PUBLIC SECTOR SYSTEMS STRENGTHENING (PS3) IN …
Transcript of PUBLIC SECTOR SYSTEMS STRENGTHENING (PS3) IN …
April 30, 2017
This publication was produced for review by the United States Agency for International Development. It was
prepared by the Public Sector Systems Strengthening (PS3) Activity located in Dar es Salaam, Tanzania, under
Contract AID-621-C-15-00003 with USAID/Tanzania.
PUBLIC SECTOR SYSTEMS STRENGTHENING
(PS3) IN TANZANIA YEAR 2 QUARTER 2 REPORT
JANUARY 1 – MARCH 31, 2017
The USAID/Tanzania Public Sector Systems Strengthening Activity (PS3)
USAID/Tanzania Public Sector Systems Strengthening Activity (PS3) overarching goal is to support the
Government of Tanzania to strengthen the public system to promote the delivery, quality, and use of services,
particularly for underserved populations. Led by Abt Associates, PS3 is implemented in partnership with Benjamin
William Mkapa Foundation, Broad Branch Associates, IntraHealth International, Local Government Training
Institute, Tanzania Mentors Association, University of Dar es Salaam and Urban Institute.
April 2017
Contract No: AID-621-C-15-00003
Submitted to: Shannon Young, Contracting Officer Representative
Cover Photo: Minister of State in the President’s Office, Regional Administration and Local Government
(PORALG) Hon. George SImbachawene, presses a key to signify the launch of new Regional and LGA websites in
the country. Looking on are from left: Minister for Information, Culture, Arts and Sports, Hon. Dr. Harrison
Mwakyembe; Kilimanjaro Regional Commissioner, Said Meck Sadiki; eGA Information Officer, Rainer Budodi;
Singida DC Acting Information Officer, Victor Alexander; and USAID Deputy Mission Director, Tim Donnay.
(Photo: PS3)
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DISCLAIMER
The contents of this report are the sole responsibility of the PS3 Activity and do not necessarily reflect
the views of USAID or the United States Government.
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CONTENTS
Contents .............................................................................................................. 6
Acronyms ............................................................................................................ 8
Executive Summary and Quarterly Achievements ........................................ 11
1. Governance and Citizen Engagement .............................................. 15
1.1 Citizen Engagement and Strengthening Committee Functioning ......... 15 1.2 Strengthening PFM Systems ................................................................ 20
2. Human Resources .............................................................................. 25
2.1 Strengthen HR Planning and Distribution ............................................. 25 2.2 HR Efficiency, Productivity and Performance Management ................. 28 2.3 HR Knowledge Generation and Advocacy ............................................ 32
3. Finance ................................................................................................ 33
3.1 Single National Health Insurance (SNHI) .............................................. 33 3.2 Service Provider Payment Systems...................................................... 37 3.3 Facility Financial Management ............................................................. 40 3.4 Resource Allocation and Tracking ........................................................ 43
4. Information Systems .......................................................................... 45
4.1 Support Improvement of ICT/LAN and Operations at Regional/LGA
Level ..................................................................................................... 45 4.2 Improving Interoperability and Efficiency of Information Systems ......... 46 4.3 Support Implementation of LGA Web Application Systems .................. 50
5. Operations Research .......................................................................... 54
5.1 Operations Research (OR) Studies ...................................................... 54 5.2 Rapid Assessments .............................................................................. 57
6. Cross Component Interventions ....................................................... 58
6.1 Gender Sensitivity and Integration ............................................................ 58 6.2 Public-Private Sector Dialogue .................................................................. 60
7. Collaborations..................................................................................... 62
8. Communications and Knowledge Management .............................. 64
8.1 PS3 Products .......................................................................................... 65 8.2 GOT Correspondence and Technical Assistance ....................................... 67
9. Monitoring and Evaluation ................................................................. 69
10. Project Management .......................................................................... 71
10.1 Regional/LGA Operations ..................................................................... 71 10.2 Cluster meetings ................................................................................... 71 10.3 PS3 Review Meeting ............................................................................ 72 10.4 Strengthening Program Management ................................................... 73
11. Challenges ........................................................................................... 74
11.1 GOT Communication ............................................................................ 74 11.2 PS3 Communication and Program Operational Management .............. 74
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List of Tables and Figures Figure 1: Number of Councilors trained per region ............................................................ 15 Table 1: Participants in IPSAS and Corporate Reporting Training .................... 21 Table 2: Status of Completing OPRAS Forms ............................................................... 30 Figure 2: Screenshot of the FFARS Manual ......................................................................... 42 Figure 3: Proposed LAN Installation to Commence in Next Quarter ......................... 46 Figure 4: Screenshot of the PlanRep mockup...................................................................... 48 Figure 5: Screenshot of the PlanRep mockup...................................................................... 48 Figure 6: Government Website Framework .......................................................................... 52 Figure 7: Screenshot of the LGA website ............................................................................... 53 Table 3: Collaboration with other USAID Activities:................................................... 62 Figure 8: Screenshot of Jamvi la PS3 ...................................................................................... 64 Table 4: Technical Documents Finalized this Quarter: ............................................. 65 Figure 9: Screenshot of one of the banners .......................................................................... 66 Figure 10: Screenshots of the Phase II LGA Baseline Data Collection Forms ..... 70 Table 5: Summary of Challenges and Solutions/Mitigations ................................ 72
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ACRONYMS
CAG
CMT
Controller and Auditor General
Council Management Team
DHIS
DICT
DPs
District Health Information System
Department of Information and Communication Technology
Development Partners
eGA e-Government Agency
eLMIS
FFARS
FMO
GHSC
Electronic Logistics Management Information Systems
Facility Financial Accounting and Reporting System
Financial Management Officer
Global Health Supply Chain
GOT
GOTHoMIS
GWF
HBF
Government of Tanzania
Government of Tanzania Hospital Management Information System
Government Website Framework
Health Basket Fund
HCMIS
HFS
HIS
HIV
Human Capital management Information Systems
Health Financing Strategy
Health Information Systems
Human Immunodeficiency Virus
HLG
HPSS
Higher Local Government
Health Promotion and System Strengthening
HR Human Resources
HRH Human Resource for Health
ICT
ICTO
IFMS
Information and Communication Technology
Information and Communication Technology Officer
Integrated Financial Management System
IPSAS International Public Sector Accounting Standards
IS
JICA
Information Systems
Japan International Cooperation Agency
LGAs
LGDG
Local Government Authorities
Local Government Development Grant
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LGRCIS Local Government Revenue Collection Information System
LGTI Local Government Training Institute
LLG Lower Local Government
M&E
MBP
Monitoring and Evaluation
Minimum Benefit Package
MDAs Ministries, Departments and Agencies
MOALF
MoEST
Ministry of Agriculture, Livestock and Fisheries
Ministry of Education, Science and Technology
MoHCDGEC Ministry of Health, Community Development, Gender, Elderly and Children
MOFP Ministry of Finance and Planning
MSD Medical Stores Department
NGOs Non-Governmental Organizations
NHA National Health Accounts
NHIF National Health Insurance Fund
OC Other Charges
OPRAS
OR
OSR
P4H
PE
PFM
Open Performance Review and Appraisal System
Operations Research
Own Source Revenue
Providing for Health
Personal Emoluments
Public Finance Management
PIRS Project Indicator Reference Sheets
PLANREP Planning and Reporting software
POA Priority Optimization Analysis
POPSM President’s Office – Public Service Management
PORALG
PORAMD
President’s Office, Regional Administration and Local Government
POPSM/Records and Archives Management Department
POS
PPRA
Point of Sale
Public Procurement Regulatory Authority
PS3
PSC
Public Sector Systems Strengthening
Public Service Commission
RBF
RFP
RHMT
Results-Based Financing
Request for Proposals
Regional Health Management Team
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RPM Region Program Manager
RS
RSSH
SBAs
SBU
SDC
Regional Secretariat
Resilient and Sustainable System for Health
Statistical Budget Analysis Software
Strategic Business Units
Swiss Agency for Development and Cooperation
SNHI
TB
TEA
TIE
Single National Health Insurance
Tuberculosis
Tanzania Education Authority
Tanzania Institute of Education
TMA Tanzania Mentors Association
TOR Terms of Reference
USAID United States Agency for International Development
USG United States Government
WISN Workload Indicators Staffing Need
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EXECUTIVE SUMMARY AND QUARTERLY ACHIEVEMENTS
The purpose of the Public Sector Systems Strengthening Activity (PS3) is to support the
Government of Tanzania (GOT) to strengthen national systems to promote the delivery,
quality, and use of public services, particularly for underserved populations. PS3 also
strengthens key multi-sectoral components of Local Government Authority (LGA) systems as
part of the approach to promote inclusive and evidenced-based planning, management, and
implementation of services. PS3 is a five-year USAID-funded activity with five components or
systems functions that work across multiple sectors: Governance and Citizen Engagement,
Human Resources (HR), Finance, Information Systems, and Operations Research (OR). PS3 is
led by Abt Associates in partnership with Benjamin William Mkapa Foundation (BMF), Broad
Branch Associates, IntraHealth International, Local Government Training Institute (LGTI),
Tanzania Mentors Association (TMA), University of Dar es Salaam (UDSM), and Urban
Institute. This Year 2 Quarter 2 (Y2Q2) report covers the project period of January 1 – March
31, 2017.
In Y2Q2, PS3 continued to deepen its interventions at the national, regional and LGA level in
partnership with the GOT. The Year 2 Quarter 1 (Y2Q1) deployment of regional program
managers and mentors to PS3’s 13 regions contributed to Y2Q2 solidification of the
implementation foundation at the LGA level. This foundation builds relationships with regional
and LGA government and other stakeholders, facilitates rapid acceleration of interventions, and
creates the momentum necessary to deliver the expansive vision of PS3.
During this quarter, PS3 supported the national launch of Tanzania’s first-ever standardized
regional and LGA websites. Attended by all 26 of mainland Tanzania’s regional secretariats and
their respective 185 LGAs, this highly visible event showcased the GOT’s commitment to
promote open government initiatives at the national and local level by allowing LGAs to share
information and documents with citizens and the private sector. The event was officiated by the
Honorable George Simbachawene, Minister of State to the President’s Office – Regional
Administration and Local Government (PORALG), and attended by the Minister for
Information, Culture, Arts and Sports, Honorable Dr. Harrison Mwakyembe and USAID/Tanzania Deputy Mission Director Timothy Donnay.
In his keynote speech, PORALG Minister Simbachawene promoted effective use of the websites
by saying: “regional secretariats and local government authorities must make sure that the right
information is always posted with no delays. We will ensure that people know of the existence
of the websites and that they can send suggestions, questions or complaints through them and
get an immediate response.” The strong commitment of GOT was demonstrated by a cost
share with the government funding participation of non-PS3 regions and LGAs at the regional
training, installation and launch of the websites to ensure that all 26 regions and 185 LGAs
installed their websites.
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This exciting initiative creates a wealth of opportunity to improve GOT internal management
and efficiency by increasing access to data, improving communication both within LGAs and
between LGAs and national/central government, and improving the quality and timeliness of
government reports. Following the successful launch, PS3 will continue to work with the GOT
to expand the use of the websites to promote data use, accountability, transparency, citizen
participation, efficiency, and effectiveness.
Y2Q2 produced significant movement on the shift of health basket funds (HBF) to output-based
payment and direct facility financing. Extensive dialogue occurred between Ministry of Health,
Community Development, Gender, Elderly and Children (MoHCDGEC), PORALG, and
development partners on whether direct facility financing should continue to use existing input-
based payment mechanisms, be a flat rate paid to each facility, or be a formula consisting of a
flat rate per facility adjusted by catchment population (convert to per capita payment), facility
performance and need. Eventually, all stakeholders agreed on the necessity of using a payment
system formula that takes into account need and performance variations across service
providers. In Y2Q2, the payment formula was finalized, payment parameter data collected, preliminary payment amounts for all public facilities calculated, and the process of verifying
payment parameter data initiated such that it appears the new HBF direct facility financing
payment formula will be ready for implementation July 2017.
Also in Y2Q2, substantial work occurred on the facility financial management side as
introduction of a new Facility Financial Accounting and Reporting System (FFARS) rapidly
moved through dialogue, design, development, and approval stages and ready for
implementation in July 2017. PORALG, MoHCDGEC, and Ministry of Education, Science and
Technology (MoEST), and PS3 worked as a team to design and develop FFARS. In addition to
improving current provider payment and facility financial management, both HBF direct facility
financing and FFARS are preconditions or steps on the road to single national health insurance
in Tanzania.
In Y2Q2, PS3 continued to make considerable progress in redesigning the PlanRep system
including design and development of system architecture and substantial progress in
programming the new PlanRep system. Together with the PORALG ICT department and
eGov, PS3 completed the design document which outlines the key improvements to the multi-
sector LGA level planning and budgeting system. This major and critical undertaking builds on
the foundation established in Y2Q1 which defined the programmatic requirements based on
user requirements. The new PlanRep will establish a national, standard, web-based system for
all sectors which extends planning and budgeting to the service provider level. The new system
also defines service outputs allowing service providers to better plan and budget. Once
completed, the new PlanRep will result in substantial multi-sector systems strengthening,
management improvements, and efficiency gains contributing to service delivery improvement.
In addition to the key interventions and achievements described above, in Y2Q2 all PS3
components made progress in systems strengthening interventions at national, regional and
LGA levels. PS3 continued to deliver the LGA councilor training that empowers councilors to
perform their roles and also serves as the PS3 entry point to Phase II LGAs and kicks-off PS3
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citizen engagement and strengthening committee activities. Significant improvements to the
Epicor system were agreed upon between PORALG, SoftTech (licensed vendor for LGA Epicor
accounting system), and PS3 including to extend accounting to service provider level, make
Epicor interoperable with redesigned PlanRep and revenue collection system, and activate asset
management module. PS3 supported training for Phase II LGAs on International Public Sector
Accounting Standards (IPSAS) that built capacity for accounting improvements reducing
qualified audit opinions, set up ongoing LGA financial management mentoring, and identified
inconsistencies between IPSAS and current LGA template for preparation of final accounts that
PS3 will discuss with Ministry of Finance and Planning (MOFP)/Accountant General next
quarter.
To improve staff allocation, distribution and redistribution, in Y2Q2 PS3 continued roll-out of
workload indicators of staffing need (WISN) plus prioritization and optimization analysis (POA)
to Morogoro region. A good meeting with MoHCDGEC/Director of Human Resource
Development addressed some challenges and concluded that a standard WISN plus POA
package should be prepared for dialogue with PORALG and President’s Office--Public Service
Management (POPSM) on improving staff allocation, and also for presentation to all LGAs in the seven regions that have done WISN plus POA to date to enable development of concrete steps
to improve LGA staff requests, distribution and redistribution. In addition, plans were solidified
with POPSM and PORALG for support to LGAs to develop customized retention packages.
In collaboration with USAID Global Health Supply Chain (GHSC) Activity, PS3 deepened
support to results-based financing (RBF) by introduction of RBF system management tools
through a workshop in Mwanza. In addition, dialogue was initiated with MoHCDGEC and
PORALG on extending health information systems to facility level (e.g. basic patient level
clinical dataset) to address a major RBF barrier and also support strengthening and integration
of both health and financial claims management systems. In collaboration with P4H and World
Bank, PS3 facilitated two MOHCDGEC and PORALG workshops on Health Financing Strategy
(HFS) and Single National Health Insurance (SNHI) that increased consensus on how to link
current health purchasing improvements to SNHI, realign health insurance regulation, and
update implementation plans including incorporating inputs from the Actuary Study. USAID
and PS3 also facilitated a Global Fund Resilient and Sustainable System for Health (RSSH) grant
proposal workshop to identify systems barriers, link them to Global Fund operational
objectives, and preliminarily specify grant activities to remove the systems barriers.
In Y2Q1, GOT requested USAID implementing partners to support the implementation of the
country’s Agricultural Sector Development Program (ASDP-2). In Y2Q2, four USAID
collaborating activities (Africa Lead, ASPIRES, ENGINE, and PS3) agreed with GOT on a
strategy to use ASDP-2 as a vehicle to support and leverage both program implementation and
improving public-private sector dialogue in the agriculture sector. Detailed plans, agenda,
schedules, logistics, and budget were developed to conduct regional ASDP-2 implementation
and capacity building workshops starting in April 2017 for high-level LGA officials who in turn
would support LGA implementation of ASDP-2.
In Y2Q2, development of two OR studies continued to progress—intergovernmental fiscal
transfers and complaints management. A revised M&E plan that updated indicators was
approved by USAID. Refinements were made to M&E data collection and entry systems, and
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Phase II LGA baseline data collection initiated. PS3 also developed a gender assessment/auditing
tool that will be used in the 26 Phase I LGAs to determine the extent to and manner by which
public sector systems support gender integration in the relevant sector policies and service
delivery. PS3 also launched an internal website called “Jamvi” that enables project
communication, working document and reference material storage, and management efficiency
gains.
PS3 challenges in Y2Q2 largely related to managing the explosive growth resulting from a
combination of establishment of the regional and LGA operational foundation and rapid
acceleration of program interventions. These challenges relate to ensuring communication with
GOT and within PS3, and strengthening project systems and operations to both improve
management and obtain efficiency gains. PS3 continuously assesses and improves its
management and Y2Q2 was no exception including an all staff review of technical interventions
and management, a focus on improving GOT and internal PS3 communication, and
implementation of enhanced systems to improve management efficiency and effectiveness. The
remaining sections of this Quarterly Report further describe the project’s progress during its
second quarter of Year 2 implementation.
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0
50
100
150
200
250
300
187 147
213
262
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RegionsFigure 1: Number of Councilors trained per region
1. GOVERNANCE AND CITIZEN ENGAGEMENT
1.1 Citizen Engagement and Strengthening Committee Functioning
1.1.1 Capacity Building for Councilors
PS3 continued Local Government Authority (LGA) councilor training as the entry point into
Phase II LGAs. Based on Government of Tanzania (GOT) request, this capacity building
empowers councilors to perform their roles, establishes PS3 relationships with LGAs, and
serves as the kick-off of citizen engagement and strengthening committee functioning
interventions. The objectives of training councilors are to empower them to: 1) support
structures, systems and processes which promote better service delivery to citizens; and 2) act
as a link between citizens and their government thus transparently increasing citizen
participation in their own development and accountability of government and citizens to one
another.
In Y2Q2, the LGA councilor training was conducted in Mara, Kigoma, Kagera, Dodoma,
Morogoro, Iringa and Njombe regions. A total of 990 councilors were trained during the
quarter as shown in Figure 1.
To sensitize councilors on the presence
and use of the recently launched LGA
websites, the training will be adapted to
include a session introducing councilors
to the functioning of the website
including sharing information with citizens
as further described below.
Next quarter activities:
Complete LGA councilor training for the six remaining regions of
Iringa, Njombe, Mbeya, Rukwa,
Lindi and Mtwara
Consolidate experience and lessons learned from LGA councilor training and
incorporate into ongoing citizen engagement and strengthening committee functioning
interventions
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1.1.2 Sharing Information with Citizens
PS3 supports GOT to make public services more responsive to citizens by strengthening a
three-step cycle: 1) better informing citizens; 2) receiving input from citizens; and 3) feeding
citizen input back into improving systems, plans and services. One purpose of the Government
Website Framework (GWF) and its Regional Secretariat (RS)/LGA websites is to share
information with citizens. It will augment other traditional ways to inform citizens including the
use of public notice boards and community radio.
In Y2Q2, the governance team participated and presented in regional RS/LGA website
installation, training and launches further described in the Information Systems Section. PS3
engaged with participants to inform and promote the benefits of open government and sharing
information with citizens. These events also initiated planning on subsequent sequencing or
next steps in working with LGAs to determine which information to share with citizens,
uploading of these documents to the LGA websites, and developing mechanisms to maintain
and sustain this process.
During the national GWF and RS/LGA launch, Information Minister, Dr. Harrison Mwakyembe,
said his Ministry has already started working with information officers to measure information
outputs, and the new website will be one of the primary indicators. He stated “[we] will make
sure that the websites are full of information, in the sense of providing the right information to
citizens.”
Minister for Information, Culture, Arts and Sports, Hon. Dr. Harrison Mwakyembe, delivers his remarks at the national
launch of Regional and LGA websites in Dodoma.
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Open government, including sharing information with citizens and its corresponding behavior
change, is sensitive to a variety of stakeholders. In Y2Q2, PS3 continued to work with
stakeholders at the regional/LGA level to increase understanding of the benefits and potential
ramifications, as well as promote ownership of the process. Following dialogue with PORALG
and internal strategy meetings taking into account the Minister of Information directive, PS3
selected a next step of supporting LGA Information Officers to develop a process to manage
uploading documents to the new LGA websites. By using a bottom-up management process,
PS3 will support the empowerment of information officers whose job it is to inform citizens,
consistent with open government initiatives, and will result in greater ownership,
institutionalization and sustainability.
PS3 support to LGAs and their information officers to develop a process to manage uploading
documents to the LGA website will help to fully maximize the use of the LGA websites to
share information with citizens by taking into account the following factors or elements:
Determine how to categorize or classify types of documents
Determine what audiences to inform
Collect information that departments want to upload
Maintain a record or tracker of documents want to upload and actually uploaded (could
actually be built into LGA website internal portal or management databases)
Bringing to agenda of Council Management Team (CMT) for notification or approval
Actual document upload
Maintenance of website including deleting obsolete documents
Supporting LGA Information Officers to develop this management process for uploading
documents will be an activity added after the conclusion of the remaining LGA Councilor
Trainings starting with Rukwa and Mbeya in May. A team including national staff, Regional Program Managers (RPMs), and governance mentors will visit the first LGA together to test
whether the strategy of establishing a management process for uploading documents to the
website is viable and accepted by the LGA Information Officers.
Next quarter activities
Work with LGAs and Information Officers to develop a management process for
uploading documents to share information with citizens
Refine, solidify and begin to extend the management process to other LGAs and their Information Officers
1.1.2 Citizen feedback and GOT response The two other prongs of the PS3 three-step cycle to strengthen citizen engagement and
responsiveness of GOT public services are receiving input from citizens and feeding citizen
input back into strengthening systems, plans and services. In Y2Q2, PS3 continued dialogue
with a variety of stakeholders to further develop and precisely specify interventions to
strengthen government and citizen engagement and roles and relationships in the context of
improving service delivery. To date, a strong POPSM focus in this program area has been
strengthening complaints handling mechanisms. While very specific, it is possible to perceive
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complaints handling as a proxy for broader government and citizen engagement related to
improving service delivery.
PS3 governance component complaints handling intervention will build on the OR study
described in the section below. Two findings of the OR study relevant to development of
governance component activities are: 1) the current complaints handling mechanism is not
working; and 2) it is very hard to improve complaints handling by focusing only at the LGA level
such that mechanisms need to be extended to lower local government and service delivery
levels. Building on the OR study and ongoing dialogue, in Y2Q2, PS3 concluded the following
related to next steps in supporting GOT to improve complaints handling:
POPSM has developed a new complaints handling guideline and PS3 will support its dissemination and implementation at LGA level
While the guideline is necessary, it is not sufficient to improve complaints handling.
Therefore PS3 will support POPSM and PORALG in deeper systems strengthening
in a few selected Phase I LGAs, including at the lower local government and service
delivery levels. While decisions will be finalized next quarter with POPSM and
PORALG, PS3 will propose LGAs in Lindi as not many activities have been initiated
there, Kigoma due to membership in Open Government Partnership, and Shinyanga
to link with RBF and the complaints mobile application.
The entry or pressure point will be more on the GOT communication and response side than the increasing citizen complaints and suggestions side due to the nature of
PS3 and its support to GOT to strengthen systems, and the hypothesis that
increased responsiveness will lead to more citizen feedback as the population begins
to trust that government will respond.
Next quarter activities
Dialogue with POPSM and PORALG to finalize LGA complaints handling intervention
plans and activities
Initiate complaints handling management and systems strengthening activities in selected LGAs
1.1.3 Strengthen LGA Committee Functioning
To kick-off strengthening LGA committee functioning interventions, the Phase II LGA councilor
training continues to disseminate the generic councilor action plan and inform councilors on
their roles related to the functioning of committees. During the training, councilors have
committed to develop their own action plan including a record or inventory of their activities
enabling them to target their efforts more efficiently and effectively, and document their results
and contributions to improving service delivery.
In Y2Q2, PS3 continued preparatory activities to enable deepening strengthening committee
functioning after the completion of Phase II LGA councilor training. The Governance team
developed a benchmarking tool with a data source tool to support its effective use. It’s
application is intended to identify and document performance gaps and gradual remedial actions.
It will enable PS3 mentors and committees to work together to support committees in
improving their performance and also to measure these committee performance
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improvements. This benchmarking tool is being reviewed by the USAID governance team, and
PS3 is engaging in dialogue with PORALG to seek their input, approval and support for this
intervention.
At the lower local government (LLG) level, the conduct of the various committees is governed
by guidelines issued by PORALG and the sector ministries. However, a number of challenges
have been identified. In some villages and mitaa the statutory meetings are not held or when
they are held they are not properly conducted as per the guidelines. Some village governments
have no by-laws to guide and enforce the conduct of their statutory meetings or if bylaws exist
they are outdated or not followed. Similarly, service provider or facility governing committees
have not been reconstituted or have overstayed their terms, are not meeting, or are not well
versed on their roles and functions. In Y2Q2, drafting of a LLG standard by-law template was
initiated. This LLG bylaw template will be approved by PORALG to ensure standardization and
consistency with national law, and then completed by each LGA to be consistent with their
local environment and needs.
Also during the quarter, at forums including LGA councilor training and mentor visits, the
governance mentors continued to identify gaps related to higher local government (HLG) and
LLG committee functioning and committee member capacity. Examples include the procedural
Councilors from Phase II LGAs in Morogoro during a training session aimed at empowering them to perform their roles.
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rules for HLG Full Council and Standing Committees are not fully adhered to by some LGAs;
some LGAs just copied the model PORALG Standing Orders without adjusting to their local
environment; and some LGAs prepared Standing Orders that deviate from legislation such as
the Procurement Act and its regulations.
PS3 continues to engage in dialogue and develop mechanisms to address the serious shortage of
reference materials for HLG and LLG committees (e.g. bylaws, standing orders, national and
local strategies and plans, program guidelines). It is expected that uploading information to
RS/LGA websites will improve committee access to information. Reinstatement of LGA ward
level libraries or improvements in records management are also being considered to improve
access to information for HLG and LLGA committees.
Next quarter activities
Continue development of strategies and preparation for deepening strengthening
committee functioning activities after completion of LGA councilor training
Finalize the benchmarking tool, receive PORALG approval of it, orient mentors on
benchmarking and data source tools, develop detailed operational plans with PORALG
and LGAs, and begin implementation to support improving committee performance and
functioning
Complete drafting of LLG standard by-law template and receive PORALG approval
During LGA councilor training and mentor visits, continue to identify specific committee
functioning and committee member capacity gaps and incorporate into plans to
strengthen committee functioning
Link to RS/LGA website document uploading and other mechanisms to increase access to information and reference materials at HLG and LLG committees
1.2 Strengthening PFM Systems
1.2.1 IPSAS Introduction and Capacity Building In Y2Q2, PS3 supported training for Phase II LGAs on International Public Sector Accounting
Standards (IPSAS), corporate reporting, and other LGA financial reporting statutory
frameworks. This training extended to Phase II LGAs the Y1Q4 training for 26 Phase I LGA
treasurers, internal auditors and accountants in final accounts section. The training was
designed to practically address key issues and overcome financial reporting problems that
resulted in qualifications in the report of the Controller and Auditor General (CAG).
Participants who are members of the profession were awarded a Certificate of Participation
with 16 Continued Professional Education (CPE ) hours recognized by the National Board of
Accountants and Auditors (NBAA).
A total of 214 participants including199 LGAs staff and 15 PS3 staff were trained as shown in
Table 1 below. Topics covered by the training included introduction to IPSAS; analysis of the
CAG report; preparation and maintenance of fixed assets register; preparation of credible
financial statements; cash flow statement; presentation of budgetary information in financial
statements; revenue from non-exchange transactions (taxes and transfers); and accounting for
employee benefits. The training also included an emphasis on identifying a team of IPSAS
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champions through methodology including assessment through group assignment and a closed
end of training examination. Positions of champions have to be consistent with further
introduction of IPSAS and improvement of LGA financial management and include treasurers,
accountants, and internal auditors.
Table 1: Participants in IPSAS and Corporate Reporting Training
Group Centre Dates Regions Participants
1. Kigoma 13 – 17 Feb. 2017 Kigoma, Kagera and Rukwa 44
2. Mbeya 20 – 24 Feb. 2017 Mbeya, Iringa and Njombe 36
3. Mwanza 6 – 10 Mar. 2017 Mwanza, Shinyanga and Mara 49
4. Morogoro 13 – 17 Mar. 2017 Morogoro, Dodoma, Lindi and Mtwara 70
5 PS3 Staff 15
TOTAL 214
During the course of training, some items in the IPSAS Template that is used by LGAs were
found to be contrary to the requirements of IPSAS, including the following:
Recognition of Government Grants (both recurrent and development) which under the
LGA IPSAS Template are recognized as revenue only when used and the balance is
treated as a liability in the Statement of Financial Position. This concept is different
from the principle of IPSAS 23 – Revenue from Non-exchange Transactions that insist
on conditions and restrictions as the basis of revenue recognition. The Template treats
all grants as if they are attached with conditions
The Template presents Development Grants on the Financing part of the Cash Flow Statement. This is contrary to IPSAS 2 – Cash Flow Statement that defines financing
activities as activities that result in changes in the size and composition of the
contributed capital and borrowings of the entity. Looking at the definition of financing
activities, development grants do not fit in the definition of financing activities
Recognition of Investment in Local Government Loans Board presented as Other
Financial Assets in the Statement of Financial Position do not meet the recognition
criteria for assets under IPSAS
Minimum Compulsory Reserve Fund is not accounted for as required in the Local Authorities Accounting Manual (2009)
Non-revaluation of assets as the basis of qualification of the accounts requires a closer
look by the CAG, as many LGAs are not able to undertake revaluation exercise due to
high cost involved. The IPSAS Framework admits that cost is a pervasive constraint and
requires preparers, users, as well as standard setters should be aware of this constraint.
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Booking the Government on the receivable part of the Statement of Financial Position
is inconsistent with IPSAS 23 – Revenue from Non-exchange Transactions which states
that, “An announcement of an intention to transfer resources to a public sector entity
is not of itself sufficient to identify resources as controlled by a recipient.” Almost all LGAs have huge balances of receivables derived from the government intention to pay
employee related liabilities, which have started to attract audit queries about inability to
collect amounts due
Step by step consolidation of village/mitaa, schools, health facilities and other LGA’s
controlled entities. Almost all LGAs are incapable of performing the consolidation
exercise, and the CAG has started raising audit queries on presentation of
unconsolidated financial statements. It is important to note that addressing this issue
will be supported by a package of PS3 interventions intended to create a new
intersection between Public Finance Management (PFM) systems and sector service
payment systems, including service provider codes in Epicor as well as improving facility
financial management.
Next quarter activities
Participants hold group discussions during an IPSAS training in Morogoro.
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Dialogue with Ministry of Finance and Planning (MOFP)/Accountant General, PORALG
and other stakeholders on revising LGA Template for preparation of final accounts to
comply with current IPSAS, and addressing other issues identified in the IPSAS training
Liaise with Ardhi University to facilitate land valuation for LGAs
Develop and implement plans to convert PS3 and GOT operating modality from training
to LGA level mentoring and systems strengthening. This activity will include working
together with IPSAS champions to improve financial management and reduce qualified
audit opinions in their regions and LGAs
1.2.2 Strengthening LGA Financial Management Systems by Improving Function and Use of Epicor
One of the underlying challenges to full automation of financial management in LGAs is the
inability to obtain a final financial account report using Epicor. Epicor is an accounting and
integrated financial management system used by LGAs in Tanzania. Currently, Epicor 9 used by
over 130 LGAs is not configured to use the asset management module hence LGAs have to use
other mechanisms to compile the final financial account reports which is the source of errors
and qualified audit reports.
In addition to activating the asset management module and addressing the issues with obtaining
final financial account reports, strengthening LGA Epicor accounting system and increasing its
interoperability with PlanRep and the Local Government Revenue Collection Information
System (LGRCIS) is vital to improving LGA financial management, increasing transparency and
accountability, and creating a new intersection of PFM and sector service payment systems.
Thus strengthening Epicor also requires addition of service provider codes or chart of accounts
to extend accounting to the service provider level, and programming to make Epicor
interoperable with PlanRep and LGRCIS.
In Y2Q2, PS3 governance, information systems and finance component teams continued
dialogue with PORALG on strengthening Epicor and this dialogue was expanded to include the
vendor responsible for the development and maintenance of Epicor namely SoftTech Tanzania
Limited. Terms of Reference (TORs) were developed for SoftTech to program system
upgrades and reports, develop user manuals and train PORALG core team on Epicor
improvements and interoperability with PlanRep and Epicor. These TORs were documented in a letter from PORALG to PS3. PS3 subsequently began negotiations with SoftTech for a fixed
price agreement to perform the TORs and produce the following deliverables:
Activation of asset management module
Extension of Epicor to service providers
Interoperability of Epicor with PlanRep
Interoperability of Epicor with LGRCIS
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Next quarter activities:
Support SoftTech and PORALG to develop Epicor upgrades for asset management,
service provider codes, and PlanRep and LGRCIS interoperability
Begin implementation of asset management module with SoftTech and PORALG
Prepare for implementation of Epicor service provider codes and interoperability linked
to PlanRep redesign introduction in July 2017
Support the rollout of Epicor 10 to 52 new LGAs who currently do not have the system
1.2.3 Strengthening Internal Controls at LGA Level
In Y2Q2, the results of a meeting held between PS3 and Internal Auditor General (IAG)
management was agreement to jointly initiate activities aimed at strengthening internal controls
in LGAs including the following:
Stakeholder meeting to review the composition of audit committee members in the LGAs
Automation of internal audit processes in the LGAs
Next quarter activities
Work with IAG technical team to develop plans for strengthening internal control initiatives
Engage in dialogue with the Public Procurement Regulatory Authority (PPRA) on issues
related to procurement using funds in facility bank accounts including thresholds
stipulated by guidelines and link procurement to the Facility Financial Accounting and
Reporting System (FFARS) implementation
Participate in implementation of FFARS
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2. HUMAN RESOURCES
2.1 Strengthen HR Planning and Distribution
2.1.1 Workload Indicators of Staffing Need (WISN) plus Prioritization and Optimization Analysis (POA) in the health sector
Scale up of WISN/POA
In Y2Q2, PS3 supported MOHCDGEC to conduct a WISN training for Morogoro health sector
staff. The training involved District Medical Officers, District Health Secretaries, District Health
Information System (DHIS) focal persons and District Human Resource Officers. A total of 36
participants (4 participants from each of the 9 LGAs in Morogoro region) were trained on
WISN software and its application. The training was followed by WISN data collection in all
Morogoro LGAs, where all public health facilities (health centers and dispensaries) were visited
for data collection. The data collection exercise was followed by data entry and analysis in
order to determine facility and staff workload, as well as HR requirements based on workload.
Preparation of the WISN plus POA results dissemination package
PS3 in collaboration with Touch Foundation continued to dialogue with GOT particularly
MoHCDGEC on approval and adoption of WISN plus POA methodology and its
implementation at both national and LGA levels. Some challenges had arisen with MoHCDGEC
related to defining the respective roles and relationships of WISN and POA. To address these
challenges, on March 24, 2017, PS3 met with MoHCDGEC/Director of Human Resource
Development. A very positive meeting culminated in consensus on a number of key principles
and next steps for our joint work including:
WISN plus POA reports should lead to action and implementation of improvements
Engaging PORALG to extend WISN plus POA to LGA level is a priority including dialogue and implementation of improvements in staff distribution and redistribution to
the service provider level
Agreement to develop a standard package for dissemination of WISN plus POA reports,
analysis and results to the regions and LGAs
Following development of the standard package, a MoHCDGEC, PORALG, POPSM, PS3, and Touch Foundation meeting would be convened for ongoing dialogue and also
development of next steps to both incorporate POA methodology into POPSM permit
allocation, and to initiate activities to improve staff distribution and redistribution at
LGA level
Agreement that the timing of roll-out of WISN plus POA training, data collection,
analysis and report development to other regions would be postponed until the
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standard package for dissemination of WISN plus POA is developed for the first seven
regions. Then visit the seven regions/LGAs to present, discuss, and initiate staff
distribution and redistribution activities would proceed in parallel with continued roll-
out of WISN plus POA to other regions
Based on these consensus points, a taskforce was formed to design WISN plus POA dissemination standard package.
Next quarter activities:
Taskforce works to develop standard WISN plus POA package format and the creates
standard package for the seven regions that have collected WISN data to date: Mwanza,
Mbeya, Morogoro, Iringa, Tanga, Mara and Dodoma
Develop detailed plans and schedule for joint MoHCDGEC, PORALG, PS3 and Touch Foundation team visits to LGAs to disseminate WISN plus POA results and plan staff
request, distribution, and redistribution activities
MoHCDGEC, PORALG, POPSM, PS3, Touch Foundation meeting for dialogue and
development of a process to incorporate POA methodology into POPSM permit
allocation
2.1.2 POA in other sectors While not a high priority PS3 intervention in Y2Q2, dialogue and exploration continued or was
initiated in the education and agriculture sectors. In the education sector, PS3 started to
explore development of a simple POA model based largely on pupil-to-teacher ratio. In
addition, PS3 discovered that PORALG has an education staff allocation system and we will
discuss with PORALG next quarter to determine its parameters and operation. In the
agriculture sector, the HR assessment (see HR Knowledge Generation and Advocacy section
below) is unearthing information that could be applicable to developing POA model for the
agriculture public sector.
Next quarter activities:
Meet PORALG to determine the nature, parameters and operation of their education
staff allocation system. Based on the results of this meeting, continue development of
education sector POA model, parameters and methodology.
Based on HR assessment report findings, begin to explore development of agriculture
public sector POA model
Strengthen HR Retention
2.1.3 Strengthen LGA New Staff Orientation The retention of newly recruited workers posted in LGAs is a big challenge that must be
addressed using a multi-faceted approach. In Year 1, a joint PORALG and PS3 assessment
conducted in 15 LGAs revealed that most LGAs are not conducting orientation to newly
recruited staff. In addition, for those LGAs conducting an orientation, there is no uniformity in
how the orientations are conducted. Lack of an orientation manual for newly recruited staff
was identified as one of the factors affecting retention of newly recruited staff because they are
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not aware of their rights and responsibilities, professional ethics, laws and regulations guiding
public service but also they lack knowledge and mechanisms enabling them to cope with the
new work environment. These factors can all contribute to poor performance, attraction and
retention of new staff posted in LGAs.
To minimize retention challenges and to improve service delivery in LGAs, the PORALG
Permanent Secretary appointed a taskforce from different ministries, regions and LGAs to
develop a new staff orientation manual. The taskforce developed the first draft in September
2016. This draft was shared with stakeholders for review and comments. A second taskforce
workshop was held in December 2016 where the comments from stakeholders were
presented, discussed, and incorporated into the new staff orientation manual. In addition, a 2-
day stakeholders meeting was held December 15-16 which included staff from ministry, region,
LGAs, ward and village level to collect views from lower government levels and incorporate
them into the second draft orientation manual.
In Y2Q2, the draft orientation manual was submitted to PORALG senior management. The
next steps in the process are the manual will be discussed in PORALG management meeting,
then finalized, and then signed by the Permanent Secretary. From there will be launched and begin to be used by LGAs to orient new staff. This process was expected to occur in Y2Q2,
PS3 is following up, and it is now expected to occur in Y2Q3.
Next quarter activities:
After PORALG approval of the orientation manual by PORALG, print, launch, and build
capacity of LGAs in using the manual
Mentor LGAs in using manual to orient new staff
2.1.4 Strengthen monetary and non-monetary incentives for retention
In Y2Q2, PS3 intensified dialogue with GOT on development of concrete and practical steps to
implement national pay and incentive policy and improve staff retention at LGA level. PS3
supported a workshop with representatives of POPSM and PORALG to discuss how to
improve retention through monetary and non-monetary incentives. Workshop discussion
resulted in the following findings and conclusions:
Realization that a key challenge is addressing the dilemma of providing annual sectoral
planning priorities to the LGAs from the central level while also recognizing the
importance of supporting LGAs to implement local retention schemes consistent with the local environment.
GOT and development partners have invested in research and knowledge generation on
retention and incentives, but a multitude of implementation challenges exist including
resource availability.
Local retention packages should address all factors influencing retention including
monetary, non-monetary, leadership, and management capacity and planning
Improving management efficiency by the LGAs is a key retention strategy.
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There exists opportunities for funding for the LGAs local retention schemes from
different sources. At times LGAs don’t utilize all their funds and could invest in local
retention schemes. Capacity building to the LGAs on effective ways of mobilizing
resources from various local sources including community engagement and effective inclusion of LGAs stakeholders could be a strategy to assist LGAs in implementing local
retention schemes.
Orientation of newly elected LGA councilors/leaders should be considered as it has
been a factor that contributes to LGA challenges in implementing local retention
schemes (ownership of retention schemes, prioritizing retention schemes, and
accountability and oversight for the implementation of retention schemes).
Exit interviews could inform retention packages and should be formalized with an oversight mechanism to make use of analyzed exit interview reports.
Existing systems and formal mechanisms should be used to follow-up on the HR
directives issued to LGAs and actions taken to address HR challenges (e.g. inter-
ministerial task force).
The workshop and follow-up consultation reinforced the importance of bottom-up
implementation of customized LGA retention packages. In 2011, POPSM facilitated
development of monetary and non-monetary incentive strategies in 33 LGAs. In Y2Q2,
POPSM, PORALG and PS3 agreed that determination of the status of local retention strategies and packages in these 33 LGAs together with provision of additional technical assistance would
be a good first implementation step. This step would further support development of
customized retention packages in these LGAs, and also obtain experience and lessons learned
that could be extended to other LGAs to expand the development of LGA customized
retention packages.
Next quarter activities:
POPSM, PORALG, and PS3 develop concrete plans and operating modalities to support
customized LGA retention packages beginning in the 33 LGAs
Begin implementation at LGA level
2.2 HR Efficiency, Productivity and Performance Management
2.2.1 Strengthen HR performance management including OPRAS Based on agreement reached at the December 2016 OPRAS meeting between POPSM,
PORALG, Public Service Commission (PSC) and PS3, in February 2017 a fact finding mission
was undertaken to confirm conclusions drawn in earlier dialogue and ascertain the most
suitable plans for improving OPRAS including the first concrete implementation step. The 2-
week fact finding mission involved POPSM, PORALG, PSC, LGTI, and PS3. The two regions of
Dodoma and Iringa were selected for the mission. Two LGAs from each region were selected, Kilolo DC and Iringa DC from Iringa region and Chemba DC and Bahi DC from Dodoma
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region. A draft report has been developed by the mission team, it will be edited and finalized,
and in parallel it will be used by the GOT and PS3 team to continue dialogue and development
of plans to improve OPRAS. The fact finding mission included:
Interviews with select officials at various levels in local government administrative structure including ministry, region, district, LGA, ward, villages
Documentary reviews including personnel records and institutional planning reference
documents
Focused group discussions
Data collection
A sample of findings from data on completion of OPRAS forms in the two LGAs of Bahi DC
and Chemba DC from 2014/15 to 2016/17 in shown in Table 2. Completion of OPRAS cycle is
poor meaning that the main HR performance management system in Tanzania is not
functioning. Also disconcerting is that the general trend shows compliance to OPRAS
decreases from year to year.
PS staff meet with ward level staff in Chemba DC, during the HR OPRAS activity
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Table 2: Status of Completing OPRAS Forms
Year Setting Targets
(Filled %)
Mid-year Reviews
(Filled %)
Annual Evaluations
(Filled %)
2014/15 34.5% 20% 6%
2015/16 24% 20% 0%
2016/17 20% 17% 0%
Source: Bahi DC and Chemba DC HQs
The fact finding mission revealed a wide range of issues contributing to OPRAS challenges,
some were known and some not identified to date. The issues identified were classified into
four categories as follows:
Policy: in general and including the absence of effective compliance mechanisms at LGA
level
Systemic: including issues within OPRAS system and the management structure and
processes surrounding it
Institutional: including inadequate capacity, resources and technical requirements
Culture: including communication, perceptions, and attitudes surrounding OPRAS and staff appraisal in general
The team review personnel files of LGA staff during the OPRAS fact finding visit at Bahi DC.
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From the findings, and supported with analysis to determine precise interpretations and
conclusions, in line with the terms of reference for the mission recommendations for improving
and realigning OPRAS towards enhanced efficiency and effectiveness were developed.
Proposals for the way forward through deliberate and concrete measures including changes in
systems, management, oversight at all levels have been outlined in the report.
Next quarter activities:
Consultative meeting planned for April 2017 will bring together POPSM, PORALG, PSC, LGTI, and PS3 leadership and technical staff to discuss report recommendations and
plan a way forward in OPRAS strengthening.
Finalize editing and distribution of the fact finding mission report
Develop an action plan for implementation of proposed strategies for OPRAS strengthening in LGAs
2.2.2 Improve HR Personnel Records Management In Y2Q2, PS3 engaged in internal brainstorming on how to respond to GOT proposals for
broad records management improvement requiring significant infrastructure investment. This
investment is unaffordable for PS3 and arguably not the best approach to realize the envisioned
shift from manual to automated records management. PS3 discussed its suggestion for small,
incremental and bottom-up personnel records management strengthening including automation,
efficiency gains and linkages to other HR management improvements (e.g. OPRAS, use of
websites to automate and improve LGA HR management, longer-term improvements in
Lawson system) in a consultative meeting with PORALG and POPSM/Records and Archives
Management Department (PORAMD) on March 28, 2017.
Deliberations resulted in agreement to start with small, bottom-up and manageable
improvements in personnel records management. Specifically to select 13 LGAs for a team of
PORALG, PORAMD, LGA Council Management Team (CMT) and HR Officer, and PS3 HR
mentors to work together in LGAs to improve and begin to automate HR personnel records
management through on site awareness creation and practical on the job training for LGA
CMT, HR officers, and records personnel.
Next quarter activities:
Develop detailed plans with PORALG and PORAMD for bottom-up LGA personnel
records management intervention including selection of LGAs; meetings or awareness
training on the basics of records management for PORALG, PORAMD and PS3 HR
mentors; development of detailed LGA level records management improvement process
including link to step-by-step automation of HR personnel records and improved LGA
HR management
First visit to 13 LGAs to identify personnel records management challenges, immediately start to address them, and develop plan of action with LGAs
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2.3 HR Knowledge Generation and Advocacy In Y2Q2, PS3 continued the HR assessment in education, agriculture, and water sectors.
Between February and March, a joint PORALG, POPSM, MOEST, Tanzania Institute of
Education (TIE), Tanzania Education Authority (TEA), Ministry of Agriculture, Livestock and
Fisheries (MALF) and PS3 team collected and analyzed data in 13 Phase I LGAs. Report writing
was initiated and the report will be finalized next quarter. The HR assessment objectives are as
follows:
Determine factors that influence workforce distribution patterns in the three sectors in
order to inform redistribution plans
Track workforce and HR recruitment trends from 2012/2013 to 2015/2016 against permit requests from LGAs
Establish HR retention and attrition trends in the three sectors from 2012/2013 to
2015/2016 including identifying factors that influence retention and attrition
Identify existing workforce bottlenecks and gaps in HR interventions that address recruitment, deployment, and retention and recommend systems strengthening plans
and interventions
In Y2Q2, PS3 conducted a desk review to further elaborate the issues raised during the
stakeholder meeting held last quarter. Messages are being developed for advocacy on GOT
and PS3 HR interventions at the LGA level and HR challenges such as shortages across sectors.
Also in Y2Q2, PS3 developed an HR fact sheet to support USAID in enhancing their HR
advocacy efforts. The intent is to incorporate additional facts into a variety of mechanisms or
opportunities for dialogue with GOT particularly related to the impact of the hiring freeze.
An example from the HR fact sheet is that more than 1,000 medical doctors are produced
annually but GOT lacks the capacity to absorb the doctors produced into the public health
system. In 2012, MoHCDGEC was only able to absorb 55% of the doctors produced, followed
by 18% in 2013 and 25% in 2014. In fiscal years 2015/16 and 2016/17, no recruitment happened
except that 51 health workers were recruited for the new Mloganzila hospital opened in Kibaha district in Pwani region.
Next quarter activities
Finalize HR assessment report and use the findings and recommendations to inform
GOT and PS3 HR interventions
Finalize development of HR materials to inform LGA committees and central level about
key cross-sectoral HR challenges
Conduct targeted LGA level advocacy related to POA, customized retention packages, improving OPRAS, and other GOT and PS3 priorities
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3. FINANCE
3.1 Single National Health Insurance (SNHI)
3.1.1 Health Financing Strategy (HFS) and SNHI Architecture In February 2017, PS3 supported MoHCDGEC to address HFS cabinet paper comments that
came from the cabinet secretariat. This technical assistance contributed to the long and
extensive process gradually moving towards HFS approval. After approval of HFS, a SNHI
cabinet paper will be submitted for approval and this will enable drafting and approval of the
SNHI Act.
In Y2Q2, PS3 participated in and facilitated two HFS and SNHI workshops. On March 3rd, the
World Bank hosted a meeting/workshop with representatives from MoHCDGEC (Policy and
Planning and Quality Departments), World Bank, Providing for Health (P4H), and USAID/PS3.
The meeting objectives were as follows:
To review, share experiences, and discuss health insurance regulation and accreditation of health facilities
To synthesize actuarial study and its implications for HFS and SNHI
To assess and update HFS and its implementation plans especially pooling and purchasing
arrangements
Tanzania already has a regulation system in place for public and private health insurance. The
Social Security Regulatory Authority (SSRA) regulates and supervises the provision of social
security including pension and health insurance. The Tanzania Insurance Regulatory Authority
(TIRA) regulates private insurers. Following discussions, the workshop participants concluded
that health insurance regulation and facility accreditation are different topics or program
functions requiring different approaches and institutional arrangements. Workshop participants
also concluded that current institutional roles in health insurance regulation should be
appropriate for SNHI, although a more detailed functional specification would support
definition and realization of the appropriate roles and relationships. Actuarial study and
HFS/SNHI implementation plans were also discussed and it was agreed that a more detailed
workshop would be held later in March.
On March 21-22 2017, a workshop entitled “Deepening Implementation Planning for Single
National Health Insurance” was held including participants from MoHCDGEC, National Health
Insurance Fund (NHIF), PORALG, SSRA, TIRA, P4H, and PS3. The workshop objectives were
1) incorporate Actuary Study into SNHI planning; and 2) review, update and deepen HFS/SNHI
implementation plan including determining how current health purchasing/payment systems can
be improved and better linked to create synergies on the road to SNHI and universal health
coverage. The workshop produced three outputs: 1) a discussion paper entitled MoHCDGEC
Response to Actuary Study; 2) SNHI Step-by-Step Implementation Approach; and 3) updated
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HFS/SNHI Implementation Plan. The MoHCDGEC is performing additional internal review of
these draft papers or plans before distributing and following-up on recommendations or
implementation steps.
Substantial dialogue occurred in the workshop related to reducing or mitigating fragmentation
in revenue streams. Fragmentation in revenue sources and funds flow streams is currently very
severe in Tanzania. It extends from the top or central level to the bottom or health facility
level of the system. SNHI envisions pooling these revenue sources and funds flow streams into
the health purchaser in order to fund the same minimum benefit package (MBP) entitlement for
all Tanzanian citizens. However, moving from more to less fragmentation is very hard to do
and will take time accomplish, including PFM realignment. Establishment of a unified purchasing
framework, including provider payment systems with similar or complementary incentives
rather than fragmented or conflicting incentives, can help mitigate fragmentation in the short-
term and enable increased pooling of funds for SNHI in the longer-term. In other words, in the
short-term health purchasing improvements can be used to mitigate severe pooling and
fragmentation problems.
The three charts below show how a unified purchasing framework, including provider payment systems with similar or complementary incentives, can begin to realign and mitigate
fragmentation:
The first chart shows the current fragmented health pooling and purchasing
arrangements. It visually portrays the funds flow mess with its conflicting incentives at
the health facility level
The second chart shows the aligned pooling and purchasing arrangements envisioned in
SNHI with the vast majority of direct costs of patient care or non-salary costs flowing through the health purchaser to providers with unified payment systems purchasing
MBP services for the population
The third chart shows how the planned changes in HBF and improved Community
Health Fund (iCHF) payment formulas link to each other and begin to create a unified
purchasing framework with similar incentives for health facilities complemented by RBF
and its direct incentives stimulating performance. In other words, planned HBF and
iCHF improvements linked to RBF are a unified purchasing framework and can move
towards SNHI and purchasing of MBP services for all Tanzanian citizens
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Discussion and conclusions from the workshop included the following:
The Actuarial Study shows that SNHI is viable but identifies and reinforces that
implementation assumptions, analysis, decisions, mechanisms, and sequencing will be critical to the success and sustainability of SNHI, such that further analysis and
implementation planning should accelerate and deepen immediately
Ensuring consistency and linkages between HBF shift to output-based payment and
direct facility financing, iCHF, and RBF including their provider payment systems or
formulas can contribute to both the success of these individual programs and
development of linkages and a step-by-step approach to establishing SNHI strategic
purchasing
The HBF shift to output-based payment and direct facility financing can serve as the
foundation for SNHI financing, purchasing and payment
Current general revenue other charges (OC) could be converted to output-based
payment to fund the MBP for the poor in the early stages of SNHI as the current fiscal
situation in Tanzania necessitates gradual increases in general revenue contributions
over time
Good dialogue concerning the role of NHIF led to the conclusion that it is time to begin supporting organizational development to transform NHIF into its planned SNHI health
purchaser role, refine provider payment systems including shift to more budget-neutral
formula-based systems, and strengthen information, operating, and claims management
systems
Confirmation that a functional review or specification of health insurance regulation is
necessary, particularly given that it is unclear whether SSRA can regulate public general
revenue funds allocated from the Ministry of Finance and Planning to NHIF as SNHI
purchaser
Next quarter activities:
Upon MoHCDGEC request, continue to support responses to cabinet secretariat comments on HFS and drafting or responding to comments on SNHI cabinet paper
Continue SNHI dialogue and implementation of preparatory activities
3.1.2 Improved CHF
PS3 continued to closely follow and support the process of deployment of the improved CHF
design. The main role of PS3 in this new design is the development per capita payment formula
that will be used to pay service providers. In Y2Q2, PS3 presented the methodology for
developing this formula PS3 at an iCHF meeting conducted in Dodoma February 6-7, 2017 and
again at an iCHF implementing partners meeting conducted in Bagamoyo. Participants agreed
on use of a per capita payment formula and on the adjustors that will be included in the
formula. These adjustors differentiate payment to facilities and include catchment population
(or people served converting the facility payment to per capita payment), utilization, and
number of CHF members registered with the health facility.
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It was anticipated that the improved CHF would be deployed by March 2017. However, the
MoHCDGEC encountered some challenges in the process that required them to engage
further with PORALG before deployment. PS3 remains in close contact with MoHCDGEC and
NHIF in order to finalize the payment formula once discussions with PORALG have been
completed.
Next quarter activities:
Support MoHCDGEC and NHIF to finalize per capita payment formula and its adjustors
Support other aspects of improved CHF preparation and implementation as necessary
3.2 Service Provider Payment Systems
3.2.1 RBF In Y2Q2, PS3 continued to provide technical assistance to MoHCDGEC and PORALG RBF
Units and regional/LGA authorities to support RBF implementation and roll-out through the
activities described below.
Implementation Monitoring
PS3 in collaboration with Global Health Supply Chain (GHSC) provided support to the national
team in MoHCDGEC and PORALG RBF Units to develop and test RBF system management
tools for implementers of RBF at national, regional, and Medical Stores Department (MSD)
Strategic Business Unit (SBU) levels. The purpose of the tools is to assist key implementers to
proactively manage, track and refine RBF system roll out and ongoing operations. A two-day
workshop was conducted on March 14-15, 2017 in Mwanza for key Regional Health
Management Team (RHMT) members and Mwanza zonal MSD-SBUs. This workshop
developed inputs and recommendations that will strengthen the RBF management system or
tool for and enable implementers to identify issues and continuously improve RBF management.
The workshop and subsequent dialogue developed the following next steps in the deployment
of the RBF management system or tool:
Discuss with PORALG how this tool can be integrated in overall LGA supportive supervision and linked with implementation support and monitoring for other health
financing systems or programs.
Identify opportunities to incorporate information and findings into the RBF roll-out
process.
After integration, begin the process of testing the RBF management system or tool in
Mwanza region
Patient Level Clinical Dataset Workshop
During “RBF week” last quarter, GOT and development partners together assessed progress
to date, identified barriers, and recommended program refinements. The participants identified
inability to enter RBF data at the facility level as one of the largest barriers to RBF
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implementation. They recommended extension of health information systems to facility level
including possible use of mobile applications. This is an example of the benefits of RBF being on
the front lines in stimulating facility management and service delivery improvements. In
addition, the timing is right for this substantial systems strengthening intervention because
MoHCDGEC and PORALG have both identified facility level information systems and improving
data quality as ministry priorities.
On March 6-10, 2017, PS3 supported a workshop in Morogoro that brought together
stakeholders from MoHCDGEC, PORALG and other partners, with initiatives to improve data
quality to discuss the feasibility of using mobile apps to collect RBF data. The dialogue during
this workshop broadened to encompass not only RBF data, but broader improvement in
District Health Information System (DHIS2) data. The workshop deepened recognition of the
importance of patient level data as key to improving both RBF and health information systems.
All participants agreed on the need of having one system for basic patient level clinical data set
which will serve or feed all purposes including financial claims management.
PORALG presented its hospital management information system Government of Tanzania
Hospital Management Information System (GOTHoMIS) which is currently being implemented in about 100 health facilities and also undergoing further programming updates (note: the name
is disingenuous as it is also being implemented in health centers and dispensaries). After
reviewing the system, workshop participants agreed it’d be a good system to collect patient
level information in health facilities. Workshop participants also agreed that GOTHoMIS will
need further development including interoperability with DHIS2, electronic logistics
management system (eLMIS), and claims management systems envisioned under SNHI.
System Bottlenecks Affecting Community Health Worker (CHW) Payment and RBF
Audit Trail
In Y2Q2, PS3 supported MoHCDGEC and PORALG RBF Units to address DHIS2 system
bottlenecks that affected community health workers (CHW) quarterly payments to some
health facilities in Mwanza region. DHIS2 was failing to calculate and include CHW indicators in
the quarterly invoices. PS3 communicated with University of Dar es Salaam (UDSM) computing
center engineering to resolve the problem. It is anticipated that CHW incentives will now be
included in future quarterly invoices, although follow-up will be needed to verify. In addition,
PS3 initiated discussions with UDSM computing center and MoHCDGEC Information,
Communications and Technology (ICT) department on improving DHIS2 to enable locking or
exporting the exact data used to create invoices and pay RBF quantity and quality data to
ensure production of a good RBF audit trail including the ability to recreate invoices.
Next quarter activities:
Continue to provide technical assistance to MoHCDGEC and PORALG RBF Units and regional/LGA stakeholders to implement, integrate and roll-out RBF
Refine and continue implementation of RBF system management and monitoring tools,
including integrating or increasing linkage to HBF shift to output-based payment and
other health financing systems or programs
Collaborate with MoHCDGEC and PORALG RBF Unit, MSD, and GHSC to improve generation of RBF invoices for MSD-SBUs
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Deepen collaboration with MoHCDGEC, PORALG, and GHSC on development and
extension of health information systems to facility level (creating basic patient level
clinical dataset) including interoperability with DHIS2, eLMIS, and claims management to
remove the major RBF barrier of inability to enter data at facility level, strengthen health information systems and facility management in general, strengthen drug supply chain
management, and begin creating linkages to the envisioned SNHI claims management
systems.
Verify that CHW incentives are now included in RBF quarterly invoices
Continue dialogue and development of DHIS2 system strengthening to improve the RBF
audit trail by enabling locking or exporting the exact data used to create invoices
3.2.2 HBF and Direct Facility Financing
In Y2Q2, a major PS3 activity was supporting HBF shift to output-based payment and direct
facility financing (DFF). PS3 has three priorities in this intervention. First is use of an output-
based payment system or simple formula in the disbursement process for the new HBF
modality sending funds directly to facility bank accounts, moving away from the input-based
payment that is currently used in the public sector. PS3 believes that the use of an output-
based formula including adjustors for DFF will better match payment to priority services, help
to improve equity and transparency, and also create space to reward performance. The second
priority is establishing and solidifying the roles and relationships between MoHCDGEC and
PORALG related to purchasing health services and providing health services. The third priority
is directly linking HBF/DFF to introduction of Facility Financial Accounting and Reporting
System (FFARS) and building capacity of health facilities in all aspects of financial management. All three priorities are preconditions and directly linked to implementation of SNHI.
The development of DFF output-based payment formula involves calculation of base payment
(i.e. a flat rate to be disbursed to each facility that is calculated by dividing total budget available
by number of facilities); converting it to a per capita rate by adjusting it by catchment
population; and then adjusting it according to facility performance and need. The development
of this formula involved extensive back and forth consultations with MoHCDGEC, PORALG
and development partners who are supporting HBF including Swiss Agency for Development
and Cooperation (SDC), Danida, and World Bank. Eventually, all stakeholders agreed on the
necessity of using a formula that takes into account need and performance variations across
service providers. The idea of using a formula to disburse HBF funds to facility bank accounts
was affirmed during the DFF bilateral consultative meeting held on March 3, 2017. Specifically,
it was agreed that a formula that includes adjustors should be used to disburse funds to facility
bank accounts. The leadership in the development of the formula was assigned to the
Department of Policy and Planning of the MoHCDGEC.
In Y2Q2, PS3 supported MoHCDGEC and PORALG by developing a draft formula and an
automated system calculating and documenting the payment amount for all 4300+ public
primary health facilities. The review process by MoHCDGEC and PORALG took a long time
because the two entities were engaged in both verification of formula and payment-related data
(e.g. facility names, bank accounts, catchment population, utilization) and another exercise of
verifying facility annual plans. On March 28, 2017 PS3 Finance Team Lead met in Dodoma with
HBF DFF coordinators from MoHCDGEC and PORALG to update each other on the progress
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of formula review and discuss capacity building for service providers on financial management.
It was agreed during this meeting that PS3 will meet again with PORALG and MoHCDGEC to
discuss and finalize the formula immediately after the exercise of facility plans review is
completed. PS3 will therefore continue to follow-up in order to make sure that development
of the formula is completed, approved, promoted, and implemented as planned for HBF DFF
starting July 1, 2017.
Next quarter activities:
As requested by MoHCDGEC and PORALG, perform all required tasks to finalize the formula and payment amount for each health facility
Support MoHCDGEC and PORALG to link HBF DFF to iCHF, RBF, SNHI and public
financial management (PFM) realignment, and also prepare for implementation July 1,
2017.
3.3 Facility Financial Management In Y2Q2, a major PS3 activity was dialogue and development of Facility Financial Accounting and
Reporting System (FFARS). PS3 support to GOT to develop and implement this system is a
joint intervention of the finance, governance and information system components. A number of
FFARS-related workshops and other activities were conducted during the quarter and are
summarized below:
FFARS development was initiated with a workshop conducted in Mwanza from February
1-3, 2017 bringing together representatives from PORALG, MoHCDGEC, Ministry of
Education, Science and Technology (MOEST), Health Promotion and System
Strengthening (HPSS), LGAs, service providers in health and education sectors, and PS3.
The objective of this meeting was to take stock of what financial management systems
are currently being used by service providers (health facilities and schools) and discuss
the challenges and limitations existing in those systems. Participants concluded that a
new service provider level financial management system is required. The workshop also developed terms of reference and formulated a task force for the development of both
a manual FFARS system that will be harmonized across service providers in all sectors
(focusing on health facilities and schools) and an electronic version of FFARS that will be
deployed later.
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The meeting in Mwanza was followed by another workshop with representatives of the
same organizations conducted in Morogoro on February 22-25, 2017. The purpose of
this workshop was to initiate the requirement gathering process, and the output of the
workshop was establishing requirements to guide the process of FFARS development.
The manual FFARS development team started work immediately after this workshop.
Among the tasks that were given to the team was the development of a FFARS manual
that will incorporate simple cashbooks, ledgers, bank reconciliation template, reporting
templates, and other financial accounting templates.
In early March, a follow up meeting was conducted in Morogoro to review progress on
FFARS manual development, and also establish requirements for the development of
electronic FFARS. The output of this workshop was first drafts of FFARS Manual,
requirement document, and design document for electronic version.
Refinement of the draft FFARS manual continued from March 6-31, 2017 and the parties
involved were PORALG, MoHCDGEC, MOEST, HPSS and PS3. The draft FFARS
manual was presented to PORALG Finance, Investment, Economy and Infrastructure Committee in Dar es Salaam on March 9, 2017. The comments from this committee
Presentation sessions during the Facility Financial Accounting and Reporting (FFARS) System development workshop in
Mwanza
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were incorporated into the final version of the FFARS manual. To date, the FFARS
manual is completed and work has started on a training plan and training materials.
The development of the FFARS electronic version started on March 2017 with a team
comprised of programmers and business process staff from PORALG, e-Governance Agency (eGA), RS, and PS3. Programming exercise is ongoing and it is expected that
this task will be completed by May 2017.
Next quarter activities:
GOT and PS3 developed a detailed schedule for
FFARS manual and electronic versions as stated
below. Unexpected obstacles may arise but to
date the combined GOT and PS3 team has
completed tasks according to the planned
schedule. All activities are planned in
expectation of introducing FFARS at the start
of the GOT fiscal year July 1, 2017 in concert
with HBF DFF.
1. FFARS manual version:
Operationalization of the manual
system to selected facilities in
Morogoro on April 24-29, 2017. The
core team will test the system for
three days in Morogoro Municipal
Council covering two of each type of
facility: health centers, dispensaries,
hospitals, primary schools and
secondary schools
Conduct training of trainers from
GOT (PORALG, RS, LGAs) and PS3
(RPMs, finance and governance
mentors) from May 15-17, 2017
Conduct training of users as follows:
Phase 1 May 29-June 1, 2017: train hospitals, health center managers, secondary
schools and Ward Education Officers together in their respective LGAs
Phase 2 June 2-June 16, 2017: Ward Education Officers to train primary schools and dispensaries in their respective wards with support and supervision from LGA
accountants and PS3 mentors
Identify, coordinate and collaborate with any development partners working in
PFM, facility management or development, health or education to inform them, plan
follow-up linkages and support, and try to obtain funding commitments for non-PS3
regions under the assumption that GOT and PS3 team could conduct the training if
participant costs were covered
Figure 2: Screenshot of the FFARS Manual
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2. FFARS electronic version
Testing of FFARS starting April 18, 2017
Finalization of programming by May 6, 2017
Development of a user manual and technical and operations manual for
electronic version by May 6, 2017
Operationalization of the system to four selected facilities in Morogoro from May 15-22, 2017
3.4 Resource Allocation and Tracking
3.4.1 Global Fund Resilient and Sustainable Systems for Health (RSSH) Grant Proposal
On March 13-15, 2017, PS3 supported MoHCDGEC to develop their Global Fund Resilient and
Sustainable System for Health (RSSH) grant proposal by facilitating a workshop to identify
systems barriers, link them to Global Fund operational objectives, and initiate specification of
grant activities to remove the systems barriers. The three workshop objectives were: 1)
provide an overview of Global Fund RSSH funding request preparation; 2) identify cross cutting
system level barriers that impede Human Immunodeficiency Virus (HIV), Tuberculosis (TB) and
malaria service delivery; and 3) identify activities required to address system level barriers for
the three diseases. The workshop output was a RSSH framework that consisted of seven
operational objectives, cross-cutting systems level barriers to service delivery for the three
diseases, and activities to remove the systems barriers.
Next quarter activities:
Additional activities are not planned but PS3 will provide additional technical assistance to Global Fund RSSH grant proposal development if requested by MoHCDGEC
3.4.2 NHA and LGA level resource tracking
In Y2Q2, PS3 supported development of the 2015/16 National Health Accounts (NHA) by facilitating and training NHA data collectors in a two-day workshop on March 30-31, 2017. The
workshop gave data collectors an overview and rationale for health resource tracking as
context prior to obtaining specific training on donor, Non-Governmental Organization (NGO),
insurance, and employer data collection tools. Comprehensive training of data collectors will
enhance the accuracy and quality of NHA data and corresponding analysis and report.
PS3 began the process of integrating the resource tracking module into the academic
curriculum of other academic institutions in addition to the University of Dar es Salaam by
initiating dialogue with Mzumbe University in Morogoro. Mzumbe University generally
accepted the idea of integrating the resource tracking module in its undergraduate and
postgraduate courses assuming the necessary procedures and requirements are undertaken.
The next step is convening a working session to discuss the contents of the resource tracking
module as part of course review process before moving to the next stage of integration, and
also customizing the module to enable its use at LGAs level.
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Next quarter activities:
Support the NHA data collection exercise
Continue the process of integrating resource tracking module into the academic curriculum of Mzumbe University
Initiate dialogue with Kilimanjaro Christian Medical Center (KCMC) University to assess
the possibility of institutionalizing the resource tracking module into their curriculum.
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4. INFORMATION SYSTEMS
4.1 Support Improvement of ICT/LAN and Operations at Regional/LGA Level
In Y2Q2, PS3 continued to work with PORALG to develop implementation plans for the
procurement and installation of Local Area Network (LAN) in the 93 LGAs and 13 RS offices.
In Y2Q2, PS3 together with PORALG developed and advertised a Request for Proposals (RFP).
A team of experts from PORALG and PS3 evaluated 20 proposals in response to the RFP,
identified the most appropriate vendor, negotiated with them, and submitted a procurement
request to USAID. Following the approval from USAID and beginning in Y2Q3, PORALG and
the PS3 team will begin the procurement and installation of the LAN with support of the PS3
Information Systems (IS) mentors.
Two immediate returns on PS3 investment are expected: 1) staff efficiency and productivity
gains as the LAN will enable and motivate them to do their jobs; and 2) management
improvements that are being directly linked to existence of functioning RS and LGA level LANs.
In Y2Q2, PS3 continued to work with regional and LGA officers on key sustainability issues
including budgeting for reoccurring costs, maintenance and security. Some regions have
already shown ownership by committing matching funds to purchase more ICT hardware, by
recruiting staff for Health Information Systems (HIS) and ICT, and by paying recurrent costs
such as internet connectivity. Finally, the institutionalization and sustainability of the LANs is
inherent in the implementation process as the same PORALG and PS3 teams (including LGA
ICT officers and PS3 information system mentors) who did the ICT assessment will install the
LANs, ensure they are functioning to improve business processes, and develop and implement
maintenance standard operating procedures. Existing LGA ICT officers have the capability to
support use and maintenance of LANs.
PS3 continues to support PORALG to advocate for additional GOT and develop partner
investments to install LAN in regions and LGAs not covered by PS3. In Y2Q2, for example,
PS3 continued to meet with GOT and Japan International Cooperation Agency (JICA) to
identify ways to leverage efforts and support areas related to LGA LAN investment.
46
Next quarter activities:
Support GOT to develop investment plans with development partners for non PS3
LGAs
Distribute LAN equipment to each of the 13 PS3 regions
Begin LAN installation at the regional level
Mentor officers in the LGAs and RS on the use and maintenance of the installed LAN
4.2 Improving Interoperability and Efficiency of Information Systems
4.2.1 Support PlanRep Redesign Significant progress was made on the ongoing development of the PlanRep redesign activity.
Once completed, PlanRep will improve efficiency, accountability, consistency, uniformity and
quality of LGA planning, budgeting, and reporting. The joint PORALG and PS3 team is working
together during each step in the year-long process to redesign, develop and implement an easy-
to-use centralized web based planning, budgeting and reporting system, which will integrate
with the current Epicor-IFMS, MOFP-Statistical Budget Analysis Software (SBAS), LGRCIS,
Human Capital Management Information Systems (HCMIS), DHIS2 systems and other sector
systems. The opportunity for PS3 to support PORALG in this major and critical undertaking
has evolved rapidly, been designated a key PS3 intervention, and if successful will result in
Figure 3: Proposed LAN Installation to Commence in Next Quarter
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substantial multi-sector systems strengthening, management improvements, and efficiency gains
contributing to service delivery improvement.
Key changes to the PlanRep system include:
Establishes a national, standard, web-based system for all sectors
Includes planning and budgeting to service provider level
Defines sector service outputs for planning and budgeting
Makes Service Providers visible by including codes in the Epicor systems – systems improvements channel to the level of facilities where service providers are found
Links to Epicor & LGRCIS
Specifies Service Outputs
Supports Service providers to better plan and budget
Matches Money to Priority Service outputs
The redesign process is broken in five stages: development of the project charter, requirement
gathering and analysis, system design, programming and development stage, and user testing.
PS3 completed the first two stages in previous project quarters and produced the PlanRep
Project Charter, PlanRep User Requirements as a result of intensive collaboration with
stakeholders, business owners and developers. Key stakeholders from PORALG (all
Departments, Directorates and Units), Ministry of Agriculture, POPSM, and MoHCDGEC
brought a variety of skills and experiences to contribute ranging from planning, information and
communication technology, public administration, health secretaries, economics and finance
In Y2Q2, the joint development team completed the design phase, a consultative process with
developers and business owners. Consultations included reviewing the business processes and
outlining the flow of events for the Plans and Budget cycles, as well as completing a business
process re-engineering exercise which addressed issues in the planning and budgeting process
This comprehensive exercise produced the PlanRep Design Document which outlines the key
architecture of the system, as well as outlines the development sprint stage. The development
sprint stage is divided into core activities for a period of 90-days. The development team is
using Laravel, AngularJS, and PostgreSQL to translate the design architecture into a usable
format with appropriate interfaces. Below is a screen shot of a current mock up within the
PlanRep system.
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Next quarter activities:
Finalize the development of the PlanRep
Develop user test cases
Conduct user acceptance and system tests
Develop an administrator and user manual
Document all process and source codes
Figure 4: Screenshot of the PlanRep mockup
Figure 5: Screenshot of the PlanRep mockup
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4.2.2 Mobile Version of LGRCIS
LGRCIS is the LGA billing and revenue collection system that maintains taxpayers’ information,
collects revenue, and helps ensure financial controls and reduced corruption by enforcing the
use of electronic devices operating with LGRCIS. In Y2Q1, PS3 trained 900 LGA staff on use of
LGRCIS mobile application. The training targeted the following offices: treasurer, business and
license and revenue office including accountants, cashiers, and building engineers. LGAs state
that the training and rollout has resulted in improved collections at LGA level and more point
of sale (POS) devices procured, and PS3 plans a OR study and collaboration with other
development partners working on LGRCIS to verify these initial claims. In Y2Q2, PS3
continued to mentor users on the system and coordinate with development partners to expand
the use of the LGRCIS mobile application.
Next quarter activities:
Continue to mentor and support users to utilize the LGRCIS mobile application
Development of LGRCIS troubleshooting manual
Train LGAs on the developed troubleshooting manual
Continue to collaborate with development partners to expand the use of the LGRCIS
application
A revenue collector from Mtwara-Mikindani (right) provides a receipt to a small vendor at the Mtwara main market,
using the mobile LGRCIS machine.
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“…the significance of this launch not only lies in building efficiency, transparency, and public trust. It also lies in the importance of delegating authority and decision-making power to LGAs. The new website framework is a critical step forward in this direction. It shows a commitment to decentralization, with an emphasis on allowing regional and local government to use information to respond to citizen needs.”
- USAID/Tanzania Deputy Mission Director ,Timothy Donnay
4.2.3 Support Improvements for Additional IS Systems
In Y2Q2, the information system component supported GOT and other PS3 components to
design or develop a number of strengthened information systems that support other technical
interventions or programs. Information systems team contributions were vital to development
of FFARS, dialogue with PORALG and SoftTech on Epicor accounting system improvements,
initial dialogue to extend health information systems to facility level and link to eLMIS and
claims management, improving RBF data in the DHIS2 system, and improving the POA interface
and system.
Next quarter activities:
Deepen dialogue and system design extending health information systems to facility level
and linking to eLMIS and claims management
Continue to strengthen information systems supporting other technical interventions or
programs including Epicor, FFARS, RBF, and POA
4.3 Support Implementation of LGA Web Application Systems
In Y2Q2, PS3 in partnership with POPSM, eGA, and
PORALG, held the national launch of the first ever
standardized government websites. The event
showcased the new government website framework
(GWF) - a standardized online layout that will be used
by all RS/LGAs nationwide in order to share
information with citizens and improve management.
All 26 of mainland Tanzania’s regional secretariats and
their respective 185 LGAs unveiled their new
websites at the national launch event held in Dodoma.
The event was officiated by the Hon. George
Simbachawene, PORALG Minister of State, and
attended by the Minister for Information, Culture,
Arts and Sports, Hon. Dr. Harrison Mwakyembe, and
USAID/Tanzania Deputy Mission Director, Timothy Donnay.
In Y2Q2, PORALG, eGov, and PS3 teams conducted a massive exercise consisting of seven
separate but completely coordinated events. Extensive and detailed planning, agenda and
materials development, scheduling, logistics and budgeting was done before the events. The
first event was in Mwanza from February 9-20, 2017 and consisted of a training of trainers and
test of the regional GWF and RS/LGA website training, installation and launch process. The
next five events were roll-out of GWF and RS/LGA website training, installation and launch
51
process to all remaining regions and LGAs in Mainland Tanzania, and all five events were held
concurrently from March 20-27, 2017 in Dodoma, Kigoma, Mbeya, Morogoro, and Mtwara. All
regions and LGAs in Mainland Tanzania were assigned to one of the six locations for their
RS/LGA website training, installation and launch. The strong commitment of GOT was
demonstrated by a cost share with the government funding participation of non-PS3 regions
and LGAs at the regional training, installation and launch of the websites to ensure that all 26
regions and 185 LGAs installed their websites. The seventh and last event was the national
launch in Dodoma described above and held on March 27, 2017.
Beginning in Year 2 and in partnership with POPSM, eGA, and PORAG, PS3 facilitated an
extensive consultative process to develop the GWF, a standard template from which all RS and
LGAs will customize their websites (see Figure 6). The team designed the GWF in accordance
with RS and LGA specific needs to: 1) serve as a platform to inform citizens, private sector,
other GOT stakeholders, and development partners (DPs); 2) facilitate development of profiles
and data dashboards; and 3) develop and link management databases and other management
improvements and efficiency increases. The GWF comprises of guidelines and specifications
that provide platforms, tools, and programming environment for addressing the design,
integration, performance, security, and reliability of distributed and multi-tiered applications.
PORALG Minister of State, George Simbachawene (3rd from left), Information Minister, Dr Harrison Mwakyembe (2nd
from left), Kilimanjaro Regional Commissioner, Said Meck Sadiki (far left), and USAID Deputy Mission Director, Tim
Donnay (far right), admire the Dodoma Municipal Council website during the GWF national launch event in
Dodoma.
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The GWF development cycle followed an agile methodology approach involving different
phases including project initiation (planning), requirement gathering and analysis, design,
development, testing and deployment. PS3 supported the development of requirement
specifications, project plan development, GWF database and system design, coding, system
testing, GWF architectural document, user and technical manual development, and production
of the project report.
The introduction of GWF and standardized RS/LGA websites improves the GOT’s ability to share information with citizens, improves the quality of information and services, and guides the
development of sharable, accessible and interoperable management services for ministries,
departments, agencies, RS and LGAs. The effective use of this website framework will facilitate
making government more open and accountable, as it will enable the GOT to improve services
to citizens. Over the years, citizens have been spending too much time in the corridors of
LGAs seeking information, such as how to get a business license, or data on schools and health
centers. However, the developed profiles and dashboards built into the websites provide all
the relevant information, hence saving time, and enabling the government to provide better
service to its citizens.
Internet
Website
Modules Plugins Components
Template
Content Management System
Database
Government Website
Framework
Figure 6: Government Website Framework
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This will be achieved in large part by improving internal communications between governing
bodies as well as external communications with the public. For example, the website
framework will strengthen good governance by promoting open government initiatives at the
national and local level by allowing LGAs to share information and documents with citizens and
the private sector. They will also improve internal management and efficiency by increasing
access to data, establishing a repository for LGA information, improving communication both
within LGAs and between LGAs and national/central government, and improving the quality and
timeliness of government reports. Overall, the websites in the framework will promote data
use, accountability, transparency, citizen participation, efficiency, and effectiveness.
Next quarter activities:
IS mentors provide technical support to ensure there are no issues with website
operation and they start to be used by regional secretariats and LGAs
Identify and begin development of the first interventions using the websites to improve management (e.g. solidify profile data, HR management)
Figure 7: Screenshot of the LGA website
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5. OPERATIONS RESEARCH
5.1 Operations Research (OR) Studies In Y2Q2, PS3 continued to develop two OR studies on intergovernmental fiscal transfers and
complaints management systems. The studies are intended to deepen exploration and analysis
of these program areas to identify issues and recommend approaches to interventions and
implementation.
5.1.1 Intergovernmental Fiscal Transfers Study In Y2Q2, PS3 continued to support PORALG Directorate of Local Government Finance to
develop an OR study on intergovernmental fiscal transfers. Cleaned data was received from
PORALG in January 2017. This data covered the fiscal year of 2015/16 and the first quarter of
2016/17. Initial analysis of the data was performed and preliminary findings have been
presented to the Office of the Director of Local Government Finance at PORALG.
Major findings from analysis to date:
Fiscal transfers have grown largely due to personnel emoluments (PE), the execution of which has been relatively stable at 93%
Actual other charge (OC) transfers from central government have declined from
approximately 3 to 1.6 USD/capita with overall execution reaching an average of 50%
Development funds, in particular local government development grant (LGDG), have
not been executed as budgeted. In essence, LGDG has collapsed for the last two fiscal
years
Own source revenues (OSR) have grown at an average annual rate of 27.8% over the
last decade (i.e. 2006/07 to 2015/16)
Fiscal inequities across LGAs have continued to persist
The involvement of PORALG in budget formulation as provided for in the Local Government Finance Act (1982) has declined over time
Budgets of LGAs are incorporated into respective regional votes leading to reduced
transparency and clarity in the transfer of funds to LGA level. This situation is
worsened by the significant delays in release of budget ceilings that has been
experienced
Significant delays in transfer of OC and development funds have persisted. Likewise,
delays in receiving notification of fund transfers from Treasury to LGAs, especially those
related to development budgets, have continued
Preliminary Recommendations from Intergovernmental Fiscal Transfers Study:
1. Introduce norm-based allocations of funds in order to improve the adequacy of fiscal
transfers (vertical allocations)
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2. Introduce and support the application of the second-generation formula as well
continuing to strengthen the direct transfers to service delivery units (service providers
or facilities)
3. Strengthen the involvement of PORALG in budget formulation process by strengthening
the LGA Finance Statistics section to analyze and use data generated through the
Council Comprehensive Financial Reports (CFR)
4. Management of intergovernmental fiscal transfers:
Introduce LGA vote in the budget books or alternatively summary tables for LGA
allocations
Improve systems for execution and communication of transfers
Assist PORALG to issue regular annual LGA Fiscal Review as input to budget
formulation and reintroduce the inter-ministerial budget committee
Next quarter activities:
Make a second round of presentations on findings and recommendations to wider
PORALG management in April 2017
Undertake consultations with selected LGAs on key issues identified in phase I of the
study
Initiate LGA fieldwork to explore the local impact of current financing arrangements in
terms of LGAs capability to deliver basic services. Planned to initially be done in health
and education sectors of two very underfunded LGAs (Uvinza and Sumbawanga) and
two relatively overfunded LGAs (Mbeya City and Iringa Municipality)
Engage in further consultations with PORALG, MOFP, sectors, and DPs regarding
possible ways forward with regards to implementation of the proposed second
generation formula allocations
Collection of additional data from MOFP and CAG for cross validation with Council
CFR and perform additional analysis. MOFP data may have to be acquired through
PORALG
Development of a draft Intergovernmental Fiscal Transfers OR Study or PORALG LGA
Fiscal Review Report
5.1.2 Complaints Management System Study
In Y2Q2, PS3 largely completed the OR study on complaints management systems. The study
was initially planned to be a rapid assessment to develop framing, design and inputs to a deeper
study on complaints management. However, it was converted to a OR study as the findings
proved to be useful and sufficient to inform the approach that POPSM, PORALG, and PS3 could
take in strengthening complaints management systems in LGAs.
Three main conclusions emerged from the limited OR study that focused on the three LGAs of
Ilemela, Misungwi and Kigoma Municipal. First, the current complaints management systems are
not working across the administrative hierarchy of the LGAs and service providers or service
delivery facilities. The latter had nonfunctional suggestion boxes and complaints offices had not
been established or functioning as required. Assemblies, letters, and one-on-one interactions
were the main methods to receive citizens’ complaints. LGAs did not have staff members
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formally appointed to handle complaints and lacked clear complaints management strategies.
Although POPSM had produced national guidelines on complaints handling since 2012, they
have not been disseminated to LGAs.
The second conclusion of the OR study is that complaints related to public services are made
at the front line service delivery facility where the service is provided. For example, land-
related complaints, which are the most common complaint at the council level, (LGA
headquarters) are made at the Council level since that is the point where land services are
provided. Complaints related to health services are made at health facilities: dispensary, health
center and hospital where the majority of issues are related to long wait times, lack of
medicines, unfriendly staff, run-down facilities and lack of tools. Similarly, complaints related to
education services are made at the schools and only in higher levels of LGA administration
when the complaints were not resolved at the school.
The national guidelines and best practices that were reviewed (Ministry of Lands, Temeke and
Lushoto hospitals) required the presence of various pieces of infrastructure: office, furniture,
equipment, personnel, and supplies. However, in view of the large number of layers of LGA
administration (e.g. wards, villages) and service delivery facilities (e.g. health facilities, schools), the third conclusion of the OR study is that supporting facilities to introduce this complaint
management infrastructure presents a monumental challenge, could take a long time, and/or the
cost efficiency is questionable given the low investment in service delivery.
Based on the findings from the OR study, recommendations for systems strengthening
interventions to improve complaints management at LGA level are as follows:
Improving complaints handling requires being more responsive to complaints on the
front line. Systems for receiving and addressing complaints need to be located at the
place or point where the complaints are made. This will improve the efficiency of the
response, which will in turn motivate citizens to use the system
Considering the number of facilities within an LGA that need to have effective complaints management systems, there is need to consider integrated facility level
mechanisms and automation or information communication technologies rather than
vertical or separate physical infrastructure investments due to large set-up and
operational costs
Complaints management is complex but it is important to the nature of government and
citizen engagement in the context of service delivery. Therefore, a second OR study is
planned in parallel with POPSM, PORALG, and PS3 interventions in complaints
management and broader citizen feedback mechanisms in order to document practical
experience and contribute to refinement of implementation.
Next quarter activities:
Finalize Complaints Management System OR study (e.g. editing and formatting)
Disseminate OR study to wider GOT and DP audience involved in complaints
management and citizen feedback and their link to improving service delivery
Engage in both internal PS3 brainstorming and dialogue with POPSM and PORALG to develop strategy, sequencing, and detailed plans on how to approach strengthening
facility level complaints management systems, developing a step-by-step path towards
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automation, and creating linkages and synergies to broader citizen feedback and
government responsiveness interventions
5.2 Rapid Assessments
LGA Revenue Collection Enhancement
In Y2Q2, data for the LGA revenue collection enhancement rapid assessment was collected at
central government concurrently with data collection for the Intergovernmental Fiscal
Transfers study. The data will be used to analyze and review the performance of LGRCIS in
enhancing revenue collection by LGAs. It is planned to analyze the data collected and produce
a report in Y2Q2.
Public-Private Dialogue Mechanisms
In Y2Q2, PS3 initiated a rapid assessment on public-private dialogue mechanisms. It will identify
and rapidly assess the functioning of LGA level public-private dialogue mechanisms to inform LGA interventions and also link to the GOT and four USAID Activity agriculture sector
collaboration on the Agricultural Sector Development Program (ASDP)-2 implementation
including public-private dialogue. Activities during the quarter included visits to three LGAs:
Mbeya City Council, Morogoro Municipal Council and Chunya District Council. It also involved
consultations with the Danida-funded Local Investment Climate Project which has operations in
Kigoma and Dodoma regions. The rapid assessment will be completed in Y2Q3.
LGA Facility Committee
In Y2Q2, a concept note was developed for a rapid assessment or possibly OR study on LGA
Facility Committees. The first step of the rapid assessment or study is a desk review including
both international literature and sector specific reviews of experiences in Tanzania with health, education, and water committees. The assessment or study would be linked to governance
component strengthening committee functioning intervention including committee
benchmarking.
Next quarter activities:
Analyze revenue collection data and produce a report on performance of LGRCIS in
enhancing LGA revenue collection
Complete Public-Private Dialogue Mechanisms rapid assessment
Develop LGA Facility Committee desk review, draft papers on health, education and
water committees, and plans for further rapid assessment or study activities
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6. CROSS COMPONENT INTERVENTIONS
6.1 Gender Sensitivity and Integration
6.1.1 Gender Assessment/Audit in Phase I LGAs The PS3 gender team in collaboration with component leads developed a gender
assessment/auditing tool that will be used in the 26 Phase I LGAs to determine the extent to
and manner by which public sector systems support gender integration in the relevant sector
policies and service delivery. The aim is to establish the way in which current systems and
practices are working or applied in real life or in actual programs that operationalize policies
and legislation; determine how to strengthen public sector systems to deliver gender-sensitive programs; and identify possible improvements together with the opportunities to achieve them.
Regional Program Managers have been trained on the use of the tool, and data collection has
started in 11 regions in the six PS3 clusters – Kagera and Kigoma (Western Cluster), Lindi and
Mtwara (Southern Cluster), Mara, Mwanza, and Shinyanga (Eastern Lake Cluster), Iringa and
Njombe (Eastern Southern Highlands Cluster), and Dodoma and Morogoro Central Cluster).
Data collection in Mbeya and Rukwa regions (Southern Highlands Cluster) will start in Y2Q3.
6.1.2 Gender Mainstreaming in PS3 Component Technical Interventions
In Y2Q2, PS3 integrated gender into the LGA benchmarking tool which will be used to identify
performance gaps, mentor committees to improve their performance and also measure these
committee performance improvements (see governance strengthening committee functioning
section). The gender team collaborated with the governance team to mainstream gender into
the benchmarking tool in particular on collection of data disaggregated by sex (e.g. meeting
attendance, number of women on statutory committees at all levels as stipulated in standing
orders and/or guidelines, monitoring of allocation of 5% of councils’ own revenue to women
and 5% to youth development projects respectively).
The gender team attended and delivered a 30 minute gender mainstreaming session in all of the
LGA councilor trainings conducted during the quarter to support councilors to mainstream
gender in their plans. Dialogue was initiated with PS3 and PORALG IS teams related to next
steps in sharing information with citizens through RS/LGA websites, and the possibility of
monitoring the use of the website and gauging the extent to which women and other
marginalized groups access the website. In addition, building on the findings of the OR Study on
complaints handling, the gender team engaged in discussion with OR and governance teams to
integrate gender tracking into complaints handling systems. Identifying the sex that uses the
system most will in turn motivate deeper investigations to pinpoint bottlenecks negatively
impacting gender sensitivity and integration.
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In Y2Q2, the relationship between cross-component gender sensitivity and integration and OR
studies deepened. Following discussions in LGA councilor trainings in Mwanza and Mara
regions during the councilors’ trainings and ongoing dialogue to continuously explore gender-
related issues in public sector systems and service delivery, the gender team identified three
rapid assessment topics. Gender, OR and governance teams will collaborate to complete them:
Introduction of quota system (preferential treatment) in awarding public contracts as mandated by the 2016 Public Procurement Act
Establishment of the link between the LGA gender focal points, law enforcement organs
(e.g. gender desk at police stations) and access to medical, psychosocial and legal
services in addressing gender based violence
Exploration of councils’ interpretation of the limits, rights and obligations of special seat councilors
6.1.3 PS3 Internal Gender Sensitivity and Integration During Y2Q2, PS3 conducted an internal training for all PS3 staff as part of the national review
meeting in February. During the training, PS3 staff were introduced to gender terms, central
tenants of gender equity and gender relations, a gender analysis framework, gender
mainstreaming principles, and national gender policy guidelines. National and regional PS3 staff
discussed how PS3 interventions could address gender-based inequalities that pose barriers to
development. PS3 team members’ discussed their own experiences in order to define key
priorities for gender consideration in technical interventions. The training increased
participants’ awareness of gender issues, helped the team internalize the concepts, and build
their skills in gender analysis to own the process of gender mainstreaming in their components.
PS3 Gender Advisor, Flora Kessy, runs an internal gender training for PS3 staff during the Review Meeting
in February.
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Next quarter activities:
Finish collection of gender assessment/audit data in 26 Phase I LGAs
Begin analyzing data to inform PS3 strategies for addressing gender in subsequent years
Continue to deliver gender mainstreaming session in LGA councilor training
Continue to discuss, develop plans, and integrate gender into PS3 technical interventions
Continue contributions to OR studies or rapid assessments to continuously explore
gender-related issues in public sector systems and service delivery
Identify emerging gender issues from the HR Assessment and suggest possible PS3 Year 3 gender related interventions.
Continuously reinforce PS3 internal gender sensitivity and integration
6.2 Public-Private Sector Dialogue
During Y1, PS3 engaged in dialogue with GOT and development partners on the best way to
contribute to improving management and delivery of public sector agriculture services – a key
program area identified by USAID and GOT in PS3 regional launches and other policy dialogue forums. In Y2Q1, GOT requested USAID implementing partners to support the
implementation of the country’s Agricultural Sector Development Program (ASDP-2). ASDP-2
is Tanzania’s main policy and program for transforming the agricultural sector into a modern,
commercial and competitive sector. The main objective of ASDP-2 is to create an enabling and
favorable environment for the public and private sector to facilitate improvement in
productivity and profitability of the agricultural sector and increase farm incomes, thus reducing
Tanzania’s wide-spread poverty and enhancing household food security. Subsequently, the four
USAID Activities of Africa Lead, ASPIRES, ENGINE, and PS3 agreed to collaborate to support
GOT ASDP-2 implementation. The four implementing partners met with USAID and agreed
on the basic principles of this collaboration.
In Y2Q2, the four USAID Activities held extensive dialogue with the GOT, specifically Ministry
of Agriculture, Livestock and Fisheries (MoALF) and PORALG on how best to enable
implementation of ASDP-2. During these meetings, a strategy emerged to use ASDP-2 as a
vehicle to support and leverage both program implementation and improving public-private
sector dialogue in the agriculture sector. GOT and the four USAID Activities agreed to
conduct regional ASDP-2 implementation and capacity building workshops for high-level LGA
officials who in turn would support LGA implementation of ASDP-2 (Africa Lead, ASPIRES, and
PS3). Two conditions were part of this agreement: GOT ASDP-2 practical implementation
support would extend to the LGA level including LLG, and implementation plans would
specifically include LGA and LLG forums for agriculture sector public-private dialogue (ENGINE
and PS3).
In Y2Q2, GOT, Africa Lead, ASPIRES, and PS3 held several preparatory meetings including a
week-long workshop which led to agreement that all 184 LGAs will participate in regional 3-day
workshops that will be held in five regions (Dodoma, Morogoro, Mbeya, Iringa and Mwanza) for
80-100 participants each. GOT and USAID implementing partners also developed detailed
plans including program agenda, roles, responsibilities, logistics, financial and technical expertise
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of each cooperating organization to help ensure success of both the workshops and the follow-
up implementation steps. The timeframe set for the workshops was April-June, with at least
one week in between workshops to facilitate logistical arrangements. The first workshop will
be held in Y2Q3 in Dodoma, April 3-8, 2017.
The main objectives of the workshops are to:
Create awareness among LGAs on the objective, activities and targets of ASDP-2
Provide an understanding of the ASDP-2 results framework and how coordination of
ASDP-2 activities will work across sector ministries, between central and local
governments, and within LGAs including LLG
Understand policy issues as ASDP-2 success hinges in addressing key policy constraints
Solidify District Agriculture Development Plan (DADP) guideline for implementation of ASDP-2 through participatory dialogue
Define the role and modalities of LGAs in implementing ASDP-2 including planning next
steps for LGA level activities
Understand the role of broad public sector systems strengthening in supporting ASDP-2 implementation
Develop strategies and plans for LGA level public and private dialogue
Create an understanding of the potential of public-private dialogue and partnership to improve LGA performance in a resource constrained environment
Create understanding of the imminent LGA financial reforms including amendment of
the Local Government Financial Act (LGFA) and deployment of e-payment system or
LGRCIS mobile application
Build the capacity of LGAs in implementation and monitoring of ASDP-2 and financial reforms
Next quarter activities:
Organize and present PS3 in ADSP-2 regional workshops
Consolidate information from “brainstorming” questions embedded in PS3 regional
workshop presentation including definition of public service providers and service outputs in the agriculture sector
Develop plans for LGA and LLG public-private dialogue forums and link or integrate into
PS3 governance component strengthening committee functioning intervention
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7. COLLABORATIONS
In Y2Q2, PS3 continued to develop collaborations with both other USAID Activities and other
development partner projects. These collaborations are summarized in Table 3 below. In
addition, PS3 continued to contribute to USAID Iringa Integrated Hub including implementation
of its planned activities in Iringa and Kilolo district council.
Table 3: Collaboration with other USAID Activities:
Partner Nature of Collaboration, Y2Q2 Activities, and Next Steps
USAID Iringa Hub Continued implementing PS3 Iringa region/LGA activities in the
context of the USAID Iringa Hub
Collaboration with other USAID Activities
Touch Foundation Collaboration on POA continues and consensus with
MOHCDGEC on next steps will enable it to deepen further
Global Health Supply Chain (GHSC) Made progress in identifying strategic collaboration, next step is
finalize definition of strategic collaboration and develop concrete
joint activities
Africa Lead, ASPIRES, ENGINE Finalized dialogue with GOT for the support from four USAID
Activity collaboration to implement ASDP-2 including public-
private dialogue, and also planned regional workshops. Next steps
are support regional workshops and plan LGA level activities
including public-private dialogue
Community Health and Social Welfare
Systems Strengthening Program (CHSSP)
Dialogue with USAID and CHSSP on transition of community
health worker (CHW) activities. Next step is more dialogue and
clarification of roles and relationships
Kizazi Kipya Agreed on next step of brainstorming about sustainability of social
workers, CHW linkages, and community volunteers
Boresha Afya Initial collaboration meetings. Next step is further meetings to
identify comparative advantages in collaboration and develop
strategy and plans
CDC and OGAC Joint USAID and PS3 support to development of Global Fund
RSSH
Health Policy Plus (HP+) and Health Finance
and Governance (HFG)
Follow-up dialogue on SNHI Actuary Study, and domestic
resource mobilization including efficiency gains
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Other development partner (DP) projects
P4H, WHO, World Bank Continuous support to MOHCDGEC on HFS and SNHI
World Bank Continuous support to RBF
Swiss Development Corporation (SDC),
Danida
Dialogue with both GOT and other DPs on establishing payment
system and formula for HBF DFF and also roles and relationships
between MOHCDGEC and PORALG. Next steps are finalizing
plans to implement HBF DFF in July 2017.
SDC, GIZ Dialogue and development of iCHF
DFID, Danida, EU Limited activities this quarter, next step is further dialogue to
deepen PFM collaboration
Literacy and Nummeracy Education Support
(LANES)
Meeting to begin to broaden education sector collaboration. Next
step is meetings with other education sector projects particularly
related to FFARS implementation and further coordination with
USAID/Education Office and Activity
JICA Initiated dialogue about potential to support LAN and other
information system strengthening in non-PS3 regions
Other Periodic meetings with other projects or consultants on
collaboration or coordination (e.g. open government partnership,
data and information consultants)
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8. COMMUNICATIONS AND KNOWLEDGE MANAGEMENT
As PS3 has continued to expand its regional/LGA operations, the project function of
communications has expanded with it. PS3 has grown and now approximately half of its staff
are scattered all over 13 regions and 93 LGAs, and managing communications within and
across teams is critical to success. It is important that everyone is informed of what is
happening, everyone speaks the same language, and everyone has access to the information
they need to do their jobs. In Y2Q2, PS3 launched an internal facing platform called ‘Jamvi’.
Jamvi, which is the Kiswahili for ‘mat’, was released to all PS3 staff in February this year,
following a series of beta and user tests. It includes a variety of features accessible to
regional/LGA teams, subcontractors, as well as Dar and US based staff. These features include
a dynamic events calendar, working files and folders for the teams, and a technical reference
library. Jamvi has been designed purposely to help with efficient communication and easy
access to information, as well as improve management within PS3, and this is evident as teams
are now able to share documents, stories and videos of what has transpired during various
events, making it possible for even those who were not able to attend to witness the activity.
Jamvi will continue to expand and add functionality as program activities continue to evolve
with the aim of continuously improving communication and access to information.
Figure 8: Screenshot of Jamvi la PS3
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In Y2Q2, PS3 developed an internal communication strategy to guide the production and
dissemination of all PS3 technical products and contractual deliverables. The strategy’s main
objectives are to: produce on-time high-quality technical products and contractual deliverables;
document and share successes, effective approaches, and results of PS3 activities, and;
disseminate technical products and contractual deliverables in a timely and cost-effective
manner to relevant audiences. The Strategy provides guidance on how to best reach these
objectives and was disseminated to the PS3 team in Y2Q2. The Communications and
Knowledge Management function groups its work under two main headers which are PS3
Products and GOT Correspondence and Technical Assistance.
8.1 PS3 Products
8.1.1 Contractual Deliverables
PS3 is mandated to deliver a variety number of products to USAID. These include the
submission of quarterly reports, a monthly events calendar, and success stories. In Y2Q2, PS3
submitted its Year 2 Quarter 1 Report to USAID per contractual requirement. PS3 also
continued to submit its Events Calendar to USAID monthly. The event calendar improves
coordination, planning and knowledge sharing between USAID and PS3 particularly for high
profile events. One example is the launch of Regional and LGA websites in Dodoma that was
attended by the USAID Mission Deputy Director, and two other USAID officials.
In Y2Q2, PS3 also worked closely with USAID/Tanzania’s Communication Office to review the
Branding and Marking Plan. A significant number of PS3 products are co-produced with GOT
counterparts, and as such, the PS3 Branding and Marking plan was updated to include co-
branding requirements with the GOT. The modification also reflected the removal of the
requirement to develop a project website, or social media sites.
8.1.2 Technical Products
Technical documents
PS3 produced a number of technical reports during Y2Q2 (Table 4). The Communications
team works with the authors to ensure they are edited, formatted, and branded. These
reports include those that have been produced in collaboration with PORALG.
Table 4: Technical Documents Finalized this Quarter:
Document Name Component Internal/External
Manual on Facility Financial Accounting and
Reporting System (FFARS)
Finance External
PORALG/PS3 Field Visit for LGRCIS
Implementation
IS External
Comprehensive ICT Assessment Situation IS External
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Analysis in 13 Regions
PlanRep User Specification Document IS External
PlanRep Project Charter IS External
Plan Rep System Design IS External
M&E Plan M&E Internal
Banners and posters
One of the ways in which PS3 promotes the Activity and
communicates to the public so as to guarantee that
funds for project activities are appropriately understood
to be “from the American People”, is through the
display of banners and posters. During this quarter, PS3
produced a number of banners with a message
emphasizing on public systems for the improvement of
services to Tanzanian citizens. These banners were
handed over to the 13 PS3 Regional Program Managers,
so that they could be displayed at events funded by
USAID, as per branding and marking requirements.
Additionally, PS3 produced some posters, also
promoting the understanding of funds being “from the
American People”. The posters were displayed at the
national launch of Regional and LGA websites in
Dodoma, an event that was attended by a number of
influential people, including Ministers, Regional
Commissioners, and Council Directors. They were also
displayed at the launches in the zonal centers: Mwanza,
Kigoma, Mbeya, Morogoro and Mtwara.
Event speeches and press releases
PS3 holds a number of events involving GOT officials at
National, Regional, and LGA level. In this quarter, such
events have included training of councilors, opening of
Government Website Framework (GWF), and launching
of new Regional and LGA websites. During these
events, the Communications Team has been responsible for drafting speeches for government
officials who have been invited to officiate the opening and closing sessions. This has helped to
strengthen government relations, as officials become more conversant with the different
activities that PS3 is embarking on. PS3 has also produced Press Releases to help the media
understand the key events taking place. All Press Releases have been approved by USAID.
Figure 9: Screenshot of one of the banners
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Capacity building for PS3 staff
Documentation of success stories is one of the areas that needs to be strengthened in PS3. In
this quarter, the team held a one-day orientation on success story documentation for RPMs of
the Southern Cluster: Lindi and Mtwara regions. The orientation introduced RPMs to a holistic
understanding of a success story, how to identify it, how to conduct interviews, and how to
narrate the story. This is an important activity as it empowers RPMs to be able to report on
what is happening within their regions instead of waiting for someone from the communications
team to identify it.
8.2 GOT Correspondence and Technical Assistance
GOT correspondence and technical assistance is a program area that is rapidly growing with
the expansion of program activities in all 13 regions and 93 LGAs.
GOT correspondence
Government correspondence involves exchanging of communication between different
government offices and PS3 and managing it well is required for relationships, implementation
and institutionalization. PS3 has been receiving a number of requests from different ministries,
including PORALG, POPSM, MoHCDGEC, and the Ministry of Information. The
communications team is the keeper of letters of request from the Government, and also makes
sure that these requests receive an official response.
Communications and Promotion of Website National and Regional Launch
As described in other sections of the quarterly report, a key PS3 activity was training,
installation and launch of GWF and RS/LGA websites. In Y2Q2, the communications team
worked hand-in-hand with GOT partners and the information systems team to train RS and
LGA ICT Officers and Information Officers, a training that eventually led to the launch of 26
regional and 185 LGA websites in the country. The Communications Team also took the lead
in preparation for the national launch of the websites held in Tanzania’s capital city of Dodoma.
The success of the national launch fed promotion of the newly launched websites to the public,
with more people airing views on the importance of the government making sure that the
platforms are a source of transparency and that content is updated from time to time.
PORALG and PS3 Communications Strategy
In Y2Q2, a request was received from PORALG to help them develop ways to disseminate,
communicate, and promote the interventions being done in collaboration with PS3.
Communications team assisted PORALG to draft a simple Communication Strategy for the
Directorate of Information and Communication Technology (DICT), so as to be able to
communicate its successes and activities in a systematic manner.
Joint PORALG and PS3 Newsletter
In Y2Q2, PS3 and PORALG agreed to produce a joint newsletter reflecting the collaboration of
GOT and PS3 in implementing systems strengthening in Tanzania. In Y2Q2, PS3 and PORALG
developed a joint newsletter template and began crafting content for its first edition, scheduled
to be released in Y2Q3. PS3 and PORALG agreed to develop this joint newsletter quarterly
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going forward, demonstrating ownership of PS3-supported interventions. With PORALG
support the newsletter will be distributed to a wide audience including all levels of government,
and will highlight events, technical interventions, and program implementation to support
improving service delivery.
Next quarter activities:
Support development of PS3 products
Finalize and release the first edition of the joint PORALG and PS3 newsletter
At the request of MoHCDGEC, provide technical assistance to develop a strategy to
facilitate the flow of communication within the RBF program and between stakeholders,
and also share program successes and challenges
Support the governance and IS teams to build LGAs capacity to update the websites
with relevant information Work with PORALG to implement other PS3-related communication activities in their
new internal communication strategy
Continue to train RPMs on developing success stories
PS3 Communications and Knowledge Management Advisor, Leah Mwainyekule, delivers a digital photography
presentation to participants at the website training session in Mwanza.
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9. MONITORING AND EVALUATION
9.1.1 Submission and Approval of Revised M&E Plan
In Y2Q1, PS3 agreed with USAID on updated M&E indicators reflecting PS3 technical
interventions planned with GOT. In January 2017, PS3 submitted to USAID a revised M&E plan
narrative and Performance Indicator Reference Sheets (PIRS). Also during the quarter, USAID
approved the revised M&E plan. The M&E plan narrative revisions were necessary to reflect
lessons learned during PS3’s first year of implementation including Phase I LGA baseline data
collection; simplify and consolidate data collection, entry, and analysis systems and processes;
update roles and responsibilities; and delegate some data quality assurance roles to regional program managers.
9.1.2 Revised Data Collection, Entry and Analysis Form and System
In Y2Q2, PS3 developed a combined data collection and data entry form in Excel. Based on
experience from the Phase I LGA baseline data collection exercise, PS3 chose to use an Excel
format as it accommodates the low connectivity environment at the regional/LGA level and
enables simultaneous data collection and entry. M&E and IS teams collaborated to develop the
data collection and entry form and its corresponding system enabling aggregation and analysis of
data, and technical component teams reviewed it.
During testing, it was found that the streamlined data collection form reduced the actual
baseline data collection exercise from five days per district to two days per district thus
substantially reducing the burden on both PS3 and GOT teams. The new Excel form will be
used for future data collection exercises. The data collection, entry, storage and analysis form,
system and process will ensure that PS3 M&E data management supports data capture, import/
export, processing, analysis and security.
9.1.3 Phase II Baseline Data Collection Test In Y2Q2, the M&E team conducted a 2-day exercise in Mvomero District Council to test
availability of data for Phase II LGA baseline data collection and development of standard
operating procedures for the revised indicators and data collection and entry form standard
operating procedures. The test provided insights that were used to make minor revisions in
data sources and a few data elements in the revised data collection and entry form. The
standard operating procedures will guide the ongoing data collection exercise for Phase II
LGAs.
9.1.4 Commencement of Phase II LGA Baseline Data Collection
In Y2Q2, detailed plans, approach and process including logistics were developed for Phase II
LGA baseline data collection and baseline data collection commenced. Specifics include:
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The approach to Phase II LGA baseline data collection is to follow the sequencing of
LGA councilor training which is the entry to Phase II LGAs. Stage 1 involved Phase II
LGAs that received councilor training between December 2016 and March 2017 as well
as Phase I LGAs in the respective regions for new and changed indicators. Phase II LGA baseline data collection has been completed for Mara, Shinyanga and Mwanza regions.
Stage 2 will involve Phase II LGAs that receive councilors training between April and
June 2017 plus Phase I LGAs in the respective regions for new and changed indicators.
It is expected that baseline data collection will be completed by July 2017 and then
preparation for routine annual indicator data collection will be initiated.
Data collection and entry teams include RPMs, mentors, Dar office technical staff, and
regional and LGA focal persons. RPMs will be responsible for overseeing the baseline
data collection exercise for their respective regions.
To reinforce synergies within the six regional clusters, baseline data collection teams are
organized according to clusters. Each cluster team collects baseline data for LGAs in
their regional clusters as part of their ongoing familiarization with LGA systems and also
to continue building teams and working relationships.
The baseline data collection exercise is preceded by a 1-day mentor and regional/LGA
focal person orientation on the new data collection and entry form and SOPs. While
RPMs and mentors were oriented on the data collection and entry form during PS3
Review Meeting, regional/LGA focal persons did not attend the meeting and were not
oriented.
Figure 10: Screenshots of the Phase II LGA Baseline Data Collection Forms
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10. PROJECT MANAGEMENT
10.1 Regional/LGA Operations During Y2Q2, recruitment and deployment of regional program managers (RPMs) and mentors
was completed and also 13 driver positions were filled. We are sad to report the death of the
RPM for Kagera region, Mr. Michael Machuche who passed away on March 12, 2017;
arrangements for his replacement are under way.
All RPMs have office space within the Regional Secretariat’s office. Small investments in
furnishing and equipment (e.g. projector, multi-function printer) have been made for these
work spaces. All regional staff members have been issued project laptops and modems. At the
LGA level, all resident mentors have working space within the council director’s office. In
order to streamline and ensure cost efficiency of future procurements and activities at the
regional and LGA level, RPMs in collaboration with mentors have developed lists of local
venders and using this list, providers of various supplies have been identified and contracted.
10.2 Cluster meetings Each RPM is responsible for managing and coordinating PS3 activities at regional and LGA levels,
while the mentors are responsible for implementation of technical interventions and mentoring
at LGA level. To help ensure integration of interventions at LGA level, PS3 mentors are organized into a unit that covers two regions and consists of at least one governance, finance,
HR and IS mentor. RPMs and mentors are further organized into regional clusters with five
clusters of two regions and one cluster of three regions. These regional clusters form a
geographic and technical unit for PS3 interventions, communications, coordination, and
management. The clusters meet monthly to develop technical reports and plans.
In Y2Q2, each cluster conducted at least two cluster meetings and submitted internal reports.
The reports highlight managerial and technical successes and challenges.
The regional/LGA program is large and complex and operational issues will consistently arise.
PS3 is continuously adapting program management to ensure good communication between
national and regional/LGA levels and also good management at regional/LGA level. Some of the
challenges and how they were solved, addressed or mitigated are summarized in the table
below.
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Table 5: Summary of Challenges and Solutions/Mitigations
Challenges Solution or Mitigation
Regional Financial Management Officer
(FMO) and Information and
Communication, Technical Officer (ICTO)
were not extensively involved in the
LGRCIS training and implementation
PORALG national teams worked directly with LGA FMOs and
ICTOs in the LGRCIS implementation. However, there is a role for
the regional level so PS3 will gradually involve them in supervision
visits
A few Regional Secretariats feel they are
not directly involved in planning PS3
activities
It is a balancing act and PS3 is developing strategies to increase
communication at regional level while also maintaining appropriate
roles and relationships with national and LGA authorities. Monthly
reports and plans will be shared with regional and LGA focal
persons. In addition, regional focal persons will participate in
quarterly cluster meetings
Need to improve communication and
coordination between technical leads,
RPMs, and mentors for PS3 interventions
Communication and coordination of PS3 interventions at
regional/LGA level will be a constant challenge due to the number
of interventions as well as factors like the timing of agreement with
national authorities for LGA level activities (approval is often
received or plans made at the last minute). PS3 is continuously
improving communication and management through a variety of
mechanisms including use of Jamvi to actively share information,
introduction of systems to increase efficiency, and participation of
national teams in quarterly cluster meetings
Unavailability of IS Mentors for
regional/LGA activities
This is also an ongoing dilemma that will need to be managed. IS
mentors are both designing and developing national system
improvements and in great demand at the LGA level. IS mentors
will be more available after completion of national system
development (e.g. RS/LGA websites, PlanRep, Epicor, LGRCIS)
10.3 PS3 Review Meeting A PS3 review meeting attended by all national, regional, and LGA staff was conducted on March
1-3, 2017 in Dar es Salaam. The purpose of the review meeting was to improve
communication and management by providing an opportunity to interact, exchange
experiences, and share project implementation updates between those operating in the regions
and the technical and managerial team operating from Dar es Salaam. One of the highlights for
the PS3 team was hearing first-hand about the genesis of PS3 from our USAID/COR Ms.
Shannon Young. The meeting included presentations from all technical components, as well as
cross-cutting or support teams such as gender, M&E, communications, and finance and
administration. It also included gender sensitization training and M&E training on the revised
indicators and data collection and entry system. The meeting built on the momentum from last
quarter’s RPM and mentor orientation. It increased understanding of the project culture and
implementation strategies and further solidified strong working relationships between staff at
different project levels. In addition, the follow-up after regional/LGA staff had deployed for a
few months was a valuable contribution to increasing understanding of technical program
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interventions, and communicating, addressing or mitigating any issues that arose after
deployment.
10.4 Strengthening Program Management During Year 2 the number of PS3 staff has doubled and start-up of regional/LGA operations.
This coupled with the increased complexity of technical interventions and rapid program
implementation growth has put pressure on PS3 management systems and new solutions and
improved systems were needed to address issues and increase efficiency. Several new systems
were implemented including: a training and per diem database which manages staff and
participant per diems and also tracks trainings, workshops and mentor visits; a tool for
automated cash/budget requests on Jamvi so that regional staff can easily ensure funds are
available for regional activities; and an automated leave request tracker that allows all staff,
regardless of which organization they work for to input their leave to both manage human
resources and ensure that while staff are away from post someone is covering their work. PS3
continues to strengthen internal program management systems and improve communication
amongst the team. The project financial procedures/operational manual was updated and
posted on Jamvi ensuring that all staff have access to this information. Senior management and
finance and administrative team continue to identify solutions and improvements to increase
efficiency in program implementation while ensuring compliance with USAID, Abt, and project
policies and procedures.
USAID COR, Shannon Young, speaks to PS3 staff during the review meeting held in February, 2017.
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11. CHALLENGES
In Y2Q2, the major PS3 challenges were related to the rapid growth in program
implementation.
11.1 GOT Communication While in general relationships with PORALG including PS3 national, regional, and LGA level
focal persons are very good, a dilemma has arisen related to the nature of communication
within PORALG. As implementation of technical interventions deepens, the partnership and
daily working relationships between PS3 and the responsible PORALG department and
technical staff has also deepened (e.g. PORALG ICT Department). PS3 strongly believes that
these close working relationships with departments and technical staff reflect successful
program implementation and they also build ownership and institutionalize for
sustainability. On the other hand, at times focal persons do not feel fully informed or are
proprietary about their role which has created minor issues that PS3 wants to address before they become a problem. PS3 is developing a strategy to improve communication with
PORALG focal persons at all levels while not undermining the close working relationships with
departments and technical staff including the following:
Send a monthly schedule of joint PORALG and PS3 activities to PORALG national focal
person so they are aware of all activities and can communicate within PORALG as
necessary
During quarterly cluster meetings at the regional level, involve regional focal persons and update them on activities and future plans
Send monthly plans to LGA focal persons and ensure that all RPM or mentor visits
involve a meeting with focal persons to update them
11.2 PS3 Communication and Program Operational Management
The high level of investment of PS3 staff, unified team, and continuous management
improvements and efficiency gains have allowed PS3 to manage the explosion of implementation
to date. However, it is a challenge now and will become even more so as the volume of LGA
level activities increases. Mirroring the GOT communication process, PS3 is working to
improve communication at all levels using a variety of mechanisms such as Jamvi, monthly
regional/LGA reporting and planning meetings, and informing all relevant staff of activities in
advance although this is often difficult due to the complexities of planning activities together
with GOT. In addition, PS3 will further map staffing, GOT partnerships, and DP collaborations
as well as LGA level program profiles or pictures of all PS3 interventions in each of the 93
LGAs to help ensure that all activities are integrated, coordinated and managed
efficiently. Finally, work continues to improve management systems to increase efficiency and
enable effective program operational management.