List of Abbreviations
AcGenAccountant General
CASCountry Assistance Strategy
CMOChief Minister’s Office
DPDevelopment Partner
DPGDevelopment Partners Group
GBSGeneral Budget Support
IFMSIntegrated Financial Management System
IMGIndependent Monitoring Group
JASTJoint Assistance Strategy for Tanzania
LGALocal Government Authority
MCDGCMinistry of Community Development, Gender and Children
MDAsMinistries, Departments, and Agencies
MITMMinistry of Industry, Trade and Marketing
MKUKUTAMkakatiWa Kukuza Uchumi Na Kupunguza Umaskini Tanzania
MKUZAMkakatiWa Kukuza Uchumi Na Kupunguza Umaskini Zanzibar
MOFMinistry of Finance
MOFEAMinistry of Finance and Economic Affairs (Zanzibar)
MOHAMinistry of Home Affairs
MPAMITAMkakatiWaPamojaWa Misaada Tanzania
MPEEMinistry of Planning, Economy and Empowerment
MS-PORASF Ministry of State (President’s Office) – Regional Administration and Special Forces (Zanzibar)
MTEFMedium-Term Expenditure Framework
NSAsNon-state actors
ODAOfficial Development Assistance
OECD-DACOrganisation for Economic Co-operation and Development – Development Assistance Committee
O&ODObstacles and Opportunities for Development
PERPublic Expenditure Review
PFMRPPublic Financial Management Reform Programme
PIUProject Implementation Unit
PlanRepPlanning and Reporting Database (for Local Government)
PMO-RALGPrime Minister’s Office – Regional Administration and Local Government
PO-PSMPresident’s Office – Public Service Management
PO-RCPresident’s Office – Revolutionary Council
PPAAPublic Procurement Appeals Authority
PPRAPublic Procurement Regulatory Authority
RIMKURipoti Ya UtekelezajiWa MKUKUTA (MKUKUTA Monitoring System)
SBASStrategic Budget Allocation System
TATechnical Assistance
TORTerms of Reference
TPSFTanzania Private Sector Foundation
WGWorking Group
Table of Content
1. What is the JAST Action Plan and Monitoring Framework?…………………………. 5
2. Structure of the JAST Action Plan and Monitoring Framework ……………...... ……..5
3. JAST Monitoring and Evaluation Process.....……………………………………..…....6
4. Immediate Actions for JAST Implementation………………………………………….7
5. JAST Action Plan and Monitoring Matrix.. ……..………………………………….….8
Annex I: Paris Declaration Indicators……………………………….…………………...20
Annex II: Tanzania Baseline and Targets for Paris Indicators…………………………..22
Annex III: Methodology Note for Monitoring JAST Indicators……..………………….25
1. What is the JAST Action Plan and Monitoring Framework?
The Joint Assistance Strategy for Tanzania (JAST), in Kiswahili “Mkakati Wa Pamoja Wa Misaada Tanzania” (MPAMITA),is Tanzania’s national strategy for managing development co-operation between the Government of the United Republic of Tanzania (the Government) and its Development Partners (DPs) so as to achieve national development and poverty reduction goals. Whereas the JAST Document outlines main objectives, principles, commitments and broad arrangements for JAST implementation, the JAST Action Plan and Monitoring Framework specifies the concrete actions to be undertaken by the Government and DPs to put JAST into practice during its cycle of implementation (2006/07-2010/11). The JAST Action Plan and Monitoring Framework also list a range of monitoring indicators for assessing progress in achieving JAST commitments and objectives.
2. Structure of the JAST Action Plan and Monitoring Framework
The JAST Action Plan and Monitoring Framework ispresented in the matrix in section 4. The matrix is structured as follows:
a)The matrix is organised around the five JAST objectives, which are:
- Strengthening national ownership and Government leadership of the development process;
- Aligning DP support to Government priorities, systems, structures and procedures;
- Harmonising Government and DP processes;
- Managing resources for achieving development results, in particular on MKUKUTA/ MKUZA; and
- Strengthening domestic and mutual accountability.
b)Under each JAST objective, the matrix is arranged into JAST commitments(column 1), which capture general commitments or principles outlined in the JAST Document and are the reference point for both activities and monitoring indicators. As much as possible, commitments have been limited to those that matter in particular for aid effectiveness and constitute an additionality to the already existing commitments in MKUKUTA/ MKUZA, PER, core reforms and other processes.
c)Columns 2 to 5 from “activities” to “means of verification/monitorable output” constitute the Action Plan part of the combined Action Plan and Monitoring Matrix. For each JAST commitment, relevant activities are identified for its realisation.To each activity, agencies that are responsible for implementation are assigned, whereby lead agencies are also indicated (M-Lead for agencies that take lead on mainland activities; Z-Lead for agencies that take lead on Zanzibar activities). The timeframeis also specified, i.e. the month and year by when the activity is expected to be completed. In addition, the column “means of verification/monitorable output” lists the output by which it can be verified that an activity has taken place.
d)The columns of the matrix that are particular to the monitoring framework are the “outcome indicators”, “indicator baseline” and “indicator target”, and the “indicator review process” (columns 6-9). The monitoring indicators are outcome-based and are linkedto the JAST commitments. Some of them (in italics) are indicators from the Paris Declaration on Aid Effectiveness[1], which Tanzania together with other countries reports on internationally through biennial surveys conducted by the OECD-DAC. Not all Paris indicators are included in the JAST monitoring framework, because related actions have either already been completed or are undertaken in other existing processes.Tanzania nevertheless reports on them to the OECD-DAC monitoring survey on the Paris Declaration every two years until 2010. Baseline values for the outcome indicators are set for 2005 and indicator targets for the end of the first term of JAST implementation in 2010/11. For Paris indicators, the baseline was taken from the 2006 survey using data from 2004/05; targets correspond for most indicators to the Paris equivalents, for some, they are set more ambitiously than the Paris targets to reflect the more progressive environment of Tanzania and the fact that for some indicators, Tanzania has already or almost reached Paris targets. Further details on the Paris indicators and targets, Tanzania’s progress against them,as well as their interpretation andmeasurementin the Tanzanian context can be found in annexes I, II and III respectively. The indicator review process shows which process is used to generate the necessary data or information for measuring the indicator and/or to review progress against the indicator.
3. JAST Monitoring and Evaluation Process
As stipulated in the JAST Document, the Government and DPs in consultation with non-state actors will review their performance in implementing the JAST on an annual basis, utilizing to the greatest extent possible the existing Government processes as the main avenues for dialogue, analysis and information generation. This will be guided by the joint Government-DP JAST Working Group. The findings from these processes will be consolidated in annual JAST progress reports, which are to be produced in November each year.
During the mid and final term of JAST implementation, the Government and DPs will jointly commission an Independent Monitoring Group (IMG) to undertake a comprehensive assessment of Government and DP performance in implementing the JAST. The IMG’s report will be discussed by the Government, DPs and non-state actors and the way forward agreedupon.
The Government together with DPs will have a high level consultative meeting at mid-term (FY 2008/09) and at the end of the JAST cycle, which will be based on a more comprehensive mid-term and final review respectively as well as findings of the IMG Reports.
4. Immediate actions for JAST implementation
Whereas the JAST Action Plan and Monitoring Framework is a comprehensive tool that spells out actions, monitoring indicators and targets for the implementation of JAST commitments, the following actions are identified as areas for immediate work:
- Formulate and implement a TA policy
- Strengthen MTEF projections and integrate all external resources in the Government budget and Exchequer system
- Establish effective division of labour within Government and among DPs
- Harmonise and rationalise Government and DP processes in line with national calendar of processes
1
5. JAST Action Plan and Monitoring Matrix
Objective 1: Strengthening national ownership and Government leadership of the development processJAST commitments / Activities to implement JAST commitments / Responsible agencies / Activity timeframe / Means of verification / monitorable output / Outcome indicators for JAST commitments / Indicator baseline (2005) / Indicator target (2010/11) / Indicator review process
1. Develop sustainable national capacity for external resource management, MKUKUTA monitoring, and other processes; DPs provide demand-driven TA, which is increasingly managed by the Government / 1.1. Formulate and operationaliseTA policy
1.2. Establish pooled funding arrangements for TA1.3. Establish data systems for tracking of TA expenditures
1.4. Establish and maintain databank of national experts
1.5. Integrate aid coordination and external resource management, MKUKUTA and PER process management functions within the core functions of policy and planning departments of MDAs, Regions and LGAs
1.6. Establish aid database in MDAs, Regions and LGAs
1.7. Strengthen the capacity of Policy and Planning Departments in external resource management
1.8. Strengthen Government procurement systems so as to attain international standards / MPEE(Lead), PO-PSM, PO-RC
PO-PSM(Lead), MOF, MOFEA, DPsDPs(LeadDP PSRP Working Group-lead), MOF, MOFEA
PO-PSM(M-Lead),
PO-RC(Z-Lead)
MPEEPO-PSM (M-Lead),MOF, MOFEA(Z-Lead), PO-RC,
MDAs, Regions and LGAs
MOF(M-Lead), MOFEA(Z-Lead), MDAs, Regions, LGAs
MOF(M-Lead), PO-PSM, MPEE,MOFEA(Z-Lead), PO-RC, MDAs, Regions, LGAs
PPRA(M-Lead), PPAA, MOF, MOFEA(Z-Lead), MDAs, Regions and LGAs, DPs / By Jun2008
By Jun 2008
By Jun 2008
By Jun 2008
By Dec 2008
By Jun 2008
Ongoing
FY 2009/10 / TA policy in place and operational
Pooled funding arrangements for TA in place and operational
TA expenditure tracking data systems in place and reports generated
Databank for national experts in place
Integration reports
Number of MDAs, Regions, LGAs with aid database in place
JAST implementation report
PFMRP Review Report / 1.1.Percent of TA for capacity development through coordinated programmes managed by the Government (Paris indicator 4)
1.2. Percentof TA (percent of ODA) that is used for capacity development
1.3. Reliable public financial management systems (Paris indicator 2a)
1.4.Reliable procurement system is in place (Paris indicator 2b)
1.5. Procurement system of international standard / 50%
4.5 (World Bank score)
Score not yet available / 70%(Paris target: 50%)
5.0
(World Bank score)
Target depends on score / OECD Paris survey2008, 2010JAST review
OECD Paris survey 2008, 2010
OECD Paris survey 2008, 2010
PFMRP
Objective 2: Aligning DP support to Government priorities, systems, structures and procedures
JAST commitments / Activities to implement JAST commitments / Responsible agencies / Activity timeframe / Means of verification / monitorable output / Outcome indicators for JAST commitments / Indicator baseline (2005) / Indicator target (2010/11) / Indicator review process
1. Align DP support with national and sectordevelopment strategies,policies andprogrammes / 1.1. DPs revise their CAS in line with JAST principles
1.2. Review projects/ programmes and identify whether they are aligned with (integrated into) national and sector strategies and programmes / DPs(Lead), MOF, MOFEA
MPEE (M-Lead),MOF, MOFEA (Z-Lead), MDAs, DPs (DPG WGs) / By Dec2008
By Jun 2008 / Number of DPs with revised CAS
List of reviewed projects/ programmes / 1.1.ODA recorded in national budget as % of actual ODA disbursements to Government (Paris indicator 3)[i]
1.2. Percent of projects/ programmes that are not aligned with (integrated in) national and sector strategies/ programmes / 90% / 95% / JAST review (annual);OECD Paris survey (2008, 2010)
JAST review
2. DPs increasingly rely on Government structures, systems and procedures and work towards providing untied aid incl. untied TA / 2.1. Mainstream parallel PIUs into Government structures
2.2. DPs review their development cooperation policies and regulations to allow the use of Government procurement/ financial management systems
2.3. Formulate and implement plans of untying aid / MOF(M-Lead), MPEE, MOFEA(Z-Lead), MDAs, Regions, LGAs, DPs
DPs(individual DPs-Lead with JAST WG coordination),MOF,MOFEA(Follow-up)
DPs(LeadIndividual DP.HQs-lead)), MOF, MOFEA / Ongoing
By Dec2008
By Jun 2008 / PIU mainstreaming report
Number of DPs with revised development cooperation policies and regulations
Plans in place; implementation report. / 2.1.Number of parallelPIUs (Paris indicator 6)
2.2. Percent of ODA disbursements that use national financial reporting procedures (Paris indicator 5a)
2.3. Percent of ODA disbursements that use national auditing procedures (Paris indicator 5a)
2.4. Percent of ODA disbursements that follow national procurement procedures (Paris indicator 5b)
2.5. Percent of ODA that is untied / 56
61%
60%
61% / 0(Paris target: 19)
75%
75%
75%(Paris target not yet available) / JAST review (annual); OECD Paris survey (2008, 2010)
JAST review (annual); OECD Paris survey (2008, 2010)
JAST review (annual); OECD Paris survey (2008, 2010)
JAST review (annual); OECD Paris survey (2008, 2010)
JAST review
3. DPs increasingly move to GBS; use basket funds where appropriate; and project funds for large-scale infrastructure investment, piloting and emergency aid / 3.1. Strengthen the budget management process
3.2. Establish baseline for each DP on the composition of aid (aid by modalities) and formulate and implement plans for increasing the proportion of GBS
3.3. Train MDAs, Regions and LGAs on GBS
3.4. Develop criteria to determine large-scale infrastructure investments and piloting projects / MOF(M-Lead), MPEE, MOFEA(Z-Lead), MDAs
DPs(LeadIndividual DPs-lead, coordinated by PRBS DP), MOF, MOFEA
MOF(Lead), MPEE, MDAs, Regions, LGAs
MPEE(Lead), MOF,MOFEA, MDAs / Ongoing
By Jun 2008 (ongoing)
By Jun 2008
By Jun 2008 / PER report
Baseline available; number of DPs with available plans
Number of MDAs, Regions and LGAs trained
Criteria is available / 3.1. Percent of GBS versus basket funds versus project funds in total ODA disbursements (overall and by DP)
3.2. Number of projects that are in conformity with guideline to be used only for piloting, emergency, and large-scale infrastructure support / JAST review
JAST review
4. Project and basket funds adhere to JAST principles.[ii] / 4.1. Review existing basket funds and develop guidelines for mainstreaming those that do not meet JAST principles into GBS
4.2. Review and revise guidelinesand processes for basket fund and project approval to be in line with JAST principles / MOF(Lead), DPs, MDAs, MOFEA
MOF(Lead), MOFEA, MPEE, MDAs / By Jun 2009
By Jun 2008 / Guidelines in place; implementation report
Guidelines and processes are revised / 4.1. Percent of project and programmes (basket funds) that meet JAST principles / JAST review
5. Strengthen MTEF projections and integrate all external resources in the Government budget and Exchequer system / 5.1. DPs discuss and agree MTEF external resource projections with MDAs, Regions and LGAs before submitting them to MOF
5.2. Familiarise DPs on the use of the Government budget and Exchequer system
5.3. DPs provide accounting details to MDAs, Regions and LGAs for direct project funds in line with AcGen Note 2001
5.4. Formulate and implement plans to increase the proportion of funds channelled through Exchequer / DPs(LeadDPG WGs-lead), MOF, MOFEA, MDAs, Regions, LGAs
MOF(Lead), MOFEA, DPs (Main DPG-lead)
DPs(LeadDPG with individual DP follow-up), MDAs, Regions, LGAs
DPs(LeadMain DPG-lead), MOF, MOFEA / Annual (as agreed in the PER process)
Ongoing
Ongoing
Ongoing / DP MTEF external resource projections submitted to MOF
Number of DP agencies trained
Accounting details are provided to MDAs, Regions, LGAs
Number of DPs implementing plans for using the Exchequer / 5.1. Percentof DPs that provide timely MTEF projections
5.2. Percentof year-to-year variation of MTEF commitments over a rolling three-year MTEF period
5.3. Percent of ODA disbursements to Government (in total and per DP) that are captured in the Exchequer system / 76% of total ODA to Government / 95% of total ODA to Government / PER, JAST review
PER, JAST review
PER JAST review
6. GBS disbursements are frontloaded in the first half of the financial year and are in line with the confirmed GBS schedule of disbursements.
Project and basket fund disbursements are made in accordance with the existing agreements / 6.1. Follow up and monitor confirmed GBS disbursement schedule
6.2. Follow up on MDAs, Regions and LGAs project/ programme implementation and DP release of funds in line with commitments. / MOF(Lead), GBS DPs
MOF(M-Lead), MOFEA(Z-Lead), MDAs, Regions, LGAs / Ongoing
Ongoing / GBS annual review report
Project and basket fund disbursement reports / 6.1. Percent of DPs that conform with their GBS disbursement schedule in terms of timing and amount
6.2. Percent of project fund disbursements against commitments to Government
6.3. Percent of basket fund disbursements against commitments to Government
6.4. ODA disbursements in Government accounting (Exchequer) system as % of ODA recorded in national budget
6.5. ODA disbursements recorded in Government accounting system as % of ODA commitments to Government (Paris indicator 7) / 71% (timing)/ 79% (amount)
85%
70% / 100%
85% / GBS review,
JAST review
PER
JAST review
PER
JAST review
JAST review
JAST review (annual),OECD Paris survey (2008, 2010)
Objective 3: Harmonising Government and Development Partner processes
JAST commitments / Activities to implement JAST commitments / Responsible agencies / Activity timeframe / Means of verification / monitorable output / Outcome indicators for JAST commitments / Indicator baseline (2005) / Indicator target (2010/11) / Indicator review process
1. Make division of labor within Government and among DPs more effective / 1.1. Agree on sector/thematic area classification incl. TOR and specify MDA membership
1.2. DPs restructure their engagement in sectors/thematic areas in line with Government classification of sectors/ thematic areas
1.3. Prepare generic TOR with code of conduct for lead, active and delegating partners / MOF(M-Lead), MOFEA(Z-Lead), MDAs
DPs(LeadJAST WG and PRBS DPs), JAST WG, MDAs
JAST WG / By Sep 2007
By Sep2007
By Sep2007 / Sector and thematic area classification with TOR in place
Restructured DP engagement in sectors/thematic areas
TOR with code of conduct in place / 1.1. Number of sectors/thematic areas that function appropriately
1.2. Number of active DPs per sector/thematic area
1.3. Number of sectors/thematic areas per active DP / JAST, GBS, sector reviews, MKUKUTA-PER
JAST review
JAST review
2. Harmonise and rationaliseGovernment and DP processes in line with national calendar of processes / 2.1. Review the existing national/sector processes and identify scope for further harmonisation and rationalisation around the national budget and MKUKUTA/MKUZA processes with effective inter-linkages
2.2. DPs undertake joint financial programming
2.3. Lead DPs coordinate and record missions and analytic works in line with the Government calendar of processes / MOF(M-Lead), MPEE,MOFEA(Z-Lead), DPs (JAST WG to follow-up), MDAs
DPs(LeadDPG WGs-lead), MOF, MOFEA
DPs (DPG Sector WGs-lead) / Ongoing
Annual
Ongoing / Review report in place
Joint MTEF external resource projections reported to MOF
Harmonised missions and analytic works in line with national calendar / 2.1. Revised calendar of processes (where necess.)
2.2. Number of missions (by DP)
2.3. Percent of total missions that are joint/coordinated (Paris indicator 10a)
2.4. Number of analytic works (by DP)
2.5. Percent of country analytic work that is joint/ coordinated (Paris indicator 10b) / 541
17%
81
38% / 40%
66% / JAST review
JAST review (annual);
OECD Paris survey (2008, 2010)
JAST review (annual);
OECD Paris survey (2008, 2010)
JAST review (annual);
OECD Paris survey (2008, 2010)
JAST review (annual);
OECD Paris survey (2008, 2010)
Objective 4: Managing resources for achieving development results, in particular on MKUKUTA/MKUZA
JAST commitments / Activities to implement JAST commitments / Responsible agencies / Activity timeframe / Means of verification/ monitorable output / Outcome indicators for JAST commitments / Indicator baseline (2005) / Indicator target (2010/11) / Indicator review process
1. Strengthen linkage between MKUKUTA/ MKUZA, other national and sector strategies, policies and programmes and the national budget / 1.1. Strengthen linkages between MTEF, SBAS/ PlanRep, IFMS and RIMKU
1.2. Roll out O&OD to all LGAs
1.3. Initiate O&OD to all LGAs in Zanzibar / MOF(M-Lead), MOFEA(Z-Lead), MPEE, PMO-RALG, MDAs, Regions, LGAs
PMO-RALG (Lead), LGAs
MS-PORASF(Z-Lead), LGAs / Ongoing
Ongoing
By Dec 2008 / Reports available
Progress report on the use of O&OD / 1.1. Percentof national budget allocation to MKUKUTA/ MKUZA
1.2. Percent of national budget spent on MKUKUTA/ MKUZA
1.3. Percent of divergence between approved budget and actual expenditures / MKUKUTA-PER
MKUKUTA-PER
MKUKUTA-PER
Objective 5: Strengthening Domestic and Mutual Accountability
JAST commitments / Activities to implement JAST commitments / Responsible agencies / Activity timeframe / Means of verification/ monitorable output / Outcome indicators for JAST commitments / Indicator baseline (2005) / Indicator target (2010/11) / Indicator review process
1. Strengthen national/sector dialogue and accountability mechanisms / 1.1. Review national/sector dialogue and accountability mechanisms and identify ways of strengthening them / MOF(M-Lead), MOFEA(Z-Lead), MDAs, Regions, LGAs, DPs (DPG WGs) / Ongoing / Review reports / 1.1. Satisfactory national/sector dialogue / MKUKUTA-PER, sector reviews, GBS review
2. Provide timely and clear information on outcomes of MKUKUTA/ MKUZA, the national budget and other processes as well as on ODA disbursements to relevant stakeholders / 2.1. Prepare and disseminate reports in English and Kiswahili on budget execution, PER, GBS annual review, MKUKUTA/ MKUZA implementation, and JAST progress
2.2. DPs report on their ODA disbursements made to Government and NSAs on quarterly basis / MOF & MPEE (M-Lead), MOFEA(Z-Lead)
DPs(LeadIndividual DPs-lead), MOF, MOFEA / Annual
Quarterly / Relevant reports are available
DPs’ quarterly disbursement reports / 2.1. Timely release of relevant reports
2.2. Amount of reported ODA disbursements to Government and non-state actors
2.3. Percent of DPs that provide timely quarterly disbursement reports to MOF/MOFEA / MKUKUTA-PER,
MKUZA, GBS, JAST review
JAST review, PER
JAST review
3. Undertake regular JAST monitoring and evaluation / 3.1. Government and DPs undertake annual review of their performance in JAST implementation
3.2. Government and DPs commission an IMG to undertake an independent assessment of Government and DP performance in JAST implementation / JAST WG(Lead), MDAs, Regions, LGAs, DPs (JAST WG DPs), NSAs
JAST WG / Annual
By Dec 2008 (mid-term)
By Sep 2011(final) / Annual JAST review takes place/ JAST progress report
IMG commissioned / IMG report / 3.1.Annual JAST implementation report is produced
3.2. Mid-term and final independent assessment /IMG report / JAST review
JAST review
4. NSAs share information on their activities and financial resources with their constituents and the Government / 4.1. Develop code of conduct for NSA transparency and accountability
4.2. Establish/maintain database of NSA places of operation, activities and resources to be used for Government planning / MCDGC(Lead), MITM, NSAs, TPSF
MCDGC(Lead), MOHA, MDAs, Regions, LGAs, TPSF, Foundation for Civil Society / By June 2008
By June 2008 / Code of conduct in place
Database with reports in place / 4.1. Percentof registered NSAs that adhere to code of conduct for NSA transparency and accountability / JAST review
1