply a performance indicator for the enforcement of the right to information capturing: (1)
the timeliness of government responses to requests for information; (2) applicants’ satisfaction with the quality of
information provided; and (3) the range of information proactively disclosed. The Program supports the strengthening of
the policy, regulatory and institutional framework for the strengthening of e-information. It does not entail any significant
technical challenges in that regard.
- Regarding interactive statistical data, the Program supports the government objective stated both in the Economic
Modernization Vision and the Public Sector Modernization Roadmap to “empower a public data agency responsible for
data availability, access, and decision-making support” called a national statistics center. The government is currently
reviewing the draft national Statistics to clarify the responsibilities of the Department of Statistics, including that it is to
approve the definitions, classifications and technical standards for statistical units in all government departments. As part
of the EMV, it is also establishing an interactive data center. A number of MOUs were signed to allow regular and timely
access to the latest and legally permissible government data sources. The law also authorizes the sharing of anonymized
data for the purposes of study and scientific analysis. Therefore, the Program incentivizes the establishment of an online
portal with clear protocols for requesting data access for research or policy-relevant analysis. These reforms set the building
blocks for the interface and protocols for data access, which will facilitate data transparency and accessibility.
- Regarding health data quality enhancement, the Program aims to address identified challenges in terms of availability,
efficiency and regular reporting of health data by medical staff. According to a 2021 assessment report, health data
management is undermined by: paper-based forms; poor quality of data submissions; delays in the submission of data; no
standard procedures for reporting at regional IT directorates; and detailed and time consuming data reporting processes29.
Institutional Framework
9. Responsibilities for Program implementation are clearly assigned across implementing agencies, and they are in
alignment with their respective mandates under the government reform agenda. Institutional arrangements are
described in the main text. Mobilized institutional capacity and interagency coordination are limited; however, they will be
strengthened through the Program and by leveraging parallel technical assistance. Further details are provided in the full
technical assessment.
Program Expenditure Framework
10. Regarding the implication of the fiscal context for the PforR and any impact of the PforR on the fiscal outlook, the
Program expenditure framework is fully informed by the current context of fiscal consolidation; as such, it should not
be impacted by the fiscal outlook of further consolidation. It only amounts to a very small percentage of current and
projected public expenditures (less than one percent). It essentially consists of recurrent expenditures (to the exclusion of
subsidies), which are projected to increase slightly in the next five years (that is, by 19 percent in nominal terms). It is not
expected that further fiscal consolidation should impact it for three reasons: (1) It is narrowly limited in proportion to
budget expenditures; (2) It does not call for a significant increase in appropriations; and (3) It does not include sizeable
capital spending or subsidies, which are the variables commonly used for fiscal consolidation in Jordan. It also consists of
budget expenditures deemed strategic for the implementation of the government’s economic strategy and reform agenda.
It does not require any additional spending than what is already budgeted (and extrapolated beyond the medium-term
29
Global Affairs Canada, 2021, Assessment of the Ministry of Health (MOH) technical and infrastructure needs, and human resource
capacities related to Health Information System (HIS) management at the primary and secondary healthcare level.
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fiscal framework, based on the 2024 budget). On the contrary, it should lead to enhanced cost efficiency in the provision
of services, including in health and education, thereby helping to alleviate the fiscal burden of service delivery.
11. The Program’s expenditure framework supports two of the growth drivers (called Smart Jordan and Future Services)
of the Economic Modernization Vision, which aims at doubling Jordan’s annual growth rate, thus helping to improve
Jordan’s fiscal outlook. By improving the output and outcome efficiency of public spending, it can help the government to
better control recurrent expenditures and improve expenditure effectiveness. Also, the Program expenditure framework
falls well within fiscal projections. As such, it does not entail any significant increase in expenditures and should not increase
the debt service ratio in the short term.
12. Regarding the budget structure and classification, it allows for the economic, administrative and functional
categorization and tracking of expenditures under the Program’s expenditure framework, which is in compliance with
international public sector accounting standards (IPSAS). As reflected in Table 1 below, the Program’s expenditure
framework builds on the identification of implementing agencies, their relevant budget programs and relevant budget lines
(disaggregated into recurrent and capital expenditures) within selected budget programs. The classification of expenditures
allows for adequate budget formulation, tracking, reporting and auditing of expenditures. Regarding budget classification,
Jordan’s rating has been upgraded from a D to an A under the Public Expenditure and Financial Accountability (PEFA)
Assessment in 2021. It characterizes the economic classification of expenditure as “complete”. External auditing of ongoing
PforRs is timely and acceptable to the World Bank.
14. Reporting on service delivery outcomes is can be further improved. As mentioned in the 2021 PEFA Assessment, “for
the purposes of the budget documentation all the activities of all Ministries or Departments are broken down into
programmes, with key performance indicators (KPIs) setting out the actions to be undertaken and the outputs produced”,
and the appropriation law reflects performance achieved in previous years and targeted in the next two years. “But they
are not generally specified in terms of outcomes (e.g. reductions in the incidence of diseases, increase in the number of
students achieving specific academic standards).” Also, information concerning resource allocation to front-end service
providers and performance auditing of the budget are still scarce (resulting in a rating of a D under the 2021 PEFA
Assessment).
15. Regarding the Program’s financial sustainability and funding predictability, budget predictability is good. According
to the 2021 PEFA Assessment, Jordan is rated an A for the aggregate expenditure out-turn as compared to the original
approved budget. It is rated a B for both the expenditure composition outturn by functions and economic categories. The
execution rate of recurrent expenditures, which amount to most of the Program’s expenditure framework, is maximum,
whereas cash rationing remains a significant constraint. The main variable of adjustment of budget execution is capital
spending, and its execution rate varies widely. Cash is released to government entities monthly by the Ministry of Finance.
he Program aims at securing the MOF’s release of the budget lines deemed critical to the achievement of targeted results
and vulnerable to cash rationing (as in the health sector).
16. Regarding the adherence of the budgeted Program expenditures and its execution of the government’s priorities,
the Program’s expenditure framework consists exclusively of actually budgeted expenditures, which are selected as
deemed necessary to the achievement of the government’s public sector modernization and digitalization agendas. In
the budget of implementing agencies, it is narrowed down to a few budget lines under relevant budget programs selected
for their relevance to the objectives of the Program. Also, identified budget lines have a good record of execution, as already
noted.
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17. Regarding the efficiency of Program expenditures, the Program’s expenditure framework consists exclusively of
selected productive expenditures in the national budget earmarked to the implementation of relevant budgeted
programs of implementing agencies. The Program’s expenditure framework is earmarked to the achievement of critical
results under the government’s growth and development strategy and reform agenda, and it is deemed result efficient. It
does not include the financing of large, cross-cutting operating costs, and it should even allow for substantial savings as in
education and health service delivery. This would be achieved through sectoral digitalization. Its main components are
detailed below in Table 7.
Table 1: Detailed Program Expenditure Framework
Government Government
Agency Budget programs Expenditure Category Budget Lines (2024 Budget) Budgeted Amount in 2024 Result Area
program in JOD program in US$
Current Expenditure 5520 - 010-2211; & 016-2111 2,933,333 4,133,067
MODEE1 E-government program 5520 010-2211; 016-2111; 017- 1
Capital Expenditure 2211; 023-2211; 028-2822; 051-211; - 13,773,333 19,406,627
& 053-2211
Current Expenditure 0330 009-2111; & 001-2822 22,550,000 172,900,000 243,616,100
PMO2 Public Sector Modernization roadmap & Development of Government service centers 1, 2, and 3
Capital Expenditure -
General Secondary Education Examination & Current Expenditure 4430-603-2111; & 4450-603-2211 - 67,945,000 95,734,505
MOE3 Maintenance and repairs for the secondary 2
education buildings Capital Expenditure 4430 007-2211 - 4,500,000 6,340,500
Administrative and Support Services 0910-601-2111/2121/2211/2821; &
Current Expenditure 2,496,000 20,060,500 28,265,245
program; Completing the Human Resources 0915-601-2111/2121/2211/2821
Administration Information System Project/
SPAC 2
Stage 2; Automation and E-services project;
& Personnel Affairs and Public Job Capital Expenditure 0915-002-2211/3111 135,000 1,290,000 1,817,610
Administration project
General census of population and Current Expenditure - - -
DOS 3
households
Capital Expenditure 3105-007-2822 7,000,000 24,000,000 33,816,000
Within Administration and Support Services Current Expenditure - - -
program: Ministry of Health
computerization; Supporting Jordan Center
MOH for Disease Control; Computerizing hospitals 4601 008-2211; 011-2211/3111; 015- 1 to 3
and health centers; Health sector Capital Expenditure 2632; & 018-2211 & 4615-045- 10,550,000 82,650,000 116,453,850
computerization/Hakeem; & Computerizing 2211/3111/3112/3222
hospitals and health centers
Current Expenditure 25,046,000 263,838,833 371,748,916
Total
Capital Expenditure 17,685,000 126,213,333 177,834,587
Grand Total 42,731,000 390,052,167 549,583,503
Source: Bank staff calculation
Note: Indicated budget codes consist of 4 first digits for chapters. The following 3 digits are for programs and the last 4
digits are for the budget line itself.
1) Since MODEE’s budget program is included in eligible expenditures of YTJ, which closes at the end of February 2027, it
is only included in the program of expenditure from March 2027 until Program closure.
2) The PMO budget line on Public Sector Modernization qualifies as current expenditures.
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3) The MOE’s budget program is already included in the program of expenditures of the Jordan Education Reform PforR,
which closes at the end of May 2025. Accordingly, it is only included in the program of expenditures of this PforR from
June 2025 until Program closure.
Result Framework and M&E Capacity
Result Framework
18. Targeted results have been calibrated to be achievable, while also being reasonably ambitious from the perspective
of further achievements in the longer term. They closely align with the government’s officially stated objectives of its three
relevant strategic documents. They have been calibrated based on the assessment of its institutional capacity to deliver on
its commitments, and they are deemed achievable within the Program’s timeframe. Most targeted results are already
pursued by the government under ongoing activities, and they have been partially achieved (as in the case of access to e-
services and digital identity, the professionalization of the civil service, the digitalization of the health sector, enhancing of
e-information, and so on). The Program supports their further achievement. Although the Program is not formally part of
a multi-phase approach, it is construed as the first phase of further World Bank operations, which may be built on while
reaching beyond its targeted results. Table 8 illustrates the longer-term achievements contemplated when designing the
Program.
Table 2: Contemplated Results over the Timeline of the EMV.
Phase 1: JPCDG PforR Phase 2: Follow up operation(s)
Timeline 2024-28 2029-2033
Result Area 1 on service - Expanding trusted and inclusive access to people- - End-to-end, trusted, people-centric, fully digitalized
delivery centric digitalized services. service journey.
- Increasing the inclusive adoption of people-centric - Improved patient management and access to e-
digital identity services.
- Improving trusted, people-centric data sharing
- Full coverage and operationalization of electronic
medical records.
Result Area 2 on - Mainstreaming of competency-based HRM, - Mainstreaming of competitive recruitment and
government effectiveness including through enhanced digital skills in the civil performance-based promotion to lower categories of
service. personnel.
- Digitalization of the student exam. - Further digitalization of education.
- Improved exchange of health information. - Strengthened monitoring of the performance of
health service providers.
Result Area 3 on - Enhanced e-information. - Enhanced e-participation of two other dimensions,
transparency and - Expanded access to user-friendly and interactive namely: public consultation and participatory
accountability statistical data. decision making.
- Use of enhanced health quality data. - Enhanced data-based policy dialogue and decision
making.
- Improved evidence-based public health policy
making.
19. Targeted results are deemed achievable by implementing agencies; however, some call for interagency coordination
across the government. In the education and health sector, targeted results fall essentially within the ambit of the line
ministries. Regarding e-services and DPI, MODEE’s coordination with service providers will be critical. The DLIs on E-
participation and interactive statistical data also call for the cooperation among line ministries and agencies across
government. It is expected that the active involvement of the PMO will foster the necessary interagency coordination
within and beyond the reach of he Program.
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20. Targeted results may be impacted by the exogenous risks identified in the Program’s integrated risk assessment.
Increasing security concerns triggered by the ongoing conflict may distract government attention and fiscal resources, while
climate change is not expected to impact the achievement of results.
M&E Capacity
21. The Program’s M&E framework leverages government monitoring systems, which ensures adequate measuring and
reporting of progress toward the targeted results. Indicators to measure process, output and outcome level results are
deemed specific, measurable, attainable, relevant, and timely (SMART). Across the Result Areas, reporting on progress will
be based on information and data generated by the very same IT infrastructure mobilized for the achievement of results,
as follows: Sanad for DLIs 1, 2, and 3 on access to e-services, digital identity, and trusted, people-centric data sharing; the
EMR system for DLI 4 on the management of electronic medical records; the HRMIS for DLI 5 on the professionalization of
the civil service; the Education Management Information System (EMIS) for DLI 7 on the digitalization of general secondary
education exam; the PMDU internet portal for DLI 8 on e-participation; and the DOS interactive internet portal for DLI 9 on
interactive statistical data. In other cases (DLIs 6 and 10 on health information exchange and quality data), results are not
incremental. As such, they do not require continuous monitoring and can easily be reported on by the implementing agency
(MOH) once achieved through analog reporting.
22. The PMU will ensure Program monitoring by collating information from implementing agencies, and it will leverage
monitoring of the implementation of the government economic reform agenda at the apex of government. This
monitoring institutional set up has been tested under the Jordan Transparent, Inclusive and Climate Responsive Investment
PforR. It proved effective to some extent in that it monitors the achievement of targeted results accurately; however, it
does not help inform policy dialogue on their impact. In order to mitigate this significant limitation, the Program will both
leverage and enhance the monitoring of the implementation of the Economic Modernization Vision by the PMDU, as well
as its reporting to the public about it. In doing so, the Program will also help to strengthen this monitoring system by
supporting its focus beyond the monitoring of activities (and compliance with the workplan approved by the cabinet) to
monitor their impact for the public in terms of outputs and outcomes.
23. The institutionalization of program and policy evaluations is limited in Jordan, but the Program mobilizes existing
institutional capacity to help enhance them further. It will call on the Jordan Economic and Social Council (ESCJ), a semi-
autonomous government entity comprised of representatives from civil society, the business community and the public
sector, to conduct impact assessments of achieved results during Program implementation. In addition, it mobilizes the
expertise of the King Abdullah Centre of Excellence (KACE) to help assess the capacity of implementing agencies and address
identified implementation bottlenecks within the government machinery. Impact assessments by the ESCJ and institutional
assessments by the KACE will be financed by the GIZ.
Economic Justification
24. The economic justification of the Program rests on its expected impact on the implementation of the Economic
Modernization Plan. It should strengthen the effectiveness of the government delivery mechanisms for economic
modernization by: (i) improving the output and outcome of public expenditures; and (ii) enhancing access and quality of
service in strategic areas targeted by the Economic Modernization Vision under its welfare pillar. (See paragraph on
Economic justification in the main text).
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25. Maintaining Syrian refugees access to livelihood opportunities, the Program should also generate inclusion dividends
for the economy of Jordan. Recurrent costs of hosting Syrian refugees in Jordan are estimated at US$1.23 billion a year, or
about 2.1 percent of Jordan’s GDP30. Yet, these costs are half as much as they would be if all refugees lived in camps with
no sources of income.
26. The Program could potentially result in and benefit from the mobilization of private capital for the provision of
government digitalized services; however, it is not co-financed by a private entity or directly aimed at facilitating private
investment. This is an option that the GOJ is contemplating for the management of the Government Service Centers to be
deployed in each governorate, including the provision of e-health services. However, no co-financing by a private entity,
direct or indirect, is contemplated, and the Program does not qualify for Private Capital Mobilization (PCM) tagging. At
this stage, the government does not have clear and credible plans to introduce a private sector solution within the scope
of the Program. No binding constraint to a sustainable private sector solution — whether physical, operational, policy,
legal, regulatory, institutional, or related to other enabling environment factors that affect private investment and
commercial financing — is addressed by the Program, nor monetary value of private investment captured in its results
framework. Accordingly, the Program does not qualify either for Private Sector Enhancement (PCE).
27. The Program also entails significant adaptation and mitigation climate co-benefits.
Table 3: Climate co-benefits.
Results Area and DLIs Mitigation co-benefits Adaptation co-benefits
Results Area 1 on improved These DLIs support a large scale transformation of With the EMR platform, beneficiaries will have
service delivery through service delivery and operations, i.e. supporting access to digital health services, such as booking
digitalization: GOJ in reaching its target of 3.5 million active appointments, reviewing laboratory diagnostic
DLI 1, 2 and 4 digital IDs and expanding adoption of Sanad, results, etc. Hence, with the Program support,
digital payments etc. Moreover, under DLI 4 beneficiaries (who have electronical medical
telemedicine and EMR will substantially reduce records at the platform) will be able to make an
travel and paper use in the long term, leading to informed decision on own health status and seek
a net GHG emissions. The three DLIs support first necessary care by reviewing laboratory results on
of its kind digital transformation for minority climate-induced diseases and making necessary
groups which didn’t have access to digital follow up appointments with healthcare
services, in particular women and non-Jordanian providers.
refugee population. In absence of this digital
transformation, at least 3 million people would
continue using paper-based systems and having
to travel repeatedly to public service offices and
health centers.
Results Area 2 on Those DLIs support a large scale transformation of Jordan is vulnerable to climate-induced diseases
enhanced government student assessment which will substantially (due to extreme heat, vector borne and/or water
effectiveness through reduce paperwork (see para below on reform of borne diseases which are exacerbated by climate-
digitalization: DLI 5 & 7 General Secondary Examination); and induced floods, for example). Digitalizing medical
information exchange in public health records, enabling monitoring beneficiaries’ health
online and improving interoperability under this
DLI will build the foundation for early warning
system in healthcare sector for infectious and
climate-induced diseases.
30
See Knippenberg and Hoogeveen, “Cost of Hosting Refugees in Jordan,” forthcoming.
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They will support the financing of servers at the Regarding resilience to climate risks, the GOJ’s
facility level in education and health, and entail 2020 Cloud Policy mandates that MODEE
the procurement of IT equipment, which will have “develop the Government Private Cloud to ensure
to comply with energy-saving and carbon- the delivery of effective and safe cloud services,
emissions requirements for IT hardware under in addition to developing the efficiency and
Jordan’s Regulation on the Procedures and Means security of the Secure Government Network [and]
of Energy Rationalization and Improvement of managing and providing the current cloud
Energy Efficiency issued in accordance with services in addition to developing new cloud
Article 18 of the Renewable Energy and Energy services for government entities such as the
Conservation Law No. 13 of 2012. Security as a Service (SecaaS) and Disaster
Recovery as a Service (DRaaS) and data storage
service (Government Drive).” The government
cloud is protected against climate-induced
disasters. The only IT system that will be
supported by the Program, which is not anchored
to the government cloud, Hakeem in the health
sector, is also protected against disaster risks,
including those triggered by climate change,
through a separate disaster recovery data center.
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ANNEX 3. SUMMARY FIDUCIARY SYSTEMS ASSESSMENT
1. The World Bank conducted a Fiduciary Systems Assessment (FSA) to confirm that the Program’s fiduciary systems
provide reasonable assurance that the financing proceeds will be used for intended purposes, with due attention to the
principles of economy, efficiency, effectiveness, transparency, and accountability . The FSA was completed based on a
PFM institutional capacity assessment of the implementing agencies (including the Prime Ministry’s Office (PMO), the
Ministry of Planning and International Cooperation (MOPIC), the Ministry of Health (MOH), the Ministry of Education
(MOE), the Ministry of Digital Economy and Entrepreneurs (MODEE), and the Civil Service Bureau (replaced by the Service
and Public Administration Commission (SPAC) effective January 1, 2024), as well as knowledge of Jordan's PFM and public
procurement systems. The FSA also reviewed the existing analytical and diagnostic analysis, published information, and
reports.
Risk Assessment
2. The overall fiduciary risk of the Program is rated as “Moderate.” The overall Program’s fiduciary framework is assessed
as adequate to provide reasonable assurance that the Program’s financing proceeds will be used for intended purposes,
with due attention to the principles of economy, efficiency, effectiveness, transparency, and accountability. Key risks have
been identified and those that could potentially impact the Program are detailed in the risks section.
3. The following risk mitigation measures are proposed: (1) The Bank team will review the annual budgetary allocations
of implementing agencies; (2) Special annual reports on arrears will be submitted to the World Bank for monitoring
purposes; (3) The implementing agencies will use an electronic system to manage their contracts, and it will be
interconnected to the Government Financial Management Information System (GFMIS); (4) Procurement plans will be
based on annual work plans of different agencies; (5) MOPIC will coordinate and monitor the overall procurement plans;
(6) Timely recording of procurement transactions will be ensured; (7) Capacity building of procurement departments will
be done through training on Procurement Bylaw No. 8/2022 and e-procurement (JONEPS); (8) Complaint records will be
uploaded and published on JONEPS; (9) Implementing agencies will appoint qualified technical specialized staff for drafting
bidding documents; (10) Coordination and integration of the Program will be done by a central agency, such as MOPIC, for
Results Areas involving multiple agencies.
Planning and Budgeting
4. The assessment confirms that Jordan’s budget systems are adequate for the Program. Implementing agencies use the
GFMIS for budget preparation and execution. The GFMIS is fully utilized for budget execution, but not for budget
preparation, given that manual interventions with various IT tools are being used. The GFMIS offers limited functionalities
include: (a) the presentation of an initial policy-focused budget submission; (b) the entering of multiple quarters and multi-
year commitments; and (c) capturing and populating the outstanding commitments and outstanding invoices for arrears
monitoring. As a result, arrears have continued to be a problem. Jordan’s budgetary central government budget
classification meets Government Financial Statistics/ Classification of the Functions of Government standards.31 These
classifications are included in the current chart of accounts, allowing for all transactions to be reported in accordance with
the appropriate standards. The budget is published on the GBD’s website (www.gbd.gov.jo). The final accounts and the
monthly General Government Finance Bulletin, which include budgetary government finance statistics aggregated
according to the economic and functional classifications), are also published on the Ministry of Finance’s website.
31
Jordan: Public Expenditure and Financial Accountability (PEFA) Assessment (2022).
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5. In 2022, the MOF introduced a major enhancement in relation to the Budget Law, which combined the central
government and the independent public institutions’ budget laws into one. Previously, there were two budget laws, one
covering the central government and another for public governmental institutions. The most recently issued budget law
for 2023 combined the central government and independent public institutions. It is arranged by sectors, including public
administration, security and defense, judiciary and religion affairs, financial management and planning, tourism,
investment, industrial development, infrastructure and local development, agriculture and natural resources, health and
social development, education, human development, and youth and culture.
6. The 2022 Public Expenditure and Financial Accountability (PEFA) Assessment confirmed that Jordan maintains a high
budget control standard. This is also supported by the budget performance analysis conducted for implementing agencies,
which indicated minimal cases of deviation of the actual expenditures from the original budget. The 2022 PEFA Assessment
reported a positive aspect concerning the limited use of the practice of charging expenditures to a contingency vote, which
accounted for an average of only 0.6 percent of total expenditures in 2018-2020.
Procurement Planning
7. According to Article 4 of Procurement Bylaw No. 8 of 2022, government agencies, including all government entities,
are required to prepare an annual procurement plan to control public expenditures. The plan should be prepared before
the end of the fiscal year, following the procedures for the annual budget. The agency must publish a summary of the plan
on its official website and the e-procurement portal. The plan is also available on the JONEPS website. To meet this
requirement, the Procurement Policy Committee issued a policy note on procurement planning, outlining the objectives,
requirements, and template for the plan. This allows for data extraction and performance monitoring. However, the
linkages between procurement planning, budget preparation, and execution are currently not ensured. The government
publishes budget allocations and execution information separately. Procurement and budget plans have different cycles
and operate according to multi-year and one-year commitments, respectively. For contracts that are intended to be
completed in the same year, a financial commitment is provided as a condition for contracting and guaranteeing
disbursements during the year. For contracts extending for more than one year, the government provides an “intention for
committing” over the said years, which is the condition for contracting. This intention for committing used to be
automatically carried out through the said years. Currently, at each year's budget preparation/clearance, the budget
commitment is reconfirmed for those "ongoing" contracts, and commitment is renewed/ reconfirmed.
Procurement profile
8. Procurement Exclusion: It is foreseen that no exclusion will be observed since all individual contracts under this Program
are deemed to be estimated below the Operations Procurement Review Committee thresholds of the following values: (1)
works of US$115 million equivalent; (2) US$75 million equivalent for goods, (3) non-consulting services for US$75 million
equivalent, and (4) consulting services for US$50 million equivalent.
9. Procurement Categories of the Program activities include supply and installation of goods and IT systems, technical
assistance, and consulting services.
Budget Execution
Treasury Management and Funds Flow
10. The Program will follow Jordan's treasury management, which was found acceptable for the operation . All
participating ministries in the PforR have their transactions implemented through the Treasury Single Account, which
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covers the main budget and the GFMIS. The bank reconciliation takes place daily. By-Law No. 3 of 1994 and the associated
implementing instructions require monthly reconciliations to have been completed by budgetary institutions, including at
the governorate level, by the end of the first week of the following month as a condition for receiving the next cash release.
There have been no delays in transferring the cash releases by the MOF to participating ministries in the Program. The
Central Bank of Jordan (CBJ) maintains all Treasury accounts, to which the MOF has real-time access. A daily report by the
CBJ allows the Treasury to know the source of all financial transactions. The funds of the World Bank will be transferred to
the Treasury's current account at the CBJ. The MOPIC will be responsible for submitting withdrawal applications, including
the necessary supporting documents evidencing DLR achievements. Suspense accounts are reconciled annually, but there
are significant uncleared balances outstanding. In general, it can be concluded that reconciliation takes place annually
within two months of the end of the financial year. However, the existence of very long-standing balances that have not
been cleared means that it cannot be concluded that all suspense accounts are cleared in a timely way.
Accounting and financial reporting
11. The assessment concluded that the accounting and financial reporting systems are acceptable for the Program's
purposes. All line ministries, including implementing agencies, submit a monthly financial position to the GBD/MOF
presenting their data according to administrative, economic, program, funding, and geographical classifications. The only
expenditure of bodies controlled by the central government not reflected therein is that of the 10 public universities, whose
expenditures in 2020 were equivalent to approximately 5.4 percent of the total budget expenditures. In-year budget
reports are published in the monthly General Government Finance Bulletin within four weeks of the end of the month.
They have become more informative as in-year internal reports show a breakdown by economic, administrative,
programmatic, and functional classifications. However, they only cover payments and no commitments.
12. Annual financial statements cover revenues, expenditures, financial assets, liabilities, guarantees, long-term
obligations, and cash balances comparable with the approved budget. The Ministry of Finance is required by law to
“submit to the Audit Bureau the final account of each fiscal year within not more than six months as of the date of year
ending.” The latest annual financial statements for the year ending December 31, 2022, were submitted to the Audit Bureau
without delay. Consistent standards have been applied. The final accounts are published on the MOF’s website. The
government's consolidated financial statements are prepared according to International Public Sector Accounting
Standards (IPSAS), and the Jordan Audit Bureau issues an audit opinion. There is a clear Audit Bureau opinion confirming
that cash based IPSAS were applied.
13. The MOF keeps a record of expenditure arrears reported by line ministries (including those ministries included in the
Program), in conformity with the new Organic Budget law. Despite GFMIS having a commitment control module, it is not
utilized. The implementing agencies use Excel sheets to record commitments and follow up on payments. To enhance
commitment controls, an electronic system should be used by the implementing agencies to record and report on
commitments and be financially linked to the GFMIS. Until the latter is achieved, annual reports concerning commitments
and arrears for the participating line ministries will be collected by MOPIC and submitted to the World Bank within 45 days.
14. The MOF recognizes that accrual-based reporting is strategically important and would require the identification and
valuation of all fixed assets, including their age and their use, which can only be achieved over a considerable amount
of time. Some work has been initiated to review each Ministry’s assets. Each entity maintains a register of its assets,
including their age and use.
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Procurement Processes and Procedures
15. Procurement procedures and processes are implemented in accordance with Procurement Bylaw No. 8 for 2022 and
associated instructions. Procurement arrangements include both centralized and decentralized procurement. For
government agencies, including line ministries and other entities, procurement is centralized at the General Tendering
Department (GTD) for the procurement of works estimated to cost equal to or more than JOD 500,000 (US$ 704,226) and
related technical consultancies estimated to cost equal to or more than JOD 50,000 (US70,423), and at the General
Procurement Department (GPD) for supplies, non-consulting services and consultants' services estimated to cost an
amount equal to or more than JOD 60,000 (US$84,507). The Procurement Bylaw also provides for the option of establishing
a Special Tenders Committee to handle procurement processing regardless of the estimated cost, and without the need to
go through the GTD and GPD. The JONEPS platform is operational, and JONEPS is being gradually deployed. It is currently
used by the GTD and GPD and 22 agencies. Full deployment at the level of the ministries is planned by 2025. Capacity
building and professionalization of the procurement workforce will require a few years to be completed. Therefore,
weaknesses persist throughout the procurement cycle.
67. Currently there is no systematic monitoring of procurement performance and data regarding procurement
transactions in implementing agencies; data is incomplete and mostly kept in paper form. Procurement-related records
(from advertisements to final invoices) are also maintained in hard copy. The execution of Program procurement
transactions through the JONEPS will ensure the systematic tracking, recording, and processing of procurement. It will also
facilitate the enhancement of procurement performance and the retrieval of procurement records when needed. The
JONEPS developed a contract management module. However, it is not fully operational, and it is being enhanced to
accommodate works contracts as well. In parallel, the JONEPS is having discussions with the GFMIS to develop an
Application Programming Interface (API) to connect both systems and consolidate data. Once the contract management
function is tested, consolidation will be meaningful.
68. According to Article 84 of the Procurement Bylaw No. 8/2022, Jordanian courts will be referred to for the settlement
of disputes during the execution of contracts. However, the contract may provide other dispute resolution methods,
starting with amicable settlement and escalating to arbitration. The contracting parties may have recourse to a third party
for the settlement of disputes using conciliation and mediation. This could be done by appointing dispute experts or dispute
review boards, along with the related appointment procedures for such conciliators.
Internal Controls and Internal Audit
69. The overall control environment continues to be acceptable for Program implementation. Internal controls and the
internal audit function are governed by the applicable Financial By-law (1994) and its Amendment (2015) and the Financial
Control By-law (2011) and its Amendment (2015). Each ministry has its own internal audit unit in the Finance Department,
and an Internal Control Unit (ICU) is responsible for the effective operation of the internal financial control system. In the
ministries participating in the Program, there is also a financial control unit comprised of employees from the MOF, which
performs a financial controller function. The MOF also has a central ICU that ensures that line ministries’ ICUs implement
correctly and fully the provisions of the government control system.
70. Given the extensive attention paid to pre-audit verification of payments, it is to be expected that compliance rates
with rules and procedures will be high. There is a robust, arguably excessive, system of internal controls for non-salary
spending. It is based on prior approval and internal oversight in government ministries under the external oversight of the
MOF. The MOF-assigned financial controllers oversee transaction-based compliance controls over payments, the recording
of transactions, and the production of periodic and final accounts. In practice, no payments can be authorized and
processed before financial controllers verify and sign off on payment vouchers. In addition to resident MOF financial
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controllers, implementing agencies have internal auditors who mainly perform the job of internal/financial controllers.
Internal audit activities are primarily confined to ex-ante review of receipts, expenditure vouchers, and disbursements.
Internal audit activities are, in this case, not designed to comply with practices and standards promulgated by international
standard setters. Ultimately, there appear to be excessive ex-ante controls by the MOF’s financial controllers and internal
auditors. Internal audit activities are focused primarily on financial, legal, and administrative compliance. Although there is
a commitment to the application of international internal audit standards, the work emphasis across the government tends
still to be more on compliance rather than on the performance of systems and the assessment of risks.
Payroll
71. The assessment confirms that the implementing agencies have acceptable payroll management systems is in place
for the Program. Payroll is administrated by the payroll department at the Directorate of Employees Affairs (HR) at each
implementing agency. The payroll systems have a good degree of integration and reconciliation between the position
controls, personnel records, and payroll registers. The payroll system in Jordan follows the Civil Service Bureau’s
instructions, and it is in line with the national Financial Law and Internal Controls bylaw, as well as the instructions issued
by the MOF. The HR department ensures the completeness of information and the data entry of related salary entitlements
through an automated system and record archival in the system, as well as in paper files. HR input in the system is subject
to both automated and human checks. A payroll schedule is prepared monthly and subject to several layers of approvals
(payroll officer, head of payroll unit, the department manager [budget holder], Internal Control Department, MOF financial
controller, and the financial management manager). Salaries are then transferred to employees' personal bank accounts.
Monthly reconciliations are prepared in the system and shared with the internal control unit and the MOF representative.
The database is audited by an internal audit mission within the Directorate of Employee Affairs to ensure that all changes
are supported by appropriate documentation. Additionally, there is a regular validation of the number of staff. This falls
under the responsibility of each directorate and district, and it is achieved through site visits by the internal audit unit that
also checks the data quality. The Audit Bureau of Jordan also audits the data.
Program governance and anticorruption arrangements
21. The World Bank’s Anticorruption Guidelines will be applicable to the Program as a whole. Specific requirements of
the World Bank’s Guidelines on Preventing and Combating Fraud and Corruption in Program -for-Results Financing (2015)
are the following:
- Sharing information regarding all allegations of fraud and corruption in connection with the Program, investigating
all credible allegations received; reporting to the World Bank on actions taken, and cooperating in any inquiry that may be
conducted by the World Bank into allegations or other indications of fraud and corruption in connection with the Program.
- Procurement entities shall abide by the World Bank’s list of debarred/suspended firms on the World Bank’s website
(http://www.worldbank.org/debarr) and ensure that no contracts are awarded to such firms and individuals. It will be the
responsibility of the internal audit function to monitor compliance with this provision in terms of verifying suppliers,
contractors and subcontractors, consultants, and checking the names against the World Bank debarred/suspended list, and
then reporting if any case is observed.
- Procurement entities shall ensure that fraud and corruption risk prevention measures are implemented throughout
the Program, as agreed in the PAP, and that they will take timely and appropriate action to address issues.
- For every bidding opportunity under the Program, each participating bidder shall be required to submit (as part of
their bid) a self-declaration that the firm/individual is not subject to debarment or has not been sanctioned under the
World Bank system of debarment and cross-debarment.
- Regarding national regulations, debarment and anti-corruption in the procurement, according to Article 91(a),
Procurement Bylaw No. 8/2022, the Procurement Policy Committee shall validate the decisions made by the procurement
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committees based on the reports of investigation related to the debarment of the bidder, contractor, supplier, or
consultant from participating in procurements for durations not exceeding two years in accordance with the instructions
and in any of the cases listed therein. The departmental mechanism is covered under the Procurement Bylaw Articles 52,
53, 54, 91 and 92, and Appendix No. (3) of the Code of Ethics, Conduct Articles no. 1 and 2, and the procurement
instructions, Articles 34-39.
- The implementing agencies are to check the suspension and debarment list before any contract is awarded, and
the government is to report on any fraud and corruption issues to the Bank on a biannual basis.
22. Since the ratification of the UN Convention on Anti-Corruption in 2005, Jordan has significantly strengthened its
institutional and legal anti-corruption framework. An Anti-Corruption Commission has been established in 2005 and later
merged with the Ombudsman’s Office. Prosecuting authorities have been made independent from the government. Bribery
and illicit enrichment of public officials, as well as embezzlement and misappropriation of public property, have been
criminalized. Senior officials are required to declare their incomes, assets and financial interests to the Financial Disclosure
Department of the Ministry of Justice under the 2006 Financial Disclosure Law. Anti-money laundering legislation was
introduced in 2007, and a regime for the freezing, seizure and confiscation of assets has been adopted. Whistleblower and
witness protection have been introduced. The public procurement legal framework has been strengthened in 2019, and
the Audit Bureau now attends procurement committees as an observer. The Anti-corruption Commission can request
access to declarations of incomes, assets and financial interests by public officials for the purpose of its investigations. It
can also mobilize the technical expertise or assistance of other oversight authorities, such as the Audit Bureau.
23. Regarding the 2022 Corruption Perception Index (CPI), Jordan ranks 61 worldwide with a score of 47, which is 12
points lower than in 2021 (58). Jordan ranked fourth among the Arab countries after the United Arab Emirates, Qatar, and
the Kingdom of Saudi Arabia. The GOJ launched several initiatives to strengthen the rule of law32, protect public money33,
and combat corruption.34 These are profound steps in the correct direction, yet there is still a need for a more holistic
approach to enhance integrity and transparency in anti-corruption measures, including: (a) publishing periodic and updated
public reports on the government’s fulfillment of its commitments to fight corruption; (b) enforcing control and oversight
over political money and funding; (c) exercising preemptive and periodic disclosures of cases that are referred to the
competent courts with respect to corruption and misuse of public office by the relevant authorities; (d) publicizing financial
disclosures and beneficial ownership, as well as limiting conflicts of interest; (e) disclosing the number of objections filed
against tenders, as well as the measures taken to address those objections; in the event the objections are justified, it is
necessary to clarify the corrective measures that are taken; (f) advancing the implementation of digitalization of public
services; (g) promoting a deeper understanding of the concepts of integrity, transparency and accountability in order to
combat corruption among school and university students through a specialized scientific curriculum; and (h) simplifying
investment procedures through a reduction in the bureaucratic red tape that foreign and local investors encounter.
24. The robustness of the anti-corruption framework reflects the outcome of criminal investigations as reported publicly
by the Anti-corruption Commission (Jordan’s Integrity and Anti-Corruption Commission, JIACC). In its most recent annual
report for 2022 (jiacc.gov.jo), the JIACC investigations resulted in referring to the Integrity and Anti-Corruption Public
Prosecutor a total of 241 investigation cases, helping to recover around US$ 224 million. The JIACC has also recently
32
Several laws were amended, including the Illegitimate Profit Law, the Audit Bureau Law, and the Integrity and Anti-Corruption Law.
33
A new approach was adopted in screening the queries and violations listed in the Audit Bureau’s report . Joint committees were
established to follow up on recommendations and rectify the situation. In addition, cases were referred to the Integrity and Anti-
Corruption Commission. The Unified Procurement Bylaw (that is, the government’s Procurement Bylaw Number 8 of 2022) served to
establish a unified, competent authority concerned with government tenders and procurement.
34
The Council of Ministers has approved the Recruitment Bylaw for leadership position number 78 of 2019, which provided some
procedures that enhance the principles of transparency, as well as the policy of open data and cloud computing.
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introduced preventive measures, such as corruption risk assessments and integrity ratings. The JIACC recently developed a
National Integrity System (NIS). The NIS is utilized to assess and rate the performance and compliance of entities regarding
national integrity standards (rule of law, accountability, transparency, justice, equality and equal opportunities, and good
governance). The JIACC also monitors compliance of the public administrations with the recommendations. In 2023, the
Financial Action Task Force (FATF) announced the removal of Jordan’s name from the list of countries under increased
scrutiny in the fight against money laundering and terrorist financing, known as the ‘gray list’. This is a recognition of
Jordan's significant progress in combating money laundering, terrorist financing, and weapons proliferation by
implementing effective strategies aligned with international standards. Based on the assessment, the clientwill report to
the World Bank concerning corruption risks and vulnerabilities identified through investigations within the Program
boundaries.
Transparency
25. Key institutions involved in public financial accountability have established elaborate public information-sharing
arrangements on their websites: i) The MOF publishes multi-year budget planning and execution reports, including key
performance indicators covering all core ministries and departments, ii) The Jordan Audit Bureau publishes its annual report
covering the outcome of audits of all ministries covered in the Program, iii) The JACC publishes annual reports and has
established a comprehensive mechanism for receiving, investigating, and reporting on all allegations received from the
public. Iv) Procurement notices and contract awards are required to be published in accordance with the Procurement By-
law No. 8/2022 using traditional and/or electronic means, and v) Procurement plans are also required to be published for
the e-procurement portal, as well as for individual government agency websites.
26. Public procurement complaint mechanism. The Public Procurement Complaint Committee (PCC) was established by
the Prime Minister's decision in November 2019 and is located in the Legislation Opinion Bureau. The PCC handles
procurement complaints per the Procurement By-law No. 8/2022 (Articles 50 to 53). On average, the PCC handles one
complaint every two weeks and follows the defined timeline of the Procurement Bylaw for complaint resolution (around
24 days). Resolutions are published on the procuring entity's website. The JONEPS "Objection" module is developed and
activated, but procuring agencies need to commit to closing the loop of objections electronically. The complaint module
for escalating objections to the PCC is completed and awaiting launch by the PCC. Complainants who have used the
complaint mechanism offline have expressed trust, even in cases where the resolution was not in their favor. The PCC is in
the process of recruiting support and technical staff, as well as acquiring suitable offices, IT, and office equipment.
Complaint records will be uploaded and published through the JONEPS platform.
External Auditing
27. External audit in Jordan is the responsibility of the Audit Bureau. Its performance was found acceptable for the
purposes of the Program. The Audit Bureau was created by Article No. 119 of the Jordan Constitution, which states that it
is “To be established in accordance with the Audit Bureau’s Law to supervise the revenues and expenditures of the state
and ways of spending”. It performs compliance, financial, and performance auditing in accordance with NTOSAI standards.
Jordan’s Audit Bureau audits several World Bank operations,35 and its performance record is acceptable.
28. The government's consolidated financial statements are prepared according to International Public Sector
Accounting Standards (IPSAS), and they are audited by Jordan’s Audit Bureau fol lowing International Standards of
Supreme Audit Institutions (ISSAI) Standards. The government's annual consolidated audited financial statements are
35
World Bank operations include the Economic Opportunities for Jordanians and Syrian Refugees P4R; the Jordan Education Reform
Support P4R; the Jordan COVID-19 Emergency Response IPF; and the Exploring High Value Socially Inclusive and Water Efficiency
Agriculture in Jordan IPF.
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published on the MOF’s website. Jordan’s Audit Bureau will submit the Program's annual consolidated audited financial
statements by September 30 of each year. Apart from issuing an audit opinion concerning the government's consolidated
annual financial statements, the Jordan Audit Bureau issues an annual report summarizing the main audit observations
published on the Audit Bureau’s website. The report is submitted to Parliament and reviewed by the Finance Committee.
Furthermore, a special ministerial committee also reviews and discusses the main audit observations on a quarterly basis.
The Audit Bureau will issue annual consolidated audited financial statements for the Program covering all participating
governmental agencies with a consolidated management letter. The MOPIC will be responsible for coordinating the work
with the Audit Bureau.
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ANNEX 4. SUMMARY ENVIRONMENTAL AND SOCIAL SYSTEMS ASSESSMENT
Introduction
1. This Program-for-Results (PforR) is related to people-centered improvement in service delivery, government
effectiveness, and transparency and accountability through digitalization. The PforR will achieve this by supporting
the implementation of the Economic Modernization Vision, the Public Sector Modernization Roadmap, and the
Digital Transformation Strategy. Key elements of these strategies will be supported, including expanding trusted and
inclusive access to people-centric digitalized services; strengthening digital public infrastructure (DPI) by increasing
the inclusive adoption of people-centric digital identity and improving trusted, people-centric data sharing;
professionalizing the civil service by enacting revised by-laws and mainstreaming competency-based recruitment;
establishing digital health standards across a national Health Information Exchange (HIE); adopting digital student
assessments; enforcing access to information through legal amendments; fostering e-participation; institutionalizing
effective health data use by establishing a National Data Quality Audit (NDQA) framework and improving data quality.
2. An Environmental and Social Systems Assessment (ESSA) has been prepared by the World Bank for the Program.
The ESSA was prepared through reviews of existing Program materials, available policy documents, technical
literature and interviews with government staff and key experts. The list of documents reviewed in the ESSA is
presented in Annex 1 of the report. The PforR and relevant government systems were assessed against the main core
environmental and social principles of World Bank Policy for PforR Financing. The present Annex presents the
summary of findings of the ESSA.
ESSA Consultations
3. The Environmental and Social Systems Assessment (ESSA) was formulated between August and September 2023,
utilizing a combination of face-to-face consultations and Focus Group Discussions (FGDs) with relevant
stakeholders, including all implementing agencies, government staff and experts, and civil society throughout the
Program preparation. These consultations were integral to the Disbursement-Linked Indicators (DLIs). The
consultation sessions were seeking to: Provide a general overview of the Program, introduce the purpose and scope
of the ESSA, obtain answers to prepared key questions around specific aspects of the Program and depending on the
audience, discuss potential key social and environmental effects, including benefits and potential risks, and Obtain
suggestions for recommendations and actions, especially any negative E&S risks and impacts.
4. Following the General Program Overview, additional sessions allowed for more in-depth discussions of
environmental and social effects, systems, and mitigation measures covering the following themes corresponding
to the Result Areas of the Program: Digital Service Delivery, Transparency and Accountability, and Stakeholder
Consultation and engagement. A summary of the findings, concerns, questions, comments, and recommendations
raised by participants, and how they have been incorporated, is available in the ESSA report.
Environmental and Social Screening
5. Program social effects. Similarly, the three Result Areas would have both positive and negative effects. The overall
social risks are considered Moderate. The Program is expected to have the following effects:
- Lack of Adequate Social Assessment, Geographic Consideration, and Stakeholder Engagement (Applicable to all
DLIs):
- Integrity, Transparency, and Communication in Civil Service Reform (DLI 5).
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- Furthermore, insufficient promotion and disclosure of the reform plan (DLIs 1,2,3,4,5,7,9) can escalate stakeholder
resistance and tension.
- Awareness of and access to information about government digitalization programs (DLIs 1,2,3,4,7,9): Lack of clear
communication about current government digital initiatives, such as the Sanad or the electronic medical record
(EMR) programs and the upcoming student assessment tools, erodes public trust and acceptance.
- Gender-Specific Barriers to Program Access and Benefits (DLIs 1,2,3,4,7,9): The identified risks in social assessments,
stakeholder engagement, and public-sector recruitment amplify challenges to women's equitable access to Program
benefits and workplace safety.
- Cybercrimes Law and Civic Engagement (DLI 9): Vague legal terminology prevents participation and constructive
criticism. Privacy concerns, limited engagement platforms, and public mistrust impede civic involvement, particularly
among marginalized communities.
- Grievance Redress Mechanism (DLIs 1,4,7): A lack of awareness about the recently revamped GRM within MODEE
raises questions about whether recommendations from the World Bank's latest evaluation report have been
incorporated.
- Data Privacy and Protection Risks (DLIs 1,4,7,9): Elevated vulnerabilities exist in safeguarding personal data against
unauthorized access or misuse within digital systems.
- Operational Continuity (DLIs 1,4,7,9): The absence of robust backup mechanisms could result in data loss,
undermining system reliability and potentially halting critical operations during system downtimes.
- Digital Inclusion (DLIs 1,2,4,7,9): Inadequate digital literacy or resistance to technological adaptation may engender
disparities in terms of service accessibility.
- Risk of Potential Discrimination in Program Implementation (DLIs 1 and 4): Although the Program has an inclusive
approach, targeting both Jordanian citizens and refugees, there exists a risk of unintentional discrimination in the
delivery of its services. This risk pertains particularly to vulnerable subsets of the population, such as women, persons
with disabilities, refugees, and other groups.
6. Program Environmental Effects: The overall social risks are considered Low. The Program is expected to have the
following environmental effects:
- E-waste Risks: Environmental risks associated with this e-waste include soil and water contamination due to heavy
metals, with consequential negative impacts on human and ecological health. Mitigation strategies will entail
strengthened regulatory enforcement related to e-waste management and public awareness campaigns.
- Resource Efficiency Risks: The Program is not expected to significantly increase electricity demand for operating the
requisite electronics. Resource efficiency risks will be mitigated, and benefits capitalized upon through energy-
efficient procurement practices for IT hardware and the promotion of paperless operations for digitalized services.
- Construction and Civil Works Risks: The Program's activities are not projected to involve civil works or cause any
permanent environmental disruptions with adverse impacts.
7. Grievance Redress Mechanism
"At Your Service" is an interactive public and government communications platform. It offers five distinct categories for
engagement, namely: asking the government, making suggestions, offering praise, lodging complaints, and reporting
corruption. The Grievance Redress Mechanism (GRM) employs four channels for grievance intake, each with well-defined
processes for complaint registration and feedback submission. These include the "At Your Service" mobile application,
the e-government portal, the National Contact Center, and the physical complaint boxes at field locations. However, the
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complaint boxes are inactive, despite being mentioned in the platform's regulatory documents. A chatbot on the Prime
Ministry's Facebook page was also under development.
8. In the context of this Program, "At Your Service" is poised to serve as the central GRM, augmenting other internal
GRM mechanisms at each implementing agency. Noteworthy updates to the platform include plans for revamping
its functionalities to ensure that it meets the standards required for this project. Specific areas under review for
improvement include data granularity, user authentication, activating previously inactive complaint boxes, and
extending the use of social media as part of the process. Additionally, expanding channels for public engagement is
also key. This revamping aims to enhance the platform's functionality and user-friendliness, making it an acceptable
and reliable GRM for this project. Therefore, while each implementing agency will maintain its internal GRM systems,
"At Your Service" will provide a unified, centralized point for logging, handling, and resolving of grievances.
9. The World Bank plans to extend its support for the GRM and other citizen voice initiatives to ensure the Program
meets its objectives of enhancing accountability and public participation. This support will likely include financial and
technical expertise, as well as monitoring to assist in the successful implementation and assessment of these
mechanisms.
Recommendations for inclusion to the PAP include the following:
Based on the above assessment, a series of recommendations are proposed under the Program and would be
incorporated as part of the Program’s Action Plan (PAP), including:
1. Design, consult, execute, and regularly monitor the implementation of an e-waste management plan and
Standard Operating Procedures (SOPs), aligning with global best practice and national regulations. 2. Conduct and
extend social impact assessments (SIAs) and stakeholder engagement to public sector reforms, including from a
social accountability perspective, in accordance with the guidelines on Regulatory Impact Assessment issued by
the GoJ in 2022.
3. Commission an institutional assessment of implementing agencies' capacity including for E&S risk management.
Subsequently, develop and execute a targeted action plan to address the findings.
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ANNEX 5. PROGRAM ACTION PLAN
The Program Action Plan consists of two different parts: (1) Technical assistance activities to be conducted by the
World Bank; and (2) Measures to be taken by the government to strengthen fiduciary and environmental and social
safeguards dimensions.
@#&OPS~Doctype~OPS^dynamics@padpfrannexprogramactionplan#doctemplate
Action DLI Completion
Description Source # Responsibility Timing Measurement
Capacity Technical NA MODEE and World Recurren Continuou MODEE and the
building for the Bank t s World Bank
achievement of commit to
DLIs 1, 2, and 3 mobilizing the
on access to necessary
digitalized resources from
services using the ID4D MDTF
trusted, people-
and YTJ's e-
centric DPI, the
government
adoption of
people-centric component
digital identity, earmarked for
and the MODEE for
improvement of activities that
trusted, people- enable the
centric data achievement of
sharing DLIs 1, 2, and 3.
Capacity Technical NA MODEE Recurren Yearly Privacy impact
building for the t assessments (PIAs)
strengthening of are conducted on
personal data a yearly basis,
protection informed by
stakeholder
consultations and
citizen feedback.
Remedial actions
to identified risks
and vulnerabilities
are implemented
annually.
Conduct of Environmenta NA PMIO Recurren Continuou The GoJ
social impact l and Social t s commissions
assessments Systems social impact
(SIAs) and assessments
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stakeholder including on
engagement access to
processes for digitalized services
public sector ; on patient
reforms, in line management
with the through the EMR;
guidelines on and on the
Regulatory
professionalizatio
Impact
n of the civil
Assessment
issued by the service.
GoJ in 2022.
E-Waste Environmenta NA Implementing Due Date 31-Dec- Adoption and
Management l and Social agencies 2024 disclosure of an e-
plan and Systems waste
Standard management plan
Operating and Standard
Procedures Operating
(SOPs) Procedures (SOPs)
which are aligned
with global best
practices and
national
regulations.
Strengthening Environmenta NA MOPIC/Implementin Due Date 31-Dec- The PMU identify
of the E&S l and Social g agencies 2024 E&S capacity
capacities of the Systems needs of
implementing implementing
agencies for agencies and
managing E&S facilitates the
risks and mobilization of TA
impacts.
to strengthen
those capacity.
The PMU will Technical NA MOPIC Recurren Continuou Completion will be
facilitate donor t s measured based
coordination to on documented
help mobilize donor meetings
adequate on TA and capacity
technical building in support
assistance and of Program
capacity
implementation
building during
Program
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implementation organized by the
. PMU.
The PMU will Technical NA PMIO Recurren Continuou Annual reporting
monitor and t s by the PMU to the
engage with GoJ and the WB
MOF and the on the execution
PMO on the of the Program of
adequate expenditure
execution of the underpinning
Program of
Program
expenditure
implementation.
underpinning
Program
implementation
.
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ANNEX 6. IMPLEMENTATION SUPPORT PLAN
1. The main focus of implementation support will be to help expedite the achievement of targeted results, mitigate
identified risks, and foster compliance with the PAP. For that purpose, it will focus on policy dialogue with implementing
agencies regarding the achievement of targeted results and actions, as well as on interagency coordination to facilitate
the achievement of results involving multiple stakeholders and the mobilization of donor-funded and fiscal resources for
technical assistance and capacity building. In addition, it will entail engaging with the Independent Verification Agent
(IVA) concerning the verification of results, with the Audit Bureau handling the financial auditing of the Program, and the
Jordan Integrity and Anti-Corruption Commission (JIACC) handling compliance with the anti-corruption guidelines.
2. The World Bank will conduct implementation support missions twice a year and its reviews will cover technical,
institutional, safeguard, and fiduciary issues, as well as M&E and the non-technical dimensions of the Program. The
country team will ensure continuous engagement with the client. Team members based in the country office (including
the ADM Task Team Leader [TTL] and co-TTL, health and education sector specialists, local consultants, and fiduciary and
safeguards teams) will keep in close contact with implementing agencies to provide them with just-in-time advice
concerning various dimensions of Program implementation as needed.
3. In the first year, implementation support will focus on strengthening the institutional set up for Program
implementation, both in terms of interagency coordination, technical assistance and capacity building. For that
purpose, the World Bank team will assist the PMU in the drafting of the Program Operations Manual, as well as in the
elaboration of a technical assistance and capacity-building plan to benefit implementing agencies. It will be based on a
capacity needs assessment and involve coordination with MOPIC and other World Bank teams regarding the mobilization
of resources from the Jordan MDTF. The government and teams will also engage with donors to mobilize parallel
resources (including with the GIZ regarding capacity building to the IVA).
4. The World Bank’s implementation support will consist of the following inputs:
Time Focus Skills Needed Resources Estimate Partner Role
First twelve months Program Operation Three staff members for 3
management weeks
DLIs 1, 2, and 3 on Digital governance Two staff members for 2
DPI/access to e- infrastructure weeks + TA
services
DLI 5 on civil service Civil service reform One staff member for
professionalization 1weeks + TA
DLI 6 & 10 on health Health sector data One staff member for 2
data information management weeks + TA
exchange and data
quality
DLI 8 on e- Governance One staff member for 1
information specialist weeks + TA
DLI 9 on interactive Poverty economist One staff member for
statistics 1weeks + TA
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Jordan People-Centric Digital Government Program-for-Results (P180291)
12 to 48 months DLIs 1, 2, and 3 on Digital governance Two staff members for
DPI/access to e- infrastructure 3weeks + TA
services
DLI 5 on civil service Civil service reform One staff member for 3
professionalization weeks + TA
DLI 6 and 10 on Health sector data One staff member for
health data management 3weeks + TA
information exchange
and data quality
DLI 8 on e- Governance One staff member for
information specialist 3weeks + TA
DLI 9 on interactive Poverty economist One staff member for
statistics 3weeks + TA
5. Task Team Skills Mix Requirements for Implementation Support
Number of Staff
Skills Needed Number of Trips Comments
Weeks
Team leadership and coordination, policy
Program management and dialogue with the client, donor coordination,
10 None
coordination tracking results and actions, and coordination
with the Jordan MDTF and YTJ.
Focus on DLIs 1 and 2 on DPI, digital ID, and the
Digital development 10 4
strengthening of personal data protection
Health specialists 10 4 Focus on DLIs 3, 5 and 9
Education specialist 4 None Focus on DLI 6
Poverty specialist 4 3 Focus on DLI 8 and the refugee agenda
Focus on DLIs 4 and 7 and interagency
Governance specialist 4 2
coordination and capacity building
Focus on financial auditing and accountability,
Fiduciary specialists 4 None
and compliance with anti-corruption guidelines
Focus on related actions (e-waste
Safeguard specialists 8 None management, social impact assessment, GRM,
and stakeholder engagement).
Focus on the achievement of gender-related
Gender specialist 4 None
results.
1. Role of Partners in Program Implementation. Development partners provide critical support, through technical
assistance and financing, for the successful implementation of the Program. Their interventions are detailed below.
Name Institution Role
Council of Europe Policy advice on data protection.
TA to the SPAC for its establishment; policy
EU advice to MODEE on data protection; TA to the
DOS; TA on Hakeem system.
Italian Agency for International Cooperation Italy Co-financing, TA on health services.
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The World Bank
Jordan People-Centric Digital Government Program-for-Results (P180291)
Beneficiary executed (BE) and recipient
United Kingdom,
Jordan MDTF executed (RE) TA and capacity building to
Netherlands,
implementing agencies.
Capacity building to the IVA and the ESCJ; TA
GIZ Germany on competency frameworks; TA on gender
audits.
TA for the establishment of digital assessment
KfW Germany
centers.
TA for job descriptions in the civil service; TA
USAID USA
for the Tawjihi; financing of GSC infrastructure.
WHO TA on digital health standards.
7. Technical assistance. Successful Program implementation calls for both Bank-executed (BE) and Recipient-executed (RE)
technical assistance. For that purpose, resources from Jordan Growth MDTF as well as parallel donor technical assistance
will be mobilized. MOPIC and the World Bank will coordinate to that effect. Already available support from development
partners as well as identified needs for additional technical assistance is detailed below.
Mapping of Available Relevant and Needed Technical Assistance for Program Implementation.
Program Implementation Available Technical Assistance Identified Needs for RE and BE Technical Assistance
Program management and Jordan Growth MDTF (RETF finances Reform Further support from the Jordan Growth MDTF to
coordination Secretariat and Reform Support Fund; BETF activities implementing agencies.
can provide just in time (JIT) technical assistance (TA).
Independent Verification Agent GIZ (financial support to KACE for verification).
(IVA)
Result area 1 on service delivery
DLI 1 on expanding trusted and - ID4D MDTF (BETF for JIT TA on digital ID and DPI). TA, training, and software development services to
inclusive access to people- - Mashreq Digital Dialogue & DD Watch ASA (BETF for relying parties (ministries, agencies, and so on) to
centric digitalized services JIT TA). integrate trusted DPI features in their workflows.
-Youth, Technology and Jobs (support to e-services,
including municipal, e-payments).
-Council of Europe and European Union (EU) for data TA for the development of a universally accessible
protection Grievance Redress Mechanism (GRM), including
mechanisms to assess user satisfaction.
DLI 2 on increasing the - ID4D MDTF (BETF for JIT TA on digital ID, e-signature, TA for user research on how to make DPI accessible
inclusive adoption of people- and DPI) and inclusive to vulnerable groups, including persons
centric digital identity - Mashreq Digital Dialogue & DD Watch ASA (BETF for with disabilities.
JIT TA)
-GIZ (policy advice, training), United States Agency for TA for people-centric DPI architecture
International Development (USAID) (financing
infrastructure); Jordan MDTF-funded BETA (on service
standards).
DLI 3 on improving trusted, - ID4D MDTF (BETF for JIT TA on digital ID, e-signature, TA to the data protection regulator to adequately
people-centric data sharing and DPI) implement the Data Protection Law and supervise
- Mashreq Digital Dialogue & DD Watch ASA (BETF for the preparation and implementation of privacy
JIT TA) impact assessments.
TA for privacy by design
DLI 4 on digital transformation EU, UNICEF, USAID and the World Health Organization
in health service delivery (WHO) (on shared health records).
Result area 2 on government effectiveness
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The World Bank
Jordan People-Centric Digital Government Program-for-Results (P180291)
DLI 5 Professionalization of civil -USAID (on competency frameworks, financing of the
service Institute of Public Administration (IPA), and gender
audits in the public sector)
-GIZ (on job descriptions)
-EU (on the transition from the Civil Service Bureau to
SPAC)
- World Bank TA to SPAC/IPA on digital skills
curriculum design and certification for the civil service.
DLI 6 on establishing digital WHO (on digital health standards). Advisory services by a qualified technical institution
health standards across a to help design core responsibilities and identify
national Health Information feasible in-country stakeholders.
Exchange (HIE)
DLI 7 on digital student -KfW (on examination centers and equipping schools).
assessment -World Bank Education PforR (on blended learning
strategy and overall Tawjihi reforms).
-USAID (on development of item bank with
competency-based questions aligned with the new
Tawjihi curriculum).
Result area 3
DLI 8 on enhancing e- -Organisation for Economic Co-operation and Capacity building to the Information Council on the
information Development (on amendments to Access to oversight of compliance with Access to Information
Information Law and its implementation). Law as amended.
-Jordan Growth MDTF (e-participation portal).
DLI 9 on interactive statistics Jordan MDTF funded BE and RE Technical Assistance Technical assistance and capacity building to support
to the Department of Statistics. digitalization, data harmonization and the
establishment of the National Data Repository.
DLI 10 on institutionalizing US-Center for Disease Control (CDC) (on public health Advisory services by a qualified technical institution
effective health data use surveillance). to help design the Health Data Quality Assurance
(HDQA) and identify a suitable firm to support the
government in carrying out the HDQA.
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