lessons from evaluation of world bank support for human development

8/2/2019 Lessons from Evaluation of World Bank Support for Human Development

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Addressing Poverty through Social

Safety Nets

Events of the past decade have underscored the vital

need for social safety nets (SSN) - programs designedto protect the poor from shocks and contribute toreducing chronic poverty - in all countries, especiallyin times of crisis. Over fiscal year 200010, the World Banksupported SSNs with $11.5 billion in lending and anactive program of analytical and advisory servicesand knowledge sharing. IEG has recently evaluatedthe effectiveness of World Bank-supported SSNprograms and found that while Bank support haslargely accomplished its stated short-term objectivesand helped countries achieve immediate impacts, key

areas of Bank support need strengthening. Some of therecommendations and findings included the following:

The Bank needs to engage consistently duringstable times to help countries develop SSNs

that address poverty and can respond to

shocks. Throughout the decade, countries and theBank focused SSN support on addressing chronicpoverty and human development and less on SSNsto address shocks. The financial and food crisespointed out weaknesses in countries SSNs, as many

middle income countries found that their poverty-targeted SSNs were not flexible enough to increasecoverage or benefits as needed while low-incomecountries lacked poverty data and systems to target

and deliver benefits. Countries that had preparedduring stable times by building permanent SSNprograms or institutions were better positioned toscale up than those that had not. The Bank wasmost effective in helping countries in which it hadbeen steadily engaged through lending, Analyticaland Advisory Assistance, or dialogue over thedecade.

Continued emphasis is needed on building SSNsystems and institutional capacity, particularly

in low-income countries. During the evaluated

decade, the Bank began to make an important shiftfrom a focus on projects that emphasize delivery ofsocial assistance benefits to helping countries buildSSN systems and institutions that can respond tovarious types of poverty, risk, and vulnerability. TheBank focused its lending, analytical and capacity-building support for SSNs significantly more onmiddle-income countries (MICs) than on low-income countries (LICs) throughout the decade,though attention to LICs increased after the crisis

Lessons from Evaluation ofWorld Bank Support to

Human Development

1. Addressing Poverty through SocialSafety Nets

2. Learning from Health Reforms: The

Experience of Argentina and Brazil

3. Reforming Higher and TechnicalEducation: The Experience of Zambia,

Egypt, Jordan, and Yemen

4. Upcoming Evaluations

Contents
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facilitated by trust funding.

Short- and longer-term results rameworks orBank SSN support need to be strengthened.

The Banks support for SSNs has been effectivein helping countries reach short-term objectives,such as encouraging poor children to attend

school or increasing households short-termconsumption; however, these SSN projectobjectives have not been adequately anchoredin longer-term development objectives, such asimproving learning and income earning potential.

Further efort is needed to ensure strongcross-network coordination o SSNs. InternalWorld Bank coordination for SSN is challengingdue to its multisectoral nature. Sources of tensionexist with regard to budget arrangements, taskmanagement, and accountability.

For more information, please download the study,Social Saety Nets: An Evaluation o World Bank

Support, 2000-2010.

In the past year, IEG also evaluated SSN projects inColombia and Ethiopia. In 2005 the World BanksSocial Saety Net Project supported the Familiasen Accin conditional cash transfer program (CCT)in Colombia to strengthen the countrys safety net.

The project set out to consolidate and expand the

program and improve the monitoring and evaluationof the country s safety net portfolio. IEGs projectevaluation found that support to the consolidationand expansion of the Familias en Accin helpedto quadruple the number of beneficiaries, with 45percent of benefits going to the poorest families.Consistent with needs, most of the benefits went topre-school children and secondary school students.Due to diffi culties with scale-up in urban areas uptakerates were lower than expected and compliancewith health and education co-responsibilities did notreach its targets. Crucial second generation issues(such as (i) modification of the education benefits toemphasize secondary school incentives in large urbanareas, as recommended by impact evaluations; (ii)incorporation of information technologies to reducetransaction costs) were addressed, contributing tothe consolidation of the CCT program by making

it more inclusive and cost-effective. Monitoringand evaluation systems were also strengthened.Short-term education, nutrition, health, and foodintake outcome indicators improved for programbeneficiaries.

IEGs impact evaluation found that the program

helped increase the likelihood that participantchildren complete high school and promotedhigh school completion rates among girls andrural students. The evaluation also found that thetest scores of program recipients who graduatedfrom high school were similar to the ones of poornon-recipient graduates. More information canbe found in the Project Performance AssessmentReport, Colombia Social Saety Net Project, and theImpact Evaluation,Assessing the Long-Term Efectso Conditional Cash Transers on Human Capital:

Evidence rom Colombia.

In 2005, Ethiopias Productive Saety Net Program(PSNP) was established to provide transfers to thepopulation in chronically food insecure woredas(districts) in a way that prevents asset depletionat the household level and creates assets at thecommunity level. The new safety nets approachfocused on tackling chronic or seasonal hungerand sought to provide a more sustainable safetynet system compared to the previous emergency

appeal system. The Bank supported the PSNP throughthree Adaptable Program Loans (ALP). Despite theproblems associated with implementation, there isstrong evidence that the lessons from APL1 have beencritical in enabling improvements to be made to theprogram and to the system of programs that addressfood insecurity and poverty. The achievement of theobjective was demonstrated by the transitioning awayfrom ad hoc annual appeals for emergency food aidtowards a more predictably resourced, multi-annualsafety net system. A dialogue has emerged recently on

what sorts of programming might achieve this. Sucha dialogue would not have been possible in 2005 atthe start of APL1. There was also progress reversingthe upward trend in food insecurity during APL1although a caseload of more than 7 million remainedin the PSNP in 2010 due to population growth and

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the impacts of food price shocks in 2008. Above all,the PSNP demonstrates what can be achieved in alow-income country with limited capacity and highlevels of poverty. For more information, downloadthe Project Performance Assessment Report, EthiopiaProductive Saety Net Project.

Learning from Health Reforms: The

Experience of Argentina and Brazil

IEG conducted a project performance assessmenton three health operations including a SectorAdjustment Loan (SECAL) in Argentina, and two first-phases of multiple-years APL1 in Brazil and Argentina.All three operations assisted the governments indeveloping reforms at the primary health care (PHC)level and disbursed earmarked funds for reforms tosupplement the existing government budget. These

operations also introduced financial incentives tothe health sector to change the incentive frameworkand reward health authorities and staff for betterresults. In Argentina, the SECAL and the APL1 helpedfund implementation of the key reform package,namely the Maternal and Child Health InsuranceProgram, which contains a supply-side subsidy toPHC providers. In Brazil, the APL1 supported theGovernment Conversion Program, which reorganizedtraditional PHC into family medicine facilities. While

the three operations have introduced innovativefinancing features and health care reforms, it is equallyimportant to highlight the support these operationsgave to strengthening monitoring and evaluationof patient-level data, and the building up of skillsand institutional support, which contributed to thesustainability of the reforms.

In Brazil, comparative studies found better qualityof care in family medicine than in the traditionalprimary care model. Municipalities could win abonus and performance price if they improvedhealth administration and financial management andmade progress in family medicine implementation.Overtime, participating municipalities substantiallyimproved their management performance as well astheir family medicine coverage rates. Although Brazildid not add a financial incentive to the payment of

providers, the use of health services in family medicinecenters increased.In Argentina, the SECAL supported policy actions andprotected the financing for essential health programsduring times of economic crisis. Consequently, useof these programs remained high and increased,including such services as directly-observed treatment,short course (DOTS) for TB and treatment for theprevention of mother-to-child transmission of HIV. Atthe same time, the APL1 in Argentina contributed to
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improved quality of care by increasing the financialresources available for basic care and by traininga large number of medical staff in the adherenceto 80 treatment protocols. The fiscal transfer to theprovinces was linked to Maternal and Child HealthInsurance Program enrollment and results achieved inten health indicators The performance of ten relevantbasic health indicators increased substantially over theproject time.

Some of the lessons learned from the assessmentwere:

Following policy-based lending with an APLprogram can help the government stay on thecourse of the reform.

Reliable inormation systems, analysis, andindependent concurrent audits are prerequisites

for allocating resources based on populationneeds and service use.

Strategic and substantial upront investmentsare needed if a country plans to modify theincentive system in health to stimulate bettersector performance. These comprise investmentin data analysis and reporting of results backto providers; provider readiness including stafftraining and possibly recruitment of additionalstaff; institutional capacity building in budget andfinancial management; and management capacity

of the health system. In the case of Argentina, theprovinces had to invest in detailed data collectionand analysis to show their progress towardstargets. To ensure the accuracy of the data, resultswere audited by an independent private auditfirm and provinces and providers were fined forincorrect data reporting.

There is a need or strong collaboration withlocal governments and providers to ensuretimely information transfer to define paymentand implementation of corrective measures to

improve results. This is important to ensure theeffectiveness of linking disbursement from thecenter to provinces to results in decentralizedhealth systems and for central governments toreceive the relevant information from local levelson the use of funds.

Pooling World Bank and government undscan build capacity in governance, but also

increase transaction costs or governments.Depending on the country context, institutionaland governance adjustments may be needed. Ifmunicipalities are the final recipients of pooledfunds, administrative staff may need training inplanning and budgeting to be able to plan, access,and implement funds in a timely manner.

To learn more, download the Project PerformanceAssessment Report, Results-Based Health Programs inArgentina and Brazil.

Reforming Higher and Technical

Education: The Experience of Zambia,

Egypt, Jordan, and Yemen

The Zambia Technical Education, Vocational andEntrepreneurship Training Development SupportProgram, implemented between 2002 and 2008,aimed to comprehensively reform Zambias TechnicalEducation, Vocational and Entrepreneurship Training(TVET) system. The changes were made throughgranting financial and managerial autonomy to thepublicly-owned training institutions; establishing anautonomous national training authority (TEVETA)responsible for regulation and quality assurance;financing training in all types of institutions through

a competitive fund (TEVET Fund); and diversifyingsources of funding through cost recovery (studentfees) and a proposed payroll levy on enterprises. Theimplementation authority for TVET would be shiftedfrom the central government to the new trainingauthority and training institutions, with the centralministry focusing upon policy formulation andinformation management.

The Training Development Support Program madeconsiderable progress towards raising the quality

of the system, with the new quality assurance andcurriculum development procedures implementedby TEVETA, which can be expected to improve thequality of training. Improvements were also madein increasing the demand orientation of training, byinvolving industry experts through TEVETA in setting
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supported reforms motivated by the World Bank-endorsed Higher Education Reform Model, whichincludes university autonomy with accountability,quality assurance, and accreditation; transparentfinancing; competition for research funds; increaseduse of Information Communication Technologies(ICT) for teaching; differentiated missions; diversified

finance; cost recovery; and overall system coordinationand oversight. Five of these features were adoptedand relatively well implemented in Egypt and Jordan,namely quality assurance; competition for research/development funds; increased use of ICT; differentiatedmissions (less well implemented in Jordan); and overallsystem coordination (less well implemented in Jordan).None of the features incorporated in Yemens HigherEducation Project were implemented fully successfully,but there were some parts of the model not includedin the Bank-supported Yemen project that were

successfully instituted in the country during the projectperiod (competition for funds; differentiated missions;cost recovery). Features such as formula financing anduniversity autonomy met with resistance in all threecountries.

The three projects were most focused and successfulat creating inputs or immediate conditions (drawingfrom the higher education reform model) for improvedquality. However, data was not collected in any of thecountries to measure whether these inputs and outputs

have made a difference in terms of student outcomessuch as improved learning and/or better preparation forthe labor market.

Egypt, Yemen, and Jordans experiences provide lessonsfor other countries attempting to reform their highereducation system:

The introduction o a widely adopted changemodel needs to be preceded by su cient sector

analytic workto create an appreciation of thecomplexities and implications of the proposed

changes and of the likely sources of resistance.Such analysis could help determine the parts of themodel that are appropriate to the context and thepace of adoption.

Restructuring o higher education courses andprograms and private sector participation in

decision-making is not su cient on its ownto ensure that the reforms will result in moreemployable graduates. Instead, higher educationsystems need to systematically monitor the labormarket relevance of their offerings and the successof their graduates.

Eforts to enhance the quality o highereducation must ocus on improving learning

outcomes, which implies the need for standardizedassessments of student achievement.

Decreasing graduate unemployment requiresserious gate-keeping by the government,shifting enrollments away from overloaded fields,and more serious incentive structures to study inneeded fields.

For more information, download the Project

Performance Assessment Report, Higher EducationReorm in the Middle East and North Arica: An IEGReview o the Perormance o Three Projects.

IEG recently assessed the experience of two educationprojects in Jordan: the Jordan Higher EducationDevelopment Project and Education Reform forKnowledge Economy I Program. The Higher EducationDevelopment Project was implemented from 2000 to2007 and aimed to improve higher education quality,relevance, and effi ciency by investing in ICT, scientific

equipment, and faculty training needed to upgradeuniversity academic programs and managementinformation systems. The project also attempted toreform education sector governance by strengtheningrecently created governance structures such as theHigher Education Accreditation Council for qualityassurance and the Higher Education Council for overallpolicy making. Additionally, the project had a goal ofimproving links to the labor market by reforming thesystem of community colleges under the oversight of ABalqa Applied University (BAU).

The project accomplished the building of systemsthat can contribute to better management throughimproved ICT. Some improvements in quality resultedfrom the provision of much-needed ICT equipment forteaching and learning and some changes in teachingmethods. However, the reforms of governance fell short

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of most of their objectives. The formula for fundingrecurrent budgets was not implemented due topolitical and technical constraints. The competitivefund for new academic programs only becamefully competitive near the end of the project, andthe reforms of the community colleges under theoversight of BAU to improve labor market relevancewere not completed.

The Education Reorm or Knowledge Economy

Program was implemented from 2003 to 2009and aimed to improve the quality, relevance, andeffi ciency of early childhood, basic, and secondaryschool education systems by developing a newcomprehensive vision and strategy for basic andsecondary education, developing new curricula,training teachers, upgrading the learning environmentin schools, and promoting early childhood education.By the end of the project, 80 percent of Jordansschools were connected to the Internet, and almost allschools had at least basic ICT equipment. Moreover,performance on learning assessments showedimprovement from the new curricula, learningmaterials, and teacher training.Jordans experience indicates that the followinglessons:

The complexity o education reorm requiressustained efort beyond the standard ve-year

project cycle. The emphasis on critical thinkingand creative problem-solving at each level meansthat some mutual adjustments are needed.

Higher education curricula need to continueadapting to the new secondary graduates

while the admission procedures for highereducation need to adapt to the criteria of theknowledge economy.

The higher education system can do moreto improve quality and relevance, including

becoming actively linked in real time with

the labor market and economy. More up-to-date labor market information is needed aswell as more private sector representation inthe governance of universities and communitycolleges.

For more information, download the ProjectPerformance Assessment Report, Hashemite Kingdomo Jordan Higher Education Development Project and

Education Reorm or Knowledge Economy I Program.

Upcoming evaluations

IEG is in the process of evaluating the World BanksSupport or Youth Employment over FY 2001-2011.Youth employment has become a major and costlyissue in many countries. Young people encountermore diffi culties than adults in finding quality workor becoming self-employed. In many countries,females entering the labor force face more socialand labor market entry barriers than men. Instead

of contributing to the economy, the young whoare underemployed or unemployed, incur costs tothe economy. This evaluation will identify what theWorld Bank is doing to promote youth employment,showcasing the international evidence on initiativesto promote youth employment and draw lessonsemerging from the Banks support in helpingcountries increase employment of young workers.

The evaluation report is due in summer 2012.

IEG is finalizing an evaluation of the World Bank

Groups Response to the Global EconomicCrisis: Phase II. In addition to fiscal and financialsector support, the report analyzes the Banks socialprotection response. The global crisis came on theheels of food and fuel price crises with which poorand vulnerable households had already had to cope.
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It is estimated that the crisis increased the worldspoor by an additional 53 million people in 2009.

Consequences of the crisis for households weretypically threefold: fewer jobs and lower earnings,lower remittances, and reduced access to basic socialservices. The aim of IEGs real-time evaluation is toassess how relevant and effective the Bank has beenin helping countries use, scale up, and develop theirsocial protection programs and policies to protecthouseholds and workers from the shocks of the globaleconomic crisis. The evaluation report is due in fall2011.

IEG is currently fielding a project performanceassessment on Technical and Higher Education inColombia, Chile, and India to help inform the YouthEmployment evaluation. Findings and lessons fromthe evaluation of these projects will be available byJune 2012.

For more information, visit the IEG webpage at http://ieg.worldbankgroup.org

lessons from evaluation of world bank support for human development

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