Ghana - Promoting Partnerships with Traditional Authorities Project

Document of The World Bank Report No: 25155-GH PROJECT APPRAISAL DOCUMENT ONA PROPOSED LEARNING AND INNOVATION LENDING (CREDIT) IN THE AMOUNT OF SDR 3.70 MILLION (US$5.0 MILLION EQUIVALENT) TO THE REPUBLIC OF GHANA FOR THE PROMOTING PARTNERSHIPS WITH TRADITIONAL AUTHORITIES PROJECT March 10, 2003 Private Sector Unit Africa Regional Office  CURRENCY EQUIVALENTS (Exchange Rate Effective December 2, 2002) Cun-ency Unit = Ghanaian Cedis GHC 8,325 = US$ 1.00 US$ 0.0001201 = GHCl.00 FISCAL YEAR January 1 December 31 ABBREVIATIONS AND ACRONYMS AATC Akyem Abuakwa Traditional Council AC Asantemnan Council ARCC Ashanti Regional Coordinating Council CAS Country Assistance Strategy CDF Country Development Framework CPAR Country Procurement Assessrent Report CPPR Country Portfolio Performance Review DPP Detailed Procurement Plan ERCC Eastern Regional Coordmnating Council FMR Financial Management Report GARFUND Ghana Aids Response Fund GIMPA Ghana Institute of Management & Public Admninistration GoG Govermment of Ghana GPP Global Procurement Plan ICB International Corpetitive Bidding IMF International Monetary Fund ISSER Institute of Statistical Social & Economic Research LIL Learning & Innovation Loan MDU Manyia Development Unit MIS Managemnent Information System M&E Monitoring and Evaluation MoF Ministry of Finance NGO Non-Governmental Organisation PIP Project Implementation Plan PIU Project Implementation Unit PPN Project Procurement Notice PPOG Procurement Policy Oversight Group PRP Procurement Reform Proposal PTA Parent Teacher Association QCBS Quality & Cost Based Selection SBD Standard Bidding Document SOE Statement of Expenditures SPAM School Performance Appraisal Meeting SPN Specific Procurement Notice TA Traditional Authorities TC Traditional Councils TOR Terms of Reference Vice President: Callisto Madavo Country Manager/Director: Mats Karlsson Sector Manager/Director: Demba Ba Task Team Leader/Task Manager Kofi-Boateng Agyen  GHANA PROMOTING PARTNERSHIPS WITH TRADITIONAL AUTHORITIES PROJECT CONTENTS A. LIL Justification Page 1. What is to be learned (why the piloting)? ....................................................................2 2. How are the results going to be used (vis a vis CAS objectives and any follow-on 2 operation)? 3. Other countries or situations where similar efforts have shown promise ................................ 3 B. Structure of the Pilot 1. How will the learning take place? ........................................................................3 2. Outcome-level test to be conducted ........................................................................4 3. Steps Involved in Implementing the Pilot ........................................................................4 4. Learning Expectations to be Documented in the Pilot ..........................................................5 5. Triggers for a Follow-on Operation ........................................................................6 6. Results-based Monitoring and Evaluation Arrangements ..................................................... 6 C. Components and their Implementation Arrangements 1. Project components ........................................................................6 2. Implementation arrangements ........................................................................8 a. Procurement ....................................................................... 10 b. Financial Management ....................................................................... 10 c. Other ....................................................................... 11 D. Risks 1. Social and Environmental Risks ....................................................................... 11 a. Safeguard Policies ....................................................................... 12 b. Other social risks ....................................................................... 12 2. Other Risks ....................................................................... 12 E. Main Loan/Credit Conditions 1. Effectiveness Conditions ....................................................................... 13 2. Other ....................................................................... 13 F. Readiness for Implementation ....................................................................... 13 G. Compliance with Bank Policies ........................................................................ 14 Annexes Annex 1. Project Design Suyary .15 Annex 2. Project Description .20 Annex 3. Estimated Project Costs .23 Annex 4. Financial Management .24 Annex 5. Project Processing Schedule .27 Annex 6. Procurement and Disbursement Arrangements .29 Annex 7. Documents in the Project File .38 Annex 8. Statement of Loans and Credits .39 Annex 9. Country at a Glance .41  Annex 10. Primary Schools to be Rehabilitated .................................................................... 43 Annex 11. Traditional Authorities Organizational Structure - Asanteman Council ..................... 45 Annex 12. Traditional Authorities Organizational Structure - Akyem Abuakwa Traditional 46 Authority  GHANA Promoting Partnerships with Traditional Authorities Project Project Appraisal Document Africa Regional Office AFTPS Date: March 10, 2003 Team Leader: Kofi-Boateng Agyen Sector Manager/Director: Demba Ba Sector(s): Other social services (50%), General industry Country Manager/Director: Mats Karlsson and trade sector (25%), Health (25%) Project ID: P071399 Theme(s): Other human development (P), Other financial Lending Instrument: Learning and Innovation Loan and private sector development (S) (LIL) ] Loan [Xg Credit [ ] Grant [ ] Guarantee [ ] Other: For Loans/Credits/Others: Amount (US$m): 5.00 equivalent Proposed Terms (IDA): Standard Credit Grace period (years): 10 Years to maturity: 40 Commitment fee: 0.50% Service charge: 0.75% BORROWER 0.50 0.00 0.50 IDA 3.66 1.34 5.00 Total: 4.16 1.34 5.50 Borrower: GOVERNMENT OF GHANA Responsible agency: ASANTEMAN COUNCIL SECRETARIAT ASANTEMAN COUNCIL Address: MANHYIA DEVELOPMENT UNIT, MANHYIA PALACE, P.O. BOX 285, KUMASI, GHANA Contact Person: MR. K.K. MENSAH Tel: 233-20 8111791, 233-51 37462, 38774 Fax: 233-51 38774 Email: cpptap(@ africaonline.com.gh Other Agency(ies): AKYEM ABUAKWA TRADMTIONAL COUNCIL, KYEBI AHENFIE SECRETARIAT, KIBI-E/R, GHANA Address: PMB 109, CANTONMENTS, ACCRA, GHANA Contact Person: Dr. Angela Ofori-Atta Tel: 233-21 255453 Fax: 233-21 255455 Email: angielamn@africaonline.com.gh Estimated Disbursements ( Bank FY/US$m): Annual 0.20 2.50 1.80 0.50 Cumulative 0.20 2.70 4.50 5.00 Project implementation period: 3 years Expected effectiveness date: 06/15/2003 Expected closing date: 06/30/2006  A. LIIL JustificaVlorn 1. What is to be Learned (why the piloting)? The main purpose of the LIL is to test in a limited number of areas approaches to: (i) substantively integrate and improve deprived remote and rural communities' involvement in development activities; and (ii) help focus the contributions/influence of Traditional Authorities (TA) in socio-economic development. Traditional Authorities refer to community-based, traditional local governance bodies, which are recognized by the laws of Ghana, exercising their customary authority over local communities. These traditional authorities are paramount chiefs, chiefs, queenmothers, and headpersoris of these communities. Groupings of these traditional authorities for a particular area, region, or kingdom constitute the traditional councils (TC). These groups/communities are headed by a chief. These councils (organizational charts in Annexes 11 and 12) have secretariats which serve as the administrative body of the group. The operations of the secretariat are financed with, among other things, revenues from the sale of the community land, and royalties from mining activities. The proposed LIL will test enhanced roles that these chiefs, queenmothers and other community leaders should play in: (i) the decentralization efforts of central government; (ii) the control of the spread of diseases such as HIV/AIDS; (iii) closing the gap in the provision of, among other things, improved health, and equitable and quality basic education (including the rehabilitation of existing classrooms) in deprived rural and remote areas; and (iv) determining the role of cultural heritage preservation in the socio-economic development of a community. Activities under the proposed project will pilot the changing role of the traditional authorities in development issues in two regions in Ghana. 2. Hlow are the results going to be used (vis a vis CiS objectives and any cIIow-on operation)? Document number: 20185-GH Date of latest CAS discussion: 03/30/2000 The proposed project is consistent with the Bank's Country Assistance Strategy of March 2000 and the goal of assisting the Government of Ghana (GoG) implement its Poverty Reduction Strategy more effectively. The proposed project supports this objective through: (i) strengthening traditional authorities' capacity to keep track of the communities' human resources for development; (ii) enhancing the capacity of the traditional authorities to provide health information in the fight against HIV/AIDS and other endemic diseases; (iii) identifying and testing collaboration arrangements of traditional authorities and their communities in the rehabilitation of education infrastructure and the provision of other inputs to improve access to quality basic education and health services; and -2 -  (iv) awareness creation on cultural heritage preservation. The lessons learned would serve as a basis to design approaches which can be replicated and which would ensure that traditional authorities and their communities participate in development activities and enable the government to reduce development expenditures to sustainable levels. The results would be used to help address the problem of inadequate government funding for development and to foster a more sustainable relationship between the government and traditional authorities. Government spending on the social sectors is estimated at about one-third of total annual national budget allocation. However, government financing is used mainly to pay wages and salaries and relatively little for capital investment. The results of the pilot would also be used to strengthen mechanisms which promote partnerships between government and civil society, an objective that would facilitate increased involvement by the Bank and other donors in the social sectors. 3. Other countries or situations where similar efforts have shown promise. Private provision of health and education services (both on a not-for-profit and a for-profit basis), has complemented government efforts and continues to grow. For example, clinics operated by the Christian and Muslim communities provide over 30 percent of health care in Ghana. Almost 50 percent of health care in Ghana is delivered by the non-public providers. In South Africa, there are a number of traditional authorities which have formed joint-venture partnerships with both public and private organizations to drive development in their communities. Examples of these development-oriented partnerships are found in the Mankwe Region, the Kingdom of Bafokeng, and the Mpungose Traditional Authority. B. Structure of the Pilot 1. How will learning take place? In Ghana, the notable contributions of traditional authorities in the provision of educational opportunities and desirable health outcomes have been reduced considerably over the last few decades due to institutional decay and the general decline in economic activity in the country. Traditional authorities who continue to be custodians of community land, and repositories of the communities' cultural heritage, face the challenge of upholding traditional practices in the modern era and making the institutions relevant to current societal needs. For example, their position as leaders in times of war and as judges during peaceful times has changed. Traditional authorities are now expected to rule by example, govem within the local govemment system, and also lead efforts to develop the community with minimal reliance on govermnent budget. The potential of these traditional authorities as key stakeholders in partnering development is once again being recognized largely because a number of them continue to make decisive contributions to their communities. The government is seeking ways to ensure sustainable changes in the state's role in development, and this would be an opportunity to look to place greater reliance on resourceful civil society organizations such as the traditional authorities. This pilot project would also be a test of the - 3 -  government's ability to convince deprived rural communities of its commitment to bringing social and economic development to their areas in partnership with the communities. Under this pilot, learning will take place by documenting the response of traditional authorities (there are over 300 in the communities identified for this pilot) to capacity-building activities and enhanced advocacy roles. The pilot will also document the traditional authorities' material and other contributions to the provision of social services and to the government's decentralization activities. An assessment of the role of traditional authorities in development activities will be carried out at the beginning of the project, and a monitoring and evaluation (M&E) plan will be put in place to track the experiences under the pilot. The success of the project would be determined by the number of traditional authorities (i.e. the number of chiefs, queenmothers, traditional headpersons of the towns, villages, hamlets in the pilot communities) which will play a more effective role in educational, health, private sector collaboration and other developmental activities, through financial, and in-kind resource contributions. Success would also be measured by the financial and other support provided by the traditional authorities to community volunteers trained under the project to help create awareness; the percentage of community members demonstrating increased awareness of health issues; increased enrollment in primary schools; achievement results of primary school pupils; increased number of teachers in the selected communities up to the full complement; financial and other assistance to teachers in deprived rural and remote areas, the development of business/community development plans, promotional activities and awareness creation on cultural heritage preservation/cultural heritage-focus cottage industries, and increased effectiveness of the traditional law courts system. 2. Outcome-Revel test to be conducted The project will test whether traditional authorities contribute significant financial, human and other resources towards their communities' social and economic development in response to the provision of external resources for rehabilitation of education infrastructure, health awareness programs, and strengthening of technical support in their development units (increased enrollment in primary schools, institution of incentive schemes to retain teachers' in rural and deprived areas, increased awareness on health matters, increased awareness on environmental degradation, etc.). A comparison of traditional authority financial and other contributions in education, health, decentralization, and cultural heritage preservation will be made before and after the project interventions. 3. Steps involved in conducting the pilot The towns and villages of the Asanteman Council (AC), and Akyem Abuakwa Traditional Council (AATC) -in southem and middle Ghana, respectively- will serve as the pilot areas under the project. These traditional councils are groupings of traditional authorities (i.e.chiefs, and queenrothers of towns, villages, hamlets) that are recognised by the laws of Ghana, and are set up to, among other things, forge a conmmon development agenda in their areas of influence/rule. The traditional heads of these two pilot areas are already embarked on community development -4 -  activities in the following sectors: (1) The Asanteman Council is involved in health - HIV/AIDS awareness programs, education - scholarship schemes to support needy citizens, cultural heritage preservation, and private sector development; (2) The Akyem Abuakwa Traditional Council, is also involved in health and cultural heritage-environmental activities. Of particular note is the annual HIV/AIDS awareness day this council holds in the capital of this traditional area every December, and the environmental brigade this council has set up to assist in the protection of forests in the Akyem Abuakwa area. The pilot will be carried out by (a) strengthening the development units/secretariats of the two key traditional councils; (b) identifying and developing programs to help build the traditional authorities' capacity in the government's decentralization efforts, (c) measuring baseline participation levels of rural communities/traditional authorities!lead traditional authority in component sectors, (d) developing a more robust monitoring and evaluation system which will include enhanced indicators for comparing with the baseline annual reviews, (f) analyzing and reporting on findings, (g) identifying and documenting successful approaches for involving traditional authorities in community development in a manner which is sustainable. 4. Learning expectations to be documented in the pilot FI Economic L Technical Z Social 0 Participation ] Financial Z Institutional Z Environmental FII Other Social and Environmental: The project will provide support to educate traditional authorities and their communities on socially-acceptable alternatives to traditional practices in order to create awareness and improve the health status of communities. These initiatives should lead to a reduction in HIV/AIDS infections, and the incidence of other infectious diseases. The Ministry of Health has -good baseline data on the subject Provision of education to children and training for chiefs, queenmothers and their development units would improve the basic literacy, numeracy skills of households; planning and implementation skills of traditional authorities for local development including environmentally sustainable ways of utilizing community resources. Participation: The project will rely heavily on the participation of paramount chiefs, chiefs, queenmothers and other members of the pilot communities. The key paramount chiefs would- provide leadership and additional financial and human resources in the process of improving enrollment in primary schools, while the community chiefs and other members will provide assistance in the rehabilitation of existing primary schools on original sites, creation of awareness on health issues, and sustainable use of the communities' cultural heritage resources. The existing village unit committees will be strengthened and work with the project staff, in monitoring implementation on a regular basis, and also propose improvements to implementation. Institutional: The project relies on and strengthens the chieftaincy institution so that it plays an expanded role in improving access to primary school education for their subjects, enhancing awareness creation on health matters in their communities especially the rural and remote ones, and increasing their participation in the government's decentralization efforts. The effectiveness of these traditional authorities and their supporting development units/secretariats will be documented under the LTr to gauge the facilitation role they play in partnering with government to reduce poverty and also provide good governance. - 5 -  S. Triggers for a folow-on operation A follow-on would be justified if: o RHV/AIDS awareness risk rates and primary school enrollment rates are significandy increased in the pilot communities; and o there are substantive improvements in traditional authority contribution (for example, financial contributions, increased participation in community activities, etc.) to the provision of education infrastructure and education 'software', and participation in government's decentralization efforts. 6. Results-based Monitoring and Evaluation System Monitoring will be done by the delivery of inputs and project outputs, as measured by the goods and services delivered to beneficiaries, and the extent to which the project's objectives are achieved. In order to strengthen the capacity of the traditional authorities to carry out monitoring and evaluation, support will be provided to develop a monitoring and evaluation plan, including the provision of training activities. Staff of the project implementation units in the pilot traditional authorities' Secretariats will coordinate the collection, coordination, transmission, and reporting of data from the partner Ministries, the pilot communities and the traditional authorities. In addition to the monitorable indicators outlined in Annex 2, the support referred to above and the proposed management information systems (MIS) would be utilized in the development of a robust monitoring and evaluation (M&E) system. Evaluation would be on a continuing basis, and would include reviews during implementation support missions, quarterly progress reports and external reviews. Lessons learned would be incorporated in the partnership manual which is to be funded under the project. C. ProJect Componentos and lngmplen2ttaon Arrangeomnts 1. L1IL Components Traditional authorities and communities represented by the Asanteman Council, and those represented by the Akyem Abuakwa Traditional Council will serve as the pilot regions under the project. The sectors for which IDA support was requested by the traditional authorities through the GoG and the specific areas for the support are summarized below. (A) Health: The proposed project seeks to strengthen the capacities of the traditional authorities (chiefs, queenmothers, and village headpersons) and communities in the Asanteman Council areas, and the Akyem Abuakwa Traditional Council areas to effectively participate in activities to improve health and fight HIV/AIDS in their communities. This would be done through regular workshops and seminars for the traditional authorities, community volunteers and community members. The activities to be supported would focus on building the capacities -6 -  of the traditional authorities in the area of basic health, particularly factors that cause ill health as well as on HIV/AIDS. Capacities of these traditional authorities would also be strengthened to enable them to provide better assistance to communities and households to ensure improved health through prevention and care. Community health registers would also be designed and instituted in the project communities. AC (US$0.27M); AATC (US$0.15M). (ii) Education: This component would focus on (a) the provision of resources for rehabilitating basic primary education facilities in select rural and deprived areas in the AC community and (b) design of a partnership method between traditional authorities and government in the provision of quality basic education. The traditional authorities constituting the Asanteman Council have identified improvements in basic education in rural areas as a goal in their community development agenda and have on their own initiative begun setting up mechanisms to achieve this goal. IDA support is therefore being sought to assist in identifying a more structured and sustainable method of partnership with government to help improve access to quality basic education in the Asanteman Council areas (schools are open to all residents irrespective of regional origin and hence benefits are intended for all residents). Assistance will also include support to improve traditional authorities incentive schemes with the objective of retaining teachers in these remote areas, scholarships schemes for primary school pupils, and improved enrollment. The project will also support the strengthening of the Akyem Abuakwa Traditional Council's Secretariat to assist this group of traditional authorities review the state of basic education in their communities and propose actions to improve it. AC(US$2.90M); AATC (US$O.1OM) (iii) Capacity Building : The project would seek to improve (a) the financial and management capabilities of the two councils' respective secretariats and (b) the capacities of the traditional authorities who are members of these two councils, on decentralization and community development issues. A monitoring and evaluation system would be established to ensure feedback on project implementation, monitorable indicators and other administrative issues is readily available. An integral component of the LIL will be regular monitoring and evaluation. Both quantitative and qualitative techniques will be employed in tracking the project indicators (inputs, processes, outputs effects and impact) as indicated in the project logical framework. The MIS to be established in the secretariats/development offices would be utilized to facilitate the flow of information. This will enable the project team to efficiently apply "lessons learned" at the earliest possible opportunity, continually assess progress toward objectives and goal, and respond efficiently to information needs of stakeholders. Baseline data to measure performance will be gathered where possible. In this regard pre and post tests will be conducted as one key - 7-  activity of training programs to establish knowledge levels on project output indicators before and after training programmes. This will also be supported with focus group discussions at community levels. Monitoring and evaluation consultants will be engaged to, among other things, ensure that valid reliable data is gathered. This will also ensure that M&E results are incorporated in all activities to maximise the achievement of project goals and objectives. Review meetings and the periodic and specialised reports will be some of the ways that results on progress and achievements will be disseminated. AC (US$0.64M); AATC (US$0.20M). (iv) Cultral JHeriia: Support would be provided to both councils to improve their communities' ability to carry out programs that would help them to preserve and benefit from their cultural heritage; through, for example, the development of educational activities/curriculum in schools on cultural heritage, linkages to environmental degradation, private sector-community business partnerships to set up for example, eco-tourism projects. Support would also be provided for updating the inventory of cultural heritage artificats/practises. This component would also seek to assist traditional authorities review the operations of the traditional law courts system with the view to reducing the incidence of chieftaincy disputes, land litigation, etc. The study will serve to, among other things, identify needs for revision, codification, and dissemination of traditional laws, and identification of ways to increase the accessibility and effectiveness of traditional law courts. AC (US$0.24M); AATC (US$0.1OM) 1>g ! ~~-., J -~ - '- "-V '!'. r 4| j' ? i'| -- -. - r, t S 4 - j'C ~--.- -;;-_; --j-,-'-r ^ ;~~~~~~~~ .,,vJ > Jg1 S _ .* J$ ~ -=-