The World Bank The Gambia Public Administration Modernization for Citizen Centric Service Delivery Project (P176924) Concept Environmental and Social Review Summary Concept Stage (ESRS Concept Stage) Public Disclosure Date Prepared/Updated: 07/29/2022 | Report No: ESRSC02901 Jul 29, 2022 Page 1 of 11 The World Bank The Gambia Public Administration Modernization for Citizen Centric Service Delivery Project (P176924) BASIC INFORMATION A. Basic Project Data Country Region Project ID Parent Project ID (if any) Gambia, The WESTERN AND CENTRAL P176924 AFRICA Project Name The Gambia Public Administration Modernization for Citizen Centric Service Delivery Project Practice Area (Lead) Financing Instrument Estimated Appraisal Date Estimated Board Date Governance Investment Project 12/5/2022 3/10/2023 Financing Borrower(s) Implementing Agency(ies) Ministry of Finance and Ministry of Finance and Economic Affairs Economic Affairs Public Disclosure Proposed Development Objective To improve Fiscal and HR management capacity for improved service delivery. Financing (in USD Million) Amount Total Project Cost 50.00 B. Is the project being prepared in a Situation of Urgent Need of Assistance or Capacity Constraints, as per Bank IPF Policy, para. 12? No C. Summary Description of Proposed Project [including overview of Country, Sectoral & Institutional Contexts and Relationship to CPF] Component 1: Enhancing Economic Governance and Fiscal Management The overall programmatic objective of this component is to address weaknesses in revenue and expenditure administration, that undermine the government’s capacity to finance its operations, including the delivery of services. This objective will first be achieved by supporting improved transparency and oversight in the collection of direct and indirect taxes and the public investment decision making process. Subsequently, this objective will be supported by efficiency measures that center on taxpayer compliance and project appraisal coverage. Jul 29, 2022 Page 2 of 11 The World Bank The Gambia Public Administration Modernization for Citizen Centric Service Delivery Project (P176924) Sub-Component 1.1: Tax Administration The objective of this sub-component is to support the implementation of the newly procured integrated tax administration system to allow for better identification management of the tax base, including both private and corporate taxpayers. Once this system is in place, this sub-component will support activities to enhance voluntary compliance for all segments of taxpayers (e.g. small, medium, and large) through added functionalities for electronic declarations and payments as well as electronic administration of VAT. Sub-Component 1.2 Public Investment Management The objective of this sub-component is to support better oversight of the public investment management process and in applying the new climate-smart project appraisal and selection procedures. Once these systems and capacities are in place, this sub-component will support additional measures to enhance investment efficiency for PPP projects, for the public procurement function as well as for SOEs via performance monitoring. Component 2: Supporting Public Administration Capacity The overall programmatic objective of this component is to support the modernization of the public service to more effectively perform its functions, including the delivery of public services. This objective will first be achieved by supporting improved transparency and oversight in human resource management, including the reinforcement of Public Disclosure analogue processes and procedures related to pay and pension administration. Subsequently, this objective will be supported by efficiency measures that help to digitize human resource management, including through the introduction of a Human Resource Management Information System (HRMIS). Sub-Component 2.1: HRM Policies and Practices The objective of this sub-component is to first support an update the organic framework and establishment, including a census of civil servants and pensioners, which will allow for improved establishment and payroll controls. Once this basic information is in place, this sub-component can support more efficient management process of civil servants, including practices related to time and attendance, pension administration, and performance management. Sub-Component 2.2: HRM Digitization The objective of this sub-component is to support the development of a Human Resource Management Information System (HRMIS). This HRMIS will provide basic modules needed to oversee the public sector establishment, including biographic data that verifies the unique identification, realness, and eligibility of civil servants and pensioners. Once these basic management modules are in place, additional modules can be rolled out to increase the efficiency of wage and pension payments as well as supporting performance management of civil servants in the future. Sub-Component 2.3: Capacity Building The objective of this sub-component is to train a cadre of civil servants capable of helping the government achieve its development priorities and delivery quality services for citizens. Initially, this sub-component will achieve this through Jul 29, 2022 Page 3 of 11 The World Bank The Gambia Public Administration Modernization for Citizen Centric Service Delivery Project (P176924) providing just in time training to civil servants that will allow for improved oversight of core government functions, including procurement, FM, and E/S risk management. Going forward, targeted curricula and accreditation programs can be developed with the support of the MDI, which can more efficiently delivery targeted course offerings in Gambia and avoid an overreliance on outsourcing trainings to institutions abroad. Component 3: Strengthening Transparency & Accountability The overall programmatic objective of this component is to reinforce the foundations of transparency and accountability in the Gambia, which are the necessary prerequisites to improving service delivery, rebuilding the trust of citizens, and rebuilding the social contract in the long run. This objective will first be achieved by supporting the implementation of the Gambia’s access to information law, which will improve the transparency of fiscal and administrative data. Likewise, support for citizen engagement mechanisms will increase the oversight and accountability environment, which is essential for improved service delivery. Going forward, this objective will be supported by improving the efficiency of transparency and accountability mechanisms, including the use of digitally enabled tools for information disclosure and citizen engagement. Sub-Component 3.1: Access to Information The objective of this sub-component is to support the implementation of the Access to Information law, which will provide publicly available information, including financial and administrative data, on the performance of key government entities. Once basic mechanism are in place to support proactive disclosure in line with the legal Public Disclosure framework, additional support can be provided to make this process more efficient through the development of an ATI platform, which can assist demand driven requests from information. Sub-Component 3.2: Fiscal Transparency The objective of this sub-component is to support the production of key fiscal and financial reporting data. Once basic capacities are built to improve the timeliness and coverage of fiscal reporting, additional measures can be employed to improve the efficiency of this process, including the use of the BOOST system as well as support for improving the management information system of the Bureau of Statistics. Sub-Component 3.3: Citizen Engagement The objective of this sub-component is to create the necessary citizen engagement mechanisms in order to support the overall CFP objectives, including those that support improved transparency and accountability for service delivery. In doing so, this sub-component will support the development of a Citizen Engagement Country Platform (CECP) to ensure continuous engagement between key stakeholders and the government, with a view to better informing the country’s development priorities, as well as a Citizen Relationship Management System (CRM) for case management and complaints. Going forward, additional support will be provided to introduce citizen charters in selected service delivery sectors. Component 4: Project Management Jul 29, 2022 Page 4 of 11 The World Bank The Gambia Public Administration Modernization for Citizen Centric Service Delivery Project (P176924) The overall programmatic objective of this component is to reinforce the existing FMDP PIU to serve are the core implementing entity of the project as well as to provide resources in the event of an emergency or natural disaster. Sub-Component 4.1: Supporting a Project Implementation Unit The objective of this sub-component is to support the PIU that shall be responsible for: (i) day-to-day management of the project; (ii) fiduciary oversight; (iii) monitoring and evaluation (M&E); (iv) coordination of project activities across beneficiaries; (v) change management; and (vi) communication. In this regard, the project will support the recruitment of relevant staff, the limited refurbishment of office space, and the acquisition of IT materials to support the work of the PIU. Sub-Component 4.2: Contingent Emergency Response Component (CERC) The objective of this sub-component is to facilitate re-allocation of project funds to support emergency response in the event of an eligible crisis or emergency, including those related to climate change. The sub-component would draw from the uncommitted grant resources under the project. If activated, this activity includes technical assistance, capacity building, and capital investments relevant to the achievement of the PDO following an eligible crisis or emergency. D. Environmental and Social Overview D.1. Detailed project location(s) and salient physical characteristics relevant to the E&S assessment [geographic, Public Disclosure environmental, social] The Project Development Objective (PDO) which will be implemented at the national level is to improve Fiscal and HR management capacity for improved service delivery. The exposure of Gambia’s public administration to environmental and climate risks is related to extreme temperatures, precipitation and flooding, drought, sea level rise, storm surge, and coastal erosion. Climate shocks have economic implications for both the agricultural and for non-agricultural sectors. Agriculture and aquaculture contribute to a large share of economic output and employment but are subject to frequent droughts and movement of fishing grounds triggered by climate change. The December 2020 Gambia Economic Update estimates that given the variability of rainfall in The Gambia, roughly once every eight years, low rainfall could cause GDP to fall by at least 3.5 percent. In addition, coastal erosion caused by climate change poses a serious threat to the economy, as beaches are The Gambia’s main tourist attraction. The Gambia’s public administration social risks are related to (i) dissatisfaction with the government’s role in articulating a clear vision of what the “New Gambia” will look like; (ii) public frustration with the economy as well as poor and unequal service delivery; (iii) tensions over land; (iv) a lack of economic opportunities; and (v) growing ethno-religious polarization. Given these challenges, there have been recurring protests in The Gambia linked to the functioning of the government and the lack of economic opportunities, demonstrating growing frustrations among the population over the fact that their hopes for a better future and more opportunities have not materialized with the transition. Improving service delivery in the Gambia’s fragile context given the lack of trust and weak government legitimacy requires institutional capacity to manage effectively environmental and social risks (ESRM). A rapid preliminary review of institutional arrangements, procedures, and operational arrangements indicates major systemic challenges and common ESRM issues that cut across various public administration institutions. For example, ESRM Jul 29, 2022 Page 5 of 11 The World Bank The Gambia Public Administration Modernization for Citizen Centric Service Delivery Project (P176924) responsibilities are spread across multiple government agencies and departments , making it very difficult to manage or mitigate risks effectively. Furthermore, the fragmented institutional landscape makes it difficult to coordinate a nexus of land administration, environmental management, labor, social protection, and all the social risks that derive from these challenges. D. 2. Borrower’s Institutional Capacity The Gambia Public Administration Modernization Project (PAMP) will be implemented through the existing structures of the Government. The current PIU of the Fiscal Management Development Project (FMDP) (P166695) under implementation will be responsible of the day-to day project Coordination and Administration in compliance with the World Bank fiduciary regulations and Environmental and Social Framework (ESF). This team is fully in place and includes a project manager, a financial management (FM) officer, a procurement officer, and a monitoring and evaluation (M&E) officer, among others. The appointment of one environmental and social (E&S) specialist as per the FMDP’s Environmental and Social commitment Plan (ESCP) was estimated to be not relevant, as it was linked to the implementation of the Social Plan/Retrenchment activities of the Gambia Telecommunications company/Gambia Telecommunication Cellular Company (GAMTEL/GAMCEL) work force, which the project did end up not financing nor has it financed any civil works which may affect the environment. For the purpose of the PAMP project, the current M&E officer of the FMDP project will be also assigned for oversight of any E&S risks and impacts that could be related Public Disclosure to the implementation of project’s activities. His capacity to do so in line with the World Bank Environmental and Social Framework (ESF) will be strengthened by World Bank experts. The capacity building will include following areas: assessment and management of environmental and social risks and impacts related to project’ activities in line with relevant ESF Environmental and Social Standards (ESSs), quality review of E&S instruments, management of waste, especially e-waste, stakeholders engagement, proper grievance management, management of health and safety aspects, working conditions. Bank team will review his current Terms of References, to reflect his role related to E&S. II. SCREENING OF POTENTIAL ENVIRONMENTAL AND SOCIAL (ES) RISKS AND IMPACTS A. Environmental and Social Risk Classification (ESRC) Low Environmental Risk Rating Low The project environmental risk rating is Low at concept stage. This assessment may be revised or confirmed at the appraisal stage Environmental and Social Review Summary (ESRS), once additional technical details regarding project financed activities and scope are known. According to information provided in the Project Information Note (PCN), there are no civil works, rehabilitation, or construction planned under this project’s components, including CERC component which aims to facilitate re-allocation of project funds to support emergency response in the event of an eligible crisis or emergency, including those related to climate change. If activated, the CERC component would draw from the uncommitted grant resources under the project to provide technical assistance, capacity building, and capital investments relevant to the achievement of the PDO following an eligible crisis or emergency. Therefore, no irreversible environmental risks and impacts are anticipated. Key environmental concerns could be related to: (i) occupational health and safety of workers in this COVID-19 context; and (ii) the disposal of e-waste from IT Jul 29, 2022 Page 6 of 11 The World Bank The Gambia Public Administration Modernization for Citizen Centric Service Delivery Project (P176924) equipment. All these risks likely to be generated from the project activities are expected to be site-specific, temporary, and manageable to an accepted level by applying good international best practices, and adequate mitigation measures. Social Risk Rating Low At the concept stage, the social risk is considered to be low. As mentioned above under the Environmental Risk Rating, no physical works including rehabilitation, or construction are planned under this project according to information provided in the project PCN. The specific project activities which involve IT physical equipment, will have very little impact on the social risk although there are some potential environmental hazards as mentioned in the previous sections which could affect people. There is a medium-to long-term indirect social risk in the transition to better coverage of tax collection. This could initially have a negative effect on low-income households or individuals who have previously not paid tax and are brought into the tax mechanisms. This could potentially further impoverish low- income groups. Phasing this sequence or providing some fiscal benefits for this group would mitigate this risk as well as clear consolations and communication on the impacts of these changes. Possible exclusion of stakeholders (including women/women organizations, vulnerable organizations/peoples including persons with disabilities, those living in remote areas, women headed households, illiterate persons, etc.) could occur under component 3.3 (citizen engagement) and component 3.1 (access to information), as well training activities. Robust stakeholder engagement and monitoring of the Stakeholder Engagement Plan would be essential to mitigate exclusion risks. Additionally, given the growing ethno-religious polarization, care will need to be taken that certain ethnic or religious groups are not overrepresented in the low-income category who will absorb the greatest shocks in fiscal changes. Good socio- economic assessments and mapping of poverty in addition to sound consultation would mitigate the worst effects of this risk. Public Disclosure B. Environment and Social Standards (ESSs) that Apply to the Activities Being Considered B.1. General Assessment ESS1 Assessment and Management of Environmental and Social Risks and Impacts Overview of the relevance of the Standard for the Project: This Standard is relevant. The proposed project components, including the CERC are expected to have limited adverse impacts on the environment and people, as it will focus on helping the Gambian government in improving its governance and fiscal management through tax administration, support public administration capacity HRM policies, as well as Strengthening Transparency & Accountability etc. Adverse environmental and social impacts expected to result from project’ activities will be mostly be related to occupational health and safety issues including risks related to COVID-19, and stakeholder exclusion risks. However, these potential environmental and social risks and impacts are predictable, expected to be temporary, low in magnitude, and site-specific. E&S measures and screening will be reflected in Project Operational Manual and screened prior to project activities. These measures will also cover the training and citizen engagement activities (and the participation of vulnerable groups/individuals and other stakeholders) to be done under the project. Areas where “Use of Borrower Framework” is being considered: Jul 29, 2022 Page 7 of 11 The World Bank The Gambia Public Administration Modernization for Citizen Centric Service Delivery Project (P176924) This project will not use the Borrowers’ Environmental and Social Frameworks in the assessment or in the development and implementation of investments. However, it will comply with all relevant national environmental and social laws, policies, and regulations. ESS10 Stakeholder Engagement and Information Disclosure This standard is relevant. Given the number of stakeholders involved in project implementation as well as the many Ministries, Departments, and Agencies (MDAs) that will be impacted by the reforms, it may be difficult to ensure that all activities are endorsed and supported by key constituencies. In addition, resistance from civil servants may emerge, where the introduction of the Human Resource Management Information System (HRMIS) could face challenges from civil servants and their unions. In this context stakeholder engagement will be critical to prevent and manage social and environmental risk for project sustainability and success. The Borrower will then prepare and implement a Stakeholder Engagement Plan (SEP) commensurate with the nature and scale of the project and the associated risks and impacts, and will ensure the inclusion of consultation and information disclosure that accessible to all stakeholders. The SEP will be disclosed and made public and updated, if need be, in the light of stakeholder feedback. The primary stakeholders of this project include: the Ministry of Finance and Economic Affairs (MoFEA) and its Public Investment and Debt Management departments, Gambia Revenue Authority (GRA), Personnel Management Office (PMO), and Project Steering Committee (PSC), Management Development Institute (MDI), Ministry of Information, Communications, and Infrastructure (MOICI) and the future Information Commission, MOFEA Accountant General Department (AGD), National Audit Office (NAO), and MDAs to be impacted by the reforms. In addition to these government counterparts, the project will need to engage civil society, private sector, Public Disclosure unions. The SEP will be disclosed as early as possible prior to Appraisal. The Borrower will seek stakeholder feedback and opportunities for proposed future engagement, ensuring that all consultations are inclusive and accessible (both in format and location) and through channels that are suitable in the local context. If major changes are made to the SEP during project implementation, a revised SEP should be publicly disclosed. The Borrower will engage in meaningful consultations with all stakeholders throughout the project life cycle, paying attention to the inclusion of all groups, enabling them to be engaged in planning and decision-making, and considers the special needs of the disabled and other vulnerable groups. The SEP will also include a grievance mechanism (GM) to receive and address all complaints that could likely arise as a result of project activities, receive feedback from stakeholders and beneficiaries in a transparent and timely manner. B.2. Specific Risks and Impacts A brief description of the potential environmental and social risks and impacts relevant to the Project. ESS2 Labor and Working Conditions Jul 29, 2022 Page 8 of 11 The World Bank The Gambia Public Administration Modernization for Citizen Centric Service Delivery Project (P176924) This standard is relevant. The project will surely include direct (e.g., full-time staff and part-time consultants hired for the PIU), and contracted workers (suppliers). This being a low risk project, relevant principles of Labor Management Procedure (LMP) in line with this ESS2 and the national labor regulation will be incorporated in the ESCP. Details of labor management procedures will be reflected in the project operational manual (POM), including a Grievance Mechanism (GM) for project workers (including PIU staff), , conditions of employment, nondiscrimination and equal opportunity, worker’s organizations, child labor, forced labor and occupational health and safety. Civil servants will be bound by their public sector contracts unless their contract has been transferred to the project. ESS3 Resource Efficiency and Pollution Prevention and Management This standard may be relevant regarding the safe disposal of IT waste. Measures for the efficient use of resources (energy, water, raw material) and for the pollution prevention, especially measures to manage e-waste, will be set out in the POM. ESS4 Community Health and Safety This standard may be relevant regarding the safe disposal of IT waste . Measures will be included in the project Operational Manuel to ensure the the disposal of e-waste doesn't affect community. ESS5 Land Acquisition, Restrictions on Land Use and Involuntary Resettlement Public Disclosure This standard is not relevant as there will be no land acquisition and no economic or physical involuntary resettlement. ESS6 Biodiversity Conservation and Sustainable Management of Living Natural Resources This standard is not relevant at this stage as the project does not involve biodiversity conservation and sustainable management of living natural resources. ESS7 Indigenous Peoples/Sub-Saharan African Historically Underserved Traditional Local Communities This Standard is not currently relevant as there are no Indigenous Peoples/Sub-Saharan Historically Underserved Traditional Local Communities in the project area that fulfill the four characteristics indicated under ESS7. ESS8 Cultural Heritage This standard is not relevant at this stage as the project will not finance activities that will affect cultural heritage, nor activities that could lead to “Chance finds”. ESS9 Financial Intermediaries This standard is not relevant as no financial intermediaries will be involved in project activities. Jul 29, 2022 Page 9 of 11 The World Bank The Gambia Public Administration Modernization for Citizen Centric Service Delivery Project (P176924) B.3 Other Relevant Project Risks N/A C. Legal Operational Policies that Apply OP 7.50 Projects on International Waterways No OP 7.60 Projects in Disputed Areas No III. WORLD BANK ENVIRONMENTAL AND SOCIAL DUE DILIGENCE A. Is a common approach being considered? No Financing Partners The project is not considering to apply Common Approach. B. Proposed Measures, Actions and Timing (Borrower’s commitments) Actions to be completed prior to Bank Board Approval: The Borrower will prepare, consult upon, and publish in the country and on the Bank external website, prior to Public Disclosure appraisal: - The Stakeholder Engagement Plan (SEP) including the Grievance Mechanism (GM) - The Environmental and Social Commitment Plan (ESCP) Possible issues to be addressed in the Borrower Environmental and Social Commitment Plan (ESCP): The ESCP will include: - Requirements for the project to conduct environmental and social screening process prior to the implementation of project’s activities, follow up with E&S measures to put in place as needed. - Requirement for clarification in the TORs for the preparation of the Project Operational Manual the inclusion of E&S measures and screening process prior to project activities. - Relevant principles regarding Labor Management Procedures - Implementation of the SEP and the project’s GM - Capacity-building details and citizen engagement activities (vulnerable groups participation) to be done under the project C. Timing Jul 29, 2022 Page 10 of 11 The World Bank The Gambia Public Administration Modernization for Citizen Centric Service Delivery Project (P176924) Tentative target date for preparing the Appraisal Stage ESRS 02-Aug-2022 IV. CONTACT POINTS World Bank Contact: Michael Christopher Jelenic Title: Senior Public Sector Specialist Telephone No: 5381+32075 / 1-202-473-2075 Email: mjelenic@worldbank.org Borrower/Client/Recipient Borrower: Ministry of Finance and Economic Affairs Implementing Agency(ies) Implementing Agency: Ministry of Finance and Economic Affairs V. FOR MORE INFORMATION CONTACT The World Bank 1818 H Street, NW Washington, D.C. 20433 Telephone: (202) 473-1000 Public Disclosure Web: http://www.worldbank.org/projects VI. APPROVAL Task Team Leader(s): Michael Christopher Jelenic Practice Manager (ENR/Social) Maria Sarraf Recommended on 25-Jul-2022 at 11:33:21 GMT-04:00 Safeguards Advisor ESSA Johanna van Tilburg (SAESSA) Cleared on 29-Jul-2022 at 11:40:21 GMT-04:00 Jul 29, 2022 Page 11 of 11