Consultancy to Develop and Field Test Information for Citizens As Part of the Implementation

Consultancy to develop and field test “Information for Citizens”
as part of the Implementation of the Social Accountability Framework (ISAF)

DRAFT Terms of Reference

A. Background

The Royal Government of Cambodia is committed to improving Sub-national Democratic Development (SNDD). To meet this objective, the National Committee for Democratic Development (NCDD) was established by Royal Decree under the Organic Law of 2008. To implement the Government’s Democratic Development policy, NCDD developed a 10-year National Programme as well as a more detailed three year Implementation Programme 2011-2013 (IP3).
Social Accountability was flagged as an essential, but inadequately developed area of the IP3 during the 2011 program appraisal. Based on the appraisal, it was agreed NCDD, development partners (DPs), and representatives from Civil Society would take a coordinated approach to address these gaps. Amongst DPs the World Bank was assigned responsibility for facilitating the development of a social accountability program. During 2012, and as part of the development of a Social Accountability Framework, a detailed, evidence based review[1] of citizen engagement in Cambodia was carried out.
Based on this analytical work, and following an extensive process of consultation with over forty NGOs involved in social accountability, decentralization and local service delivery, and in close working collaboration with NCDD-S, a draft SAF was developed during mid-late 2012. To discuss the Framework, a workshop was facilitated with state and non-state actors on October 3, 2012. The NCDD-S and participating civil society organizations, led by the network WGPD, strongly endorsed the Social Accountability Framework (SAF) as the basis for future joint action. The Chairpersons from both government and civil society requested the Bank to develop government and civil society action plans (i.e. a more complete program based on the SAF). NCDD-S and civil society each nominated three members for a Joint Social Accountability Steering Committee/Working Group which met for the first time on 12 February 2013. This represents an unprecedented step for both government and civil society.
The minor revisions requested by participants at the workshop were completed and it is intended that the revised document will be endorsed by a minute of a joint committee, consisting of three representatives each from NCDD, NGOs and DPs. The document will then be officially approved by the Deputy Prime Minister (DPM) and appended to the IP3 document. Formal approval and instructions to support its implementation will be officially communicated to all SNDD actors (Councillors, Governors, Officials and Advisers) and was presented during the AWPB meetings.
A draft ISAF (Implementation program of the Social Accountability Framework) was completed in April 2013. Under the I-SAF, Component 1 sets out the justification for, objective and means of achieving better flows of information at the local level.

B. Scope

Transparency and access to information are essential elements of democracy, good governance, and social accountability. Without information about standards of service, citizens cannot know what to expect or request from a health facility, a school or a commune council. Once all actors share a common information base, the potential for enhanced mutual understanding, improved relationships and collective action is greatly increased. State/non-state dialogue that is based on data and evidence has a much better chance of leading to concrete improvements. A lack of access to accurate, systematic, and timely information has been a constraint to effective citizen engagementand social accountability processes. Moreover since citizens have lacked an opportunity to access the information government has or influence public decision-making in a meaningful way, their demand for information has also been low.
Financial data is an essential sub-set of this information. Research shows that, in Cambodia, both public financial transparency and citizen understanding of public financial issues needs to be improved.Cambodia is in the lowest category of countries when it comes to “open budgets”, providing “scant information” to citizens.[2] Recent studies and surveys by NCDD and others have also provided evidence that few citizens request information; expectations about budget transparency are also low.
As described in the Social Accountability Framework strategies 1 and 3, this component will strengthen transparency and citizen access to, and demand for, public information and budgets. There are distinct aspects to this effort – generating, simplifying, disseminating and improving awareness, understanding and literacy.i.e. (i) to strengthen the supply and dissemination of relevant local level public information, (ii) to make the information more accessible, and (iii) to build capacity of citizens to understand the information provided. As seen in social accountability activities conducted in Cambodia to date, the improved supply of, and understanding of information is expected to facilitate constructive dialogue on ways to improve the performance of local service delivery.
What information? For effective engagement, citizens require information on government policies and processes, on the standards of service and governance they can expect, on budgets and annual expenditures, on targets for services being provided, and on the actual performance achieved. Information should relate to the sectors of priority interest to citizens (i.e. health, education, water and sanitation, natural resource management and the functions of communes) and will include:

Information on policies and procedures. Qualitative information on government policies, laws, plans, and procedures help citizens understand the context of development (for instance, government policy regarding the SNDD reform). Knowing about policy and procedures empowers citizens to understand how things are supposed to function and operate, and what decisions are made. It will include the “policies” of local organizations (e.g. charters, codes of conduct), and procedures (e.g. how finances are to be managed). It will also provide citizens with information on how to do something (i.e. contacts and responsibilities of organizations, where to get information, how to make a complaint). In a school or health center it might include what prices are to be charged, the times of opening for a service, and the codes of conduct of staff. In communes it will include information on the CSF process (e.g. procurement and execution of projects). This is not new – all of these kinds of information have already been provided before, at times and in some places, by NCDD/MOI and other line ministries.[3]
Information on standards/entitlements to services. This will empower citizens with information on what they are entitled to by law or regulation. The entitlements of citizens to access local basic services is set out in law and policy, already published by the respective ministries, (e.g. MOEYS policy on schools includes information on standards expected such as student to teacher ratio; MOH policy for primary health care refers to the availability of trained medical practitioners or drugs; and MOI have policies guiding rights and responsibilities regarding civic registration and the use of the commune sangkat and district municipal fund). This information forms a baseline against which performance can be measured.
Information on budgets and expenditures. It is important for citizens to know what funds are made available, especially in financially constrained situations. Budgets are currently available for communes and for schools, and some already post these on their office walls for the public to see. Most health centers only know their complete budgets at the end of the year, but the previous year’s budget can be used as a guide). This information needs to be compiled for citizens to use and understand. And it needs to be matched with expenditure information (what the budgets are spent on) at the end of each year.
Information on targets. Targets are established to improve performance (e.g. the Cambodian Millennium Development Goals or a Ministry’s program goals). Tracking performance against targets is useful so government knows how it is doing at the local level. This information is already in the public domain but not communicated so well at the local level. For instance, key outcome targets:

‒In education, targets include: the Primary Net Enrolment Rate (96%), and the ECE enrolment of 5 year olds (50%); while service targets are Pupil Teacher Ratio Primary (45 pupils) and survival rate from Grade 1 to Grade 6 (75%)

‒In health, targets for 2017: 70% (2017); Immunization coverage (children receiving three doses of DPT) – 95%; Rate of antenatal care (2 ANC visits) – 90%; health facility delivery (public and private) – 70%; Under 5 mortality.

‒In communes, service standards for the processing of birth and death registration.

Information on performance achieved. Government already produces a commune profile (that includes various development data) that is available in the commune database. Citizens need information on the performance of their service agencies – annual outcomes and outputs of schools, health centers and commune/districts[4]. I-SAF activities will promote the generation of information of a pre-agreed set of “performance indicators” (similar to the targets that government has already set). Performance information is likely to include: Rate of enrolment in early child education, primary, rate of students reaching Grade 6, no. of students per teacher, immunization coverage (children receiving three doses of DPT), rate of antenatal care (2 ANC visits), rate of health facility delivery (public and private), under 5 mortality, % birth registration within service standard, % death registration within service standard, commune implementation indicators (to be discussed e.g. CSF projects) , and socio-economic indicators
The primary instrument for providing information to citizens in phase 1 will be the “information for citizen” pack – the I4C.To start this process of sharing and discussing information at the local level, a set of core informationrelating to SNAs and local level service delivery points will be collected and presented in packs called Information for Citizens “I4Cs”. Initially it is intended that core sets of information will be developed for schools, health centres and communes/districts.[5]The data will be developed and presented to respond to the different needs and perspectives of key sub-groups, including women, youth and the poor. When compiled, it will provide a picture of what government says it will do (standards and targets), and what it does do (performance), with what funds (budgets and expenditures).
At the local level, the key stakeholders will be encouraged to supplement the core I4C with other information relevant to that locality (district or commune). This might include information on local natural resources, water supply, or sanitation for example. Or it may include additional information on health/education if there is a specific indicator at risk in that context. Information generated from citizen/community scorecards (produced underI-SAF component 2), will provide detailed and comparable information on how citizens perceive service delivery in terms of their satisfaction with performance and processes.There may also be cases where more detailed multi-sector information can be accessed by larger NGOs, and “translated” into simpler messages for citizens.[6]
To enable citizens to assess and understand performance, the I4C will enable comparisons to be made. The following comparisons are proposed in the first stage of the I-SAF, and the way of doing this will be developed in the inception period:

Comparing actual with intended processes and results, including the comparison of targets, standards, requirements, plans, and budgets with actual performance and expenditure;
Comparing changes and trends over time; and
Comparing results between similar units. “Bench-marking” provides a relative comparison of performance between schools, health facilities, Communes and Districts. Initially, this will be done at the district level.[7]

The design of I4Cs will bring together information on local services that are critical to citizens, and poverty reduction. The information compiled for citizens in“I4Cs” aim to inform citizens about processes, rights, and performance.The I4Cs will present data in a way which is easy for citizens to understand and which facilitates debate on performance and service delivery improvement.I4Cs are mechanisms for communication between government and citizens.
The format of the information matters – simplicity and presentation will be critical. When providing information directly to citizens, information will be presented in a simple,user-friendly, easily understood, graphical format developed according to pre-tested templates. Formats will be provided to communes to use. Information will be compiled and presented in formats that are easy to print, in posters and brochures, and other communication tools. The templates will be piloted and field-tested to ensure they contain the information needed, are understandable and relevant to all groups and sub-groups, including women, youth and the poor.[8]
The preparation of I4Cs and the provision of information from government will be guaranteed in the form of disclosure regulations. The regulations that are developed by NCDD will ensure agreed informationis supplied on an annual basis, is accurate, is publicly posted and publically available, and is accessible to citizens. NCDD will strengthen the capacity of all SNAs to understand and implement disclosure requirements, and be aware of their roles and responsibilities; they will ensure regulations are monitored and complied with.
Awareness raising, capacity building and budget literacy efforts will ensure that I4Cs are understood and utilized by citizens and community-based organizations (CBOs). Community awareness-raising campaigns, capacity building of CBOs, and training of community accountability facilitators in every commune will help stimulate interest in and demand for I4Cs. Developing budget literacy and an understanding of financial management will be a key element of this awareness raising. Significant efforts in training and mentoring will be required to support this improved citizen access to public information. Special emphasis will be placed on targeting women and youth as key community-level “change agents”. A key aspect of improving accessibility will be outreach – getting I4Cs to citizens rather than expecting citizens to go to a government office and collect information for themselves. “I4C meetings” will be held to encourage discussion and debate.
Both government and civil society will have responsibilities to bring about this change. In terms of responsibilities, government will: (i) collect data, (ii) prepare I4Cs, and (iii) post key information in agreed accessible locations. Civil society will help government (iv) disseminate I4Cs, at village level, and work to(v) enhance citizen awareness and demand for information.

C. Objectivesand scope of consultancy

The purpose of his consultancy isto take forward the design development and testing stage of the Social Accountability Framework Implementation Plan (I-SAF).Although it is anticipated that the majority of this work is focused on Component 1 and includes the development of the tools and processes for enhancing access to information, it will also support the government actions for design development and testing of citizen monitoring in the ISAF, i.e. the information and budgets, and citizen monitoring, as well as the facilitation and capacity building needed to operationalize the intended social accountability processes at the local level. As each of these is linked to the others, the assignment will require an integrated approach. More specifically the purpose of his consultancy is to join a Joint ISAF Design and Testing Team:

To finalise the set of information that will be included in the I4Cs;
To design and develop simplified templates for the presentation of the information, as well as guidelines for their use;
To cooperate with the demand side consultants working on the citizen monitoring and facilitation components and provide any supply side inputs especially in relation to the guidance and regulations for government.
To field test these resource materials in collaboration with the demand-side consultantsand complete ready for implementation in 2014

The SAF and its implementation plan (ISAF) seek to achieve coordinated demand and supply side activity, with each reinforcing the efforts of the other, and with a significant effort to enable the interface between the two. Accordingly, the consultant will work in partnership withdemand side consultant(s)also appointed under the DFGG project (by the NSAC component) to provide similar support to the demand side processes. The outputs of these consultancies will form the substantive inputs into the Program Implementation Manual document needed for appraisal of the forthcoming Bank-financed LGDP.
The approach to the development of the templates, tools and processes is currently planned in two stages: (i) design development (or inception) during which the ISAF pre-implementation team will plan for and draft initial ideas for the intended templates, tools, and processes; (ii) testing, during which the proposed templates, tools and processes will be field tested. The process for field testing will be agreed early in the design development stage, with sufficient time for it to be completed by December 2014.

D. Tasks

The tasks envisaged for the consultancy within the context of the ISAF pre-implementation team will be further defined in the supply side pre-implementation plan. I4Cs will meet the needs of citizens, civil society and government and will balance demand side requirements with supply-side feasibility. To do so, a highly consultative process will be employed in the development of I4Cs.For the purposes of a ToR the key tasks include:

A. Lead the design of the Information for Citizen (I4C) Pack /

Review ISAF documentation and conduct initial discussions with stakeholders
Complete a review of available data, reports and communication instruments, including the processes and constraints in data collection and accuracy for communes/districts, schools, and health centers. The review will cover standards, targets, plans, budgets, expenditures as well as actual performance data.Consult with local level actors as to priority information needs and interests outside the agreed core set.
Review international best practice on local level communication instruments that will foster the adoption of innovative designs for templates to meet citizen’s needs. Collaborate with demand-side consultants on access to information methods and appropriate formats for citizens. Identify the types of communication instruments to be produced (in the form of a short strategy justifying the direction to be taken)
Develop draft I4Cs: (i) Develop data collection instruments, (ii) develop tools that will be used to generate the reports and (iii) develop directions and manuals and guidelines for collecting and presenting information and checking the validity and accuracy of the information.
In all points of the process, consult and liaise with civil society to ensure I4Cs meet the expectations of civil society; hold meetings and workshops to validate the reports and information packages.

B. Lead the development of interim directions/regulations and procedures for disclosure of information and simplified budget/expenditure templates and other FM information (More detailed guidelines or regulations will be developed during 2014) /

Coordinate with government counterparts and lead the development and approval of interim, simplified disclosure regulations and procedures for inclusion on the PIM and DIM, within an agreed timeframe.
Consult with local level actors about their priority needs and interests with regard to financial information. Develop interim financial transparency regulations and simplified budget/expenditure templates (and monitor their implementation over time).

C. Work jointly with demand side consultants to field test the I4C and simplified budget/expenditure templates /

Develop mechanisms for piloting and evaluating the effectiveness of the different draft I4Cs
Present and discuss the draft I4Cs (and draft indicators) at local level to test citizen interest and comprehension.
Share findings and recommendations with government for the refinement and finalization of the I4C Pack.
Present and discuss simplified budget/expenditure information at local level to test citizen interest and comprehension.
Share findings and recommendations with government for the refinement and finalization of financial transparency regulations and simplified budget/expenditure templates.
Based on all comments, and assessment of which elements of I4Cs work best, finalize the I4Cs and budget work tools

D. Carry out associated tasks on the development of the citizen monitoring tools and processes, facilitation, capacity building and local level implementation arrangements /

Engage in process through workshops, key meetings and review documents as required.
Consider how citizen monitor results will be addedinto I4Cs.
Support demand side consultants in development of the interface meeting guidelines and the requirements of the JAAPs.

Reviewdraft guidelines and processes developed by others. Attend workshops and consultative events held.
Collaborate on the definition of local roles including commune and district councilors, commune clerks, village chiefs, CCWCs, district offices of health and education
Collaborate on processes and guidance for interface with civil society

Provide comments to training partner on content and scope of curriculum.

E. Deliverables (and approach)