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.


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.


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.


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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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


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.


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.


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.


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.


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.


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.


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.


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

34

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


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.

37

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.


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.


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

39

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

40

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.


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.

41

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

42

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.


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.


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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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.

45

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


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

47

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.

48


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

49

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.


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.

50

“…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.


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.

52

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.


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)

55

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


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

56

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.


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.


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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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


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.


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.

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PUBLIC SECTOR SYSTEMS STRENGTHENING

(PS3) IN TANZANIA