________________________________ 22371 October 1 999 OCIAL DEVELOPMENT PAPERS i X - t- s2W - f s E - E < @*t C Fh ^ q Y < EsN r ; 1 P ;> ' .t M, ZE N- r N E rT - 0 R ks Paper Number 33 October 1999 Participatory Country Assistance Strategy in Colombia: A Case Study Jairo Arboleda THE WORLD BANK Social Development Papers Paper Number 33 October 1999 Participatory Country Assistance Strategy in Colombia: A Case Study Jairo Arboleda This publication was developed and produced by the Social Development Family of the World Bank. The Environment, Rural Development, and Social Development Families are part of the Envirorunentally and Socially Sustainable Development (ESSD) Network. The Social Development Family is made up of World Bank staff working on social issues. Papers in the Social Development series are not formal publications of the World Bank. They are published informally and circulated to encourage discussion and comment within the development community. The findings, interpretations, judgments, and conclusions expressed in this paper are those of the author(s) and should not be attributed to the World Bank, to its affiliated organizations, or to members of the Board of Executive Directors or the governments they represent. Copies of this paper are available from: Social Development The World Bank 1818 H Street, N.W. Washington, D.C. 20433 USA Fax: 202-522-3247 E-mail: sdpublications@worldbank.org Contents 1. The Context 1 Social Participation in Colombia 1 Participation and the World Bank 3 The Dialogue between Colombia and the World Bank 4 2. The Plan to Prepare the Country Assistance Strategy 5 Workshop Models 5 3. The Implementation Experience 7 The Country Team Workshop 7 The Desired Future 9 A Look at the Past 10 The Action Strategy 11 The Government Workshop 12 The Desired Future 12 A Look at the Past 13 The Action Strategy 17 Workshops with Civil Society Representatives 20 Workshop Model and Methodology 20 Phase I. Brainstorming to Identify Key Issues 21 Phase II. Discussion in Small Groups on the Topics Identified 21 Phase III. Vote to Decide on the Order of Priorities 22 The Desired Future 22 Role of Different Actors: Government, Private Sector, Civil Society, and Multilateral Organizations 24 The Action Strategy 25 Final Recommendations 25 i The Joint Government-World Bank Workshop 26 Methodology of the Workshop 26 The Strategic Objectives 27 Priority Areas of CAS 27 7The Results for the Strategic Objectives 28 T1he Consistency of the Portfolio with Proposed Strategic Objectives and Results 30 Construction of the Logical Franework 31 Bank and Government of Colombia Discussion of the Draft CAS 33 4. Lessons from the Experience 34 Main Features of the Process 34 Main Outcomes 36 Limitations 37 Major Challenges Ahead 39 Annexes: 1. World Bank CAS - Country Team Workshop, October 30-31, 1996 40 2. World Bank CAS - Government Workshop, Santafe de Bogota November 18,1996 42 3. World Bank CAS - Consultation with Civil Society on Development Challenges 48 4. Consultation with Colombian Civil Society, Santafe de Bogota December 2-3, 1996 50 5. World Bank CAS - Joint Government and World Bank Workshop Santafe de Bogota 52 6. World Bank CAS - Consistency between Strategic Objectives and Existing Projects 55 7. World Bank CAS - Plan for Completion of Logical Framework 56 8. World Bank CAS - Final Meeting, 1998-2000 57 9. World Bank CAS - Final Version of Logical Framework Matrix for Three of the Areas 59 . . Acknowledgments The material in this report comes from facilitation of key events, and to Maurice contributions from members of the Colombia Stern, and Margarita Bellinger, who led the Country Team in Washington and in the groupware workshops with civil society Resident Mission, and counterparts from the representatives. Ines de Mosquera, a local Government of Colombia, provided during consultant, provided invaluable services in the period of construction of the CAS: June the design and facilitation of the government 1996 to October 1997. Ernesto May, Felipe workshop and of the joint World Bank- Saez, and Marina Niforos deserve special Government of Colombia workshops. recognition for leading the country team during the process. Ernesto and Marina put Arturo Garcia, Deputy Director of the together the draft and final versions of the National Planning Department at the time, CAS matrixes shown in Annex 9. Felipe made a significant contribution by his contributed an analysis of the participatory leadership of the government team in the process which is extensively used in chapters process to construct the first draft of the 2 and 3. In addition, the report uses logical framework for each of the priority information generated in the series of events areas. He was also a key counterpart during with the country team, the government, and the revision of the various drafts of the CAS civil society organizations by the participants document and in the final discussions with in each of them, whose names appear in the the government. annexes. Finally, the new lead specialist for Staff from the Learning and Leadership Colombia, David Yurivlakier and the Center (now the World Bank Institute) Director of the Department, Andres provided technical support to the core team Solimano provided valuable input to the in the design of the plan and of the events. final version of the document and led the Special thanks to Fred Nunez, Hoveida final discussions with the government. Novakt, and Ernesto Cuadra for the skillful 111 1. The Context Social Participation in Colombia vehicles linking the state with the communities for either agrarian reforms or Civil organizations in Colombia have a long the creation of community infrastructure. tradition of involvement in public affairs. This period was also characterized by the This involvement has been promoted and radicalization of the labor unions as a influenced by state, church, and business reaction to the closed and exclusive political organizations. In effect, during the 1920s system created by the National Front. and 1930s, under the auspices of liberal Finally, during the 1970s and 1980s, governments, a variety of large-scale social influenced by the doctrine of plurality, movements emerged to promote the inclusion, and social justice of Pope John agrarian, labor union, and popular interests XXIII and the Second Vatican Council, of large segments of the population. During many popular organizations and the 1940s and 1950s, under the influence of nongovernmental organizations (NGOs) the Conservative Party, important were created in order to promote social productive and business associations were change and empower the poor and created to neutralize the control of the state marginalized populations of urban and and to influence the economic policy of the rural areas. At this time, several of the government on behalf of business. These human rights NGOs, so active and associations included the Colombian important today, were established, as well Association of Industrialists (ANDI), the as other sector-specific groups such as the Federations of Cattle Producers Boards of Viviendistas (juntas de (FEDEGAN), the cotton manufacturers' Viviendistas), and the Solidarity group (FEDEALGODON), the metal- Cooperatives. working industries' group (FEDEMETAL), and the Colombian Association of Small and These popular organizations were Medium Industries (ACOPI). sponsored by religious orders, university and professional groups, international In the 1960s, at the beginning of the NGOs and charities, political parties, and National Front (a political deal to alternate local philanthropists. During this period power between the liberal and conservative some of the most influential and parties), two very large nationwide professional foundations were created, such grassroots movements were created: the as Corporaci6n El Minuto de Dios, National Association of Peasant Users motivated by religious values, and others, (ANUC) and the Community Action Boards such as Carvajal, Social, FES, Corona, Mario (JAC). Both organizations became political Santo Domingo, Compartir, by business 1 Participatory CAS in Colombia: A Case Study concerns. These foundations undertook a also strong and better organized, which is variety of social, cultural and economic usually the case in large and medium-size programs in their respective areas of urban centers. Recent reports have found a influence. correlation between the size and location of a municipality and the strength of its civil Despite this diversity, breadth, and density, organizations.' Colombian civil organizations (which are estimated to number 120,000) do not The Constitution of 1991 might become constitute a homogeneous whole. Instead the greatest achievement of civil society they show great heterogeneity in terms of in the century. On one hand, it provided organizational capacity, level of autonomy, an opportunity for NGOs, foundations, resources, access to power circles, and and labor unions to mobilize around the ability to protect their interests and election of members of the Constitutional influence public affairs. In this respect, the Assembly as well as participate in the composition of civil organizations reflects discussion of the new public charter. the diversity of interests and the These groups elected several members to stratification of the society at large. As a the Assembly. On the other hand, the matter of fact, each segment of civil society, Constitution provided a building block such as those of base organizations, labor for the consolidation of an enabling unions, NGOs, and business associations, environment for citizen participation by has its own agenda, and the history of their proposing a new societal paradigm relationships with the state is also quite based on participatory democracy. This varied and diverse. For example, business enabling environment gives new impetus associations have traditionally been close to for organized groups of civil society to the power elites because they are part of one take a leading role in the definition of a of the powers. Business foundations new social contract that would create a command a great amount of access, more viable social and political system. although they maintain a serious commitment to the poor. Although they The constitutional mandate for a more open have much less influence, labor unions are society -together with the instruments for powerful organizations capable of citizen participation that it created, such as negotiating their interests in front of their the plebiscite, the referendum, the legislative public or private bosses. The media also initiative, the recall of mandate, the national constitute a power in Colombia, although and territorial planning boards, among they are regarded as hybrids that combine a others -represents an enormous step private, moneymaking business with a toward the establishment of a strong, private enterprise that is service oriented. modern civil society in Colombia. Finally, base organizations, NGOs, and academic groups enjoy little power and are The mandate of the Constitution is evolving traditionally subordinated in the social with the creation of important legislation in conflict. Frequently, their demands are met critical areas such as the environment (Law with repression and violence. 99, 1993), rural development (Law 101, 1993), general education (Law 115, 1994), Furthermore, as in other political and social and citizen participation (Law 134, 1994). dimensions, the centralized tradition of the These legal frameworks created additional country affects the relative influence of these mechanisms for citizen and community organizations. It is clear that civil participation specific to each sector. There is organizations are stronger and more also draft legislation regarding the influential in those areas where the state is participation of nonprofit organizations in 2 The Context public affairs and the rules for contractual promoter, liaison, convener, interlocutor, arrangements with state agencies in a joint fund-raiser, lobbyist, and representative of action by congressional leaders and the associated NGOs in front of private, organized nongovernmental groups. The public, and other nongovernmental contractual arrangements are a organizations. development of the Constitution that prohibits the direct transfer of state funds to It is therefore likely that the long tradition; nonprofit organizations but recommends the density; the mixed experience; the instead that those organizations contract for facilitating normative environment; the services with the national or regional intensification of the social, political, and governments to implement their economic conflicts; and the recently development plans. increased capacity and involvement of civil organizations may all become contributing Recent political, economic, and social factors in the establishment of a strong and developments in Colombia resulting from modern civil society in Colombia. the intense political crisis of the last few years, as well as the intensification of social Participation and the World Bank and armed conflicts, provided an opportunity for an increased presence of One of the most significant developments in and influence by civil organizations. One the World Bank within this decade has been may think that this new impetus is an increased interest in participatory supported by the existing participatory development. A key part of this renewed environment. Examples of that presence are interest was the launching of a Bank-wide (a) the notorious increase in the number of Learning Group on Participatory people who vote in elections over the last Development in December of 1990. The five years; (b) the political involvement and group was charged with examining the oversight of public concerns during the crisis issue of participation and identifying of the previous administration; (c) the challenges for the Bank in stepping up its Citizens' Mandate for Peace, with the votes efforts to support broad participation in its of 10 million citizens for a peace agenda operations. The learning group's work was and the Redepaz Network; (d) the influenced by many initiatives inside and establishment of the Permanent Assembly of outside the Bank. The experience of many Civil Society for Peace; (e) the process of NGOs around the world was of particular peace negotiations with the Armed relevance. Revolutionary Forces of Colombia and the National Liberation Army. The main conclusion of the report of the group is that there is significant evidence In addition, one notable example of a that participation can, in many recognized convening capacity of civil circumstances, improve the quality, society is the role being played by the effectiveness, and sustainability of projects, Colombian Confederation of NGOs during and strengthen ownership and commitment this decade. In the 1990s, the confederation of government and other stakeholders. established representative structures at the Community participation strategies are regional and national levels, resulting in a found to be particularly important in more united social force represented by over reaching the poor. The report expands on 2,500 member organizations committed to a the importance of participation for prosperous, equitable, and peaceful civil promoting client orientation and society with increasing influence in public partnership in order to achieve better results affairs. The confederation plays the role of on the ground, a conclusion that had been 3 Participatory CAS in Colombia: A Case Study set out as part of the new direction of the strengthen country mechanisms for World Bank in another report, Learning from involving the poor and other the Past, Embracing the Future.2 stakeholders in development interventions.3 Consequently, the Bank has adopted a long- term strategy for increased participation in The Dialogue between Colombia and its work. Some of the guidelines for this the World Bank strategy, which entails bringing about a broad cultural change in the way business is This context of a conducive environment for conducted, include: citizen participation in Colombia, a new policy of the World Bank on participatory * Dialogue with borrower countries must development, coupled with a long tradition start with efforts to understand, take of goodwill, mutual respect, and productive into account, and, where appropriate, dialogue between Colombia and the World actively address the concerns and issues Bank, provided a fertile ground for the of stakeholders: governments, private initiative to conduct a participatory country interests, local leaders, any vulnerable assistance strategy (CAS). During the 1996 group likely to be negatively affected, Annual Meetings, the Colombian authorities and local institutions. and the World Bank agreed to carry out the CAS exercise in a participatory manner. * The degree to which community They agreed that the participatory process participation occurs will be an explicit would be ample and would include focus of country dialogue and country consultations with national authorities, assistance strategies. Bank support for selected local governments, and development investments and economic representatives of civil society. and social policies will be defined in partnership with governments, reflecting, where relevant, their willingness to elicit and take into Notes: account inputs from those affected as well as other stakeholders. l Alvarez, Maria Eugenia, Diana Constanza Castillo, and Rodrigo Villar. 1998. * Analytical work (that is, economic and "Organizaci6n Participaci6n de la sector work, or ESW) will be more Sociedad Civil," in Municipios y Regiones collaborative and will aim toward de Colombia, una mirada desde la formulating policy or effecting change Sociedad Civil, Bogotd, Fundaci6n Social. rather than toward producing a report. 2 World Bank, September 1994, Learningfrom the Past, Embracing the Future, Washington, * The Bank will support government DC. efforts to promote a more enabling environment and institutional reforms 3 World Bank, Operations Policy for participatory development within Department. September 1994. The World client countries; it will also encourage Bank and Participation, Washington, DC. and finance technical assistance and 4 2. The Plan to Prepare the Country Assistance Strategy Following the Annual Meetings, an intense Workshop Models and highly innovative process got underway. The initial step was to set up a The events of the country team and of the working group made up of representatives govermment were designed following this of the Colombian core team in Washington, model: future-past-present. The look at the advisers of the Learning and Leadership future is intended to identify the main Center, and staff of the resident mission, challenges Colombia has to confront to under the general coordination of the achieve an adequate level of development. country team leader. The small team The look at the past is meant to analyze the proposed and validated with the Colombian background of the relationships between country team a series of four events among Colombia and the World Bank, identifying relevant stakeholders, thus making sure that comparative advantages and areas where the process would take into consideration improvement is needed. Using this model, their views, expectations, and concerns the workshop was to propose an action regarding the CAS for 1998-2000. strategy that establishes where and how the Bank can best assist the country at the The four events were the following: (a) a present. two-day workshop for all members of the Colombian country team held in The design of the workshops with members Washington on October 30-31, 1996; (b) a of civil society addressed three tasks: one, a one-day workshop for top national look at the future to resolve the question of government leaders and selected local development challenges as in the previous government authorities held on November events; two, the assessment of the role of 16 in Bogota; (c) a series of three half-day several social actors regarding the workshops for representatives of a broad challenges; and the comparative advantage spectrum of civil society, using Groupware of the Bank to assist the country in meeting technology,' held in Bogota on December 2- those challenges. 3; and (d) a joint government-World Bank workshop with representatives of the two The design of the joint workshop addressed sides who had taken part in their respective three objectives: to prioritize the previous workshops, held in Bogota on development challenges using the December 6-7, 1996. information produced by the three previous 5 Participatory CAS in Colombia: A Case Study events as the main input, define strategic lasted for about one year. The design of the objectives and the corresponding results for process took place between July and each of the priorities, and assess the September, the main workshops between consistency of the portfolio with the October and December of 1996, the follow- strategic objectives and identify new areas up working group between January and of activity. One of the tools used to establish April of 1997, and the preparation of the a hieTarchy among objectives and results formal document between May and June. was the logical framework, or logframe.2 The final discussion took place on July 16. The CAS was presented to the Board and Workshops one, two, and four were adopted in October of 1997. designed and facilitated by staff from the Learning and Leadership Center. The government workshop was jointly designed by the staff of the resident mission and a local consultant selected by the government, Notes: and it was facilitated by the consultant. Groupware, is a computer-based system of To follow up the joint workshop, a new consultation that allows individuals or working team was established, led by very small groups to express their ideas the deputy director of the National and opinions, using a computer terminal Planning Department (DNP) in linked to a central service. On a large conjunction with local staff of the screen, the ideas and opinions appear resident mission to finalize the logframe without identification of the source. The exercisde initiamted. Thle workg logfrop method is very efficient in that it allows the exercise*initiated. The w orking grop rgathering of information from large had the task of refining the set of numbers of people simultaneously, and activities that needed to be pursued, the information generated can be continuing to assess the coherence of the organized in a variety of categories pipeline with the strategic objectives, according to the objective desired. The and proposing new activities. In anonymity of the process lets the ideas and addition, the group had to identify the opinions stand on their own merit, risks involved and recommend ways of regardless of the source. dealing with them, and identify The logical framework is a tool for strategic indicators to be used as progress planning based on three main concepts: benchmarks. This working team kept in cause-and-effect relationships, means and touch with government counterparts in ends, and necessary and sufficient Colombia as well as with members of the conditions. It was developed by the U.S. country team in Washington in an Agency for International Development in attempt to enhance the quality of the the late 1970s and is widely employed in outcome, and ensure that it reflected the project design by international perspectives and analysis of all those organizations like the German Agency for concerned. Technical Cooperation, the United Nations Development Programme, and the World The process of constructing the new CAS Bank. for Colombia in this participatory manner 6 3. The Implementation Experience Figure 1 summarizes the main building Bank teams to build a matrix for each of the blocks, the process, and the outcomes of the priority areas; it contained the following participatory CAS exercise. The main entries: summary diagnosis, strategic building blocks are: objectives, strategies and actions, results, progress benchmarks, and risks and * Economic and sector work activities, assumptions. including a country poverty assessment study with the participation of academic The last step in the process was the groups, specialized NGOs, and national agreement between the government and the and regional governments. There were Bank on a lending and technical assistance also studies of decentralization, public program for the period 1998-2000. The most management, and the capacity of local important outcome of this last meeting was governments carried out by research the joint commitment between Colombian centers of regional universities, NGOs, authorities and Bank management to the and local consultants. Finally, there was implementation of the strategy. a consultation with civil society representatives on the social dimensions The following is a full description of the of development, which was used as elements for each of the four main events input for the report by the Task Group and of the follow-up activity to build the on Social Development, led in mid-1996 logical framework. Each section includes a by the Latin America and the Caribbean brief description of the methodology used regional vice president. and a fuller account of the process and of the results. The annex for each section offers * The four workshops of the government, the detailed agenda, the exercises, and the civil society, and the World Bank instruments used in each of the workshops. previously described, which provided the main forums for the identification of The Country Team Workshop the six development challenges and priorities listed on the chart. The objective of the event was to identify core elements of the country assistance Following the joint government-World Bank strategy, taking into consideration the workshop, an action plan for constructing development priorities of the country as the logical framework was put in place. well as the comparative advantages of During this process, there was an interactive the World Bank. The twenty-four staff exchange between the government and the members participating in the workshop 7 c:1X- Figure 1. Participatory CAS in Colombia Colombia CAS Preparation Process ESW 4 Priorities Action Plan Program | eenWrank Govemment| WB/Other Poverty DLalogue Assessment 1. Violence/Peace Agreement 2. Human X Lending Program Development Strategic /' Local 3. Legitimacy and Objectives Govemment egiimcyRisks/ Government _ efficiency public Assumptions Approval by Capacity Study r institutions Indicators Board of 4. Infrastructure Strategic Directors Infrastrictres Alliances Studies on _ services Decentralizations 5. Rural poverty Follow-up Public Management 6. Environment Panel Consultation I,~Know-how Civil Society on I Studies by AlacsStratey Social Development civiisocie Civil Socdiet by Participation Social Development Civil Society | Civil Solety Citizen Oversight .~~~~~~~~~~~~~~~~~~~~~t.AA...MMW The Implementation Experience represented the following sections: * Reduction of urban and rural poverty. The country operations, natural resource strategy adopted should deal with the management and rural poverty, existing asymmetries between the urban infrastructure, human and social and rural sectors, and consequently it development, public and private sector should emphasize the relief of rural modernization, environment and urban poverty. This emphasis is a recognition development, resident mission, the of the fact that 70 percent of the poor executive director's office, the live in rural areas. Furthermore, the Intemational Finance Corporation, and approach to overcoming poverty must the office of the director (see annex 1 for recognize its multidimensional character a full list). and result in the empowerment of the poor . Specific areas to be addressed The process followed the three steps include devising an adequate framework proposed in the model: looking at the future, of incentives for the agricultural sector, the past, and the proposed action strategy. provision of productive infrastructure The methodology in each of the steps and services in rural areas, and ensuring consisted of a combination of brief better quality of and access to social presentations by the facilitators, small-group services. work on specified tasks, and plenary discussions. The main objective of the first * Institutional development. This theme has step was to identify, in a brainstorming four major areas of emphasis: (a) session in each of four small groups, the deepening the decentralization process; main development challenges, organize them (b) creating the capacity to move from into clusters of themes, and establish an conceptualization of programs and order of priority. The results of the group projects to implementation and results, discussion were presented in a plenary (c) attacking corruption and session followed by a general discussion and "clientelism", (d) strengthening civil a summary. society by promoting greater participation by citizens in public affairs. The Desired Future Specific areas include consolidation of the decentralization process, The country team concluded that the improvement of public sector following three themes constitute the management, and promoting priority challenges a CAS should include: community participation. * Sustainable economic development. This is The rich discussion in the plenary session understood as a combination of growth, provided an opportunity to present a variety removal of the barriers that prevent the of concerns regarding issues of priority and poor from benefiting from that growth, implementation, how to take advantage of protection of the environment, and current and future opportunities, and the measures to reduce the impact of role of the new Bank in the future of violence on people's well-being and Colombia. However, two issues received a future investments in the country. significant amount of attention from the Specific areas of intervention by the Bank country team. One is the prevalence and may include development of capital intensity of violence throughout the country. markets, a facilitating environment for The group felt that this is one of the reasons the participation of the private sector, why the growth of Colombia remains below environmental protection, and better its great potential. Violence has a direct income distribution. impact on life expectancy, expenditures on 9 Participatory CAS in Colombia: A Case Study defense, price distortions, and the general A Look at the Past well-being of the population. The Bank, then, needs to work together with In a plenary session, the group dealt with Colombians and with other organizations the experience of the members of the team on the problem of dealing with violence as a in their work with the Colombian high risk for all operations. government. The following list describes such experience: Another issue of great concern for the team is the amount of time it is taking to achieve Successful Events in the Relationship: progress in the social sector. On paper, fostering the participation of the private * the ability to have a frank and open sector seems a sound strategy to free up dialogue with government authorities resources from infrastructure and invest has led to good results. them in nutrition, education, and health, but in reality this is not working as * there have been several joint studies and expected. The link between such a strategy reports on poverty, the capacity of local and the combination of growth and poverty governments, and decentralization. reduction does not seem to exist. In general, * direct loans to territorial governments the Bank needs to make sure that its have been accepted as a pilot experience programs in Colombia produce better results for operations in a decentralized in terms of poverty reduction and that such framework. impact can be measured. 0 the Bank has credibility with the The last exercise of this first part asked the government, and it is considered a good participants to describe what they would partner with respect to the promotion of like to see happen in the future as a result of new initiatives. the collaboration between the Bank and Colombia. Using all the information s the Bank provides continuity and generated by the small groups as well as by stability across administrations in the plenary discussion, each member of the sectoral investments. team had to create a press headline * Colombians appreciate the know-how capturing what he or she would like to see and technical assistance that come with by the year 2005. Here is a sample of them: the lending program. * World Bank-Colombian Alliance: Main Difficulties and Areas for Improvement: significant achievement in social development. * The good communication with the * The Social Summit concludes that all central policy level does not always regions of Colombia have been translate into effective actions with line integrated into the development process. authorities of sectoral ministries. * The World Bank helps Colombia become * There is a lack of clear definition of a world leader in decentralization. priorities, both within the Bank and * Magdalena Medio: a territory of peace. between the Bank and the country. This is particularly serious with respect to * Colombia is graduated by the World sectoral ministries because, among other Bank, given the great progress achieved, reasons, high-ranking officials, especially and the professionals of the World Bank in the social sector, are constantly being team are reassigned to other countries. 10 The Implementation Experience rotated to other posts or leaving the * The treatment of rural-urban differences administration. and of the issue of violence is more explicit. * The Bank's lending instruments and procedures are rigid, inflexible, and The comparative advantages of the Bank are time-consuming, thus limiting its the following: capacity to react to new situations. * The Bank's global experience with * The relationships have been primarily decentralization and project with the central government, thus implementation can be transferred to the ignoring, on the one hand, the other two country. levels of government and, on the other, those who will do the implementation. * The Bank can act as an agent for dissemination of best practices from * The budget system in Colombia is other countries or for the identification complex and cumbersome. This creates a of social agents promoting change and great dependency of the projects on the partnerships within the country. budget process, which results in great inefficiencies and serious delays in * The Bank can provide continuity in an project implementation. environment where key government Officials are constantly rotating. * Project design is distant from the real clients. The Bank needs to better assess * The Bank has credibility and can who really benefits from growth. influence decisionmaking. The Action Strategy Areas for improvement include: This step consisted of two phases. This first O The simpification of instruments and entails a quick assessment of the similarities procedures and differences between the priorities proposed for the future CAS and the The promotion of more iovative previous lending program. The second interventions, which requires financing involved determining the comparative mtervents with aer ris level advantages of the Bank regarding those o p p i priorities and areas in which it should improve. * Improving the skill mix to better respond to the emerging matrix structure Regarding the first phase, the country team concluded that: * Creating partnerships and strong alliances with other social actors * The proposed priorities are more directly focused on poverty reduction than in the * Examining the reasons for the low previous CAS. success in achieving institutional objectives * The participatory process under way for its preparation provides a better chance * Working with the government to close to achieve the commitment of all the gap between conceptualization interested parties. (policy and strategy) and implementation (results on the ground). 11 Participatory CAS in Colombia: A Case Study The Government Workshop * To analyze the relations between multilateral cooperation agencies and The authorities' participation in the Colombia. by identifying positive aspects definition of the CAS was extremely and points for improvement. with proactive and constructive, and the top specific reference to the World Bank. government officials were involved in the process. This involvement can be divided in * To define the vision of the nation for the four stages: (a) government team workshop, year 2005 if the structure of World Bank (b) joint Bank-government team workshop; assistance capitalizes on the comparative (c) development of the CAS matrix, and (d) advantages of the Bank that may Bank-government discussion of the draft contribute to their achievement. CAS. In light of the comparative advantages The first stage of the process was intended of the World Bank, to identify the to provide an opportunity for the priority challenges on which the Bank's government team to reach internal assistance to Colombia should focus, and consensus regarding the two basic questions indicate how this is to be accomplished of the series of workshops: the (see annex 2 for the detailed agenda and developmental challenges of the country design of the group exercises). and the past and future roles of the Bank relative to Colombia. With these objectives, The Desired Future the Colombian government team participated in a one-day workshop on Development Challenges: The first exercise November 16, 1996. The workshop was asked group members to identify the main attended by 32 top government officials development challenges that Colombia has (including six members of cabinet, five vice to confront. Each participant writes down ministers, three heads of national the four main challenges and then in the institutions, two presidential counselors) group, one by one, they present each of the and two leading local government heads items, which the facilitator writes on the flip (the governor of Antioquia and the mayor of chart, without repetition of items. At the Bogota). The list of participants appears in end, by a voting procedure, each group annex 2. member gives a mark to the key five challenges and all points are added up. The The process and results of this event were as items with the most points are then follows: presented in a plenary session as the results of the group. Workshop Model and Methodology: The workshop model was the same as that for When the results of all the groups were the Bank team: the desired future, a view of summarized, the participants agreed on the the past, and a proposed action strategy following challenges as national priorities: based on the previous two steps. e Peace, justice, impunity, coexistence The methodology consisted of four exercises among citizens, safety and security for designed with the following goals: citizens, and "denarcotization," or reduction in the significance of the drug- * To identify the major challenges faced by trade. Colombia in terms of its future development. 12 The Implementation Experience * Improvement of human resources perceptions of the relationship between the (education-in terms of quality and Bank and the country, using drawing as a quantity -health, and nutrition) technique. Each group member made a * Modernization of the state: graphic representations of his or her perceptions, then explained it to the other * Reduction of bureaucracy, members of the group. Together, they had to decentralization, managerial capacity decide which drawing they liked best and add new features, if desired. Once this was Ethics i politcs and politcal done, they wrote below the drawing in two participation columns three to five short sentences * Physical infrastructure (particularly describing the positive aspects of the transportation and drinking water,) and relationship on one side and the negative reduction of poverty and inequality aspects on the other side. Then each group presented the drawing in a plenary session. * Internationalization and competitiveness The results of the exercise, which sought to Sustainable development with a regional graphically portray relations between focus. Colombia and the World Bank, were very There was full consensus among the groups revealing and added a touch of humor to Thatpeae washull consensusamon the grout nthe workshop. The metaphors used and that peace should be the first national their corresponding analysis are briefly priority, followed by the improvement of commented upon in what follows. human resources, modernization of the state, infrastructure, and then the others. D7- Taxi A Look at the Past This group illustrated its perception of relations between Colombia and multilateral Colonmbia-World Bank Relations: The second cooperation organizations with the exercise asked participants to present their following simile (see figure 2): the World Figue 'fPCV~UfCA e j%j6~a'' - W- EGAT X ?v06'da-5 N Ot - A& & yWfSO1 rIv?otauCCQ c ectsJVraP pke>CcioVn - t-Soc..dod (tauviuiiit¸n) a~~~~~~~~~~~~~ rae.aoceo (11e loo o'~f - Flfcdi de VtaivAeQc-;Ov 13 Participatory CAS in Colombia: A Case Study Bank is a taxi and Colombia is The Divine Eye the person who requires the The World Bank is like a great divine seer who is in service. Accepting a loan from charge of granting credit and capital with great the Bank is like riding a taxi complexity, supervising and providing expensive during a traffic jam in Bogotf. technical assistance. It has serious communication Although the passenger is free problems (the broken line) with the recipient of its to ride the taxi or not, it is the benefits -the state (see figure 4). driver who decides whether to take him or not. The driver will F accept the passenger only if the destination coincides with that of the driver, and the driver chooses the route. As soon as the passenger enters the taxi, the meter starts running, regardless of whether the taxi is stuck and cannot advance. A The traffic jam represents the \ difficulties inherent to negotiating and starting projects. Sometimes the passenger is asked to leave the taxi. Simultaneously, other alternatives become available, \ t:5T Taw / such as the rapid trains 0 representing the international capital markets, which travel at high speed, without as many obstacles and turns. C- The Wolf This group sees the World Bank as a wolf that is really a sheep inside (see figure 3). The initial impression is that of a tough animal with an Figure/3 aggressive attitude. As the relationship unfolds, the attitude becomes more positive. With sound arguments and a businesslike way of conducting the relationship on the part of the clients, the Bank becomes in reality a kind sheep with a positive attitude toward the country. 14 The Implementation Experience The Doctor The World Bank is a doctor and Colombia is its patient, who is to follow this treatment: Diagnosis: The doctor, who looks Figure 5a like an alien, I wears very dark isez gcopC^"CO j _ glasses, which don't let him see F I1 . his patient well, A / VA. and also has very 04;V4 large antennas to )t',.. hear everything. r f His tongue is very large and he sticks his quite long nose everywhere. He has a sphygmo- I _/ manometer to 1A continuously- check his patient. His body is like that of the robot R2D2, with major technical features inside. Figure 5b Negotiations: { Fa 5e% de, \eX3cacAOn This stage is like a large maze, and the treatment (resources) is hard to define. You are always inside the maze and many tests and twists and turns that one needs to overcome before the exit. 15 Participatony CAS in Colombia: A Case Study Executionz: Many years later, the doctor is atop a large, solid bulldozer, pushing the patient, leaving behind many entities (the Ministry of National Education, the National Institute of Land Preparation, and so forth). The patient would like to rid himself of this treatment, which has many obstacles, and be rescued by someone (the private intemational financial market). Figure 5c (M;0,AUos c51sO W-5m!) Evaluation: The graph FigUie 5d represents a sports field with a soccer goal at le e. ua° one end and a z 5 basketball hoop at the other. The main conclusion is that the Bank and Colombia are convinced that they played a match, except one believes the game was soccer and the other one is convinced they played basketball. Therefore, they are not in agreement over the results and the way the other contestant played the game. 16 The Implementation Experience Comparative Advantages of the World Bank procedures; (c) creation of parallel and Areas for Improvement: The result of structures (coordination or project units) comparing among the various groups the and sometimes the de-institutionalization of positive and negative aspects of the government entities; (d) weak technical relationship was as follows: assistance during the implementation stage; (e) communication problems, especially as There were several comparative advantages: processes advance; (f) the creation of (a) technical assistance at the start of expectations that may be greater than projects, (b) access to worldwide knowledge results. and experience, (c) continuity that compensates for domestic instability caused There was general agreement on the lengthy by frequent changes in administration, and complex procedures and rigidity of the (d) a culture of evaluation and follow-up, Bank, as well as the high cost of its resources (e) a new approach that emphasizes client compared with the competitive conditions orientation to better respond to countries of the international financial market. (for example, innovative lending schemes), Nevertheless, despite the need for serious (f) a role as a facilitator of institutional improvement in those areas, it was felt that change, (g) medium-term planning, and (h) the global knowledge and experience, as financial resources. well as the technical assistance that comes with the lending operations, continue to It is interesting to highlight the views of make of the World Bank a desirable partner participants regarding technical assistance. for the country. The general feeling was that the technical assistance provided by the World Bank is At the end of the exercise, participants important, has a high technical standard, praised the technique used, drawing, as and goes on during the preparation phase, highly innovative and effective. Its but then it gradually fades away during successful application indicates that it is implementation. very useful and appropriate, even with such a sophisticated and formal group of The capacity of the Bank to convene participants. different parties is greatly valued, as is its ability to identify, mobilize, and The Action Strategy disseminate information about experiences and knowledge obtained in Violence and Peace: Peace is Colombia's multiple areas worldwide, which it can number one development priority, as the make available to its clients. The four work groups agreed during the first discipline required by the Bank's task. Other challenges closely related to the planning, assessment, and follow-up achievement of peace include justice, impu- culture is also valued. The Bank's new nity, peaceful coexistence, and the reduction approach of listening to the clients and of the significance of the drug trade. other stakeholders in an effort to better meet their needs and expectations is There were two lines of thinking in the greatly appreciated. group regarding whether the World Bank should support the country in this There were also several areas where challenge: The first followed a traditional improvement is needed: (a) reduction of approach and was advanced by group mandatory conditions; (b) lack of flexibility, members who argued that the World Bank caused by centralized decisionmaking, and has neither experience nor know-how on complex and lengthy processing and the subject and that Colombia should 17 Participatory CAS in Colombia: A Case Study therefore refrain from asking for support in Finally, how to address the analysis and this area. Others called for an innovative design of solutions to the problem of approach, arguing that if the new World violence was the subject of great debate, as Bank has a clear client focus, the Bank would be expected. A traditional approach should respond to this priority need for would be through activities that have an Colombia. They indicated that the World impact on the external determining factors Bank has multiple comparative advantages, of violence, such as education, health, social such as its capacity to identify and development, and infrastructure. An systematize the valuable experiences of alternative approach is that of taking other nations and its access and ability to violence as a problem in itself, with its own call upon multiple experts in many fields, causes and solutions. In other words, this which would allow it to help Colombia find would involve designing a specific and solutions. They emphasized that the Bank direct treatment to deal with violence, its must develop learning skills to allow it to causes, and it consequences. contribute to the joint construction of responses. The Improvement of Human Capital: Three groups concluded that improvement of Furthermore, it was pointed out that the human capital, with emphasis on education, Bank has already taken steps in this is the second national priority. The fourth direction through its support of projects group also included education within its five such as the Regional Development and priority challenges. Participants agreed that Peace Program for Magdalena Medio. The it is through education and training that program seeks to establish agreements and human capital may be best improved. foster the construction of a joint vision on Education is regarded in its broadest sense, the part of the local communities, the not only focused on formal education but authorities, and other stakeholders, also comprising nonformal education, the including the groups in conflict, through formation of new attitudes on the part of development pacts, regardless of ideological, citizens, education oriented to preparing political, and other differences. people for a competitive environment, the identification of new kinds of intervention An interesting elaboration of the argument and incidence in social behavior, and so in favor of World Bank support for forth. The subject of quality in education Colombia in its priority objective is the was especially stressed. following: Colombia should not necessarily be seen as the last nation to attain peace but Everyone indicated that support from the rather as the first nation to develop a World Bank is beneficial to the country in dangerous model of violence that may be this area, in terms of both its resources and followed by other nations, thus further its clear competitive advantages in this field. endangering the world's stability. The Bank But where the group placed the greatest must be more proactive than reactive on this emphasis was on the capacity of the World issue and must anticipate helping Colombia Bank to become a catalyst for major put this crisis behind it. Bank help will thus innovations in education at the institutional prevent other nations from joining this level and, more important, in terms of model of increasing violence, which teaching methods. Support must not be originated with guerrillas and drug traders focused on improving the traditional ways who, against all odds and at any price, have but rather on identifying and applying become more and more powerful and who innovative schemes and methods to represent a clear and present danger to continuously improve human capital. democracy. Financing advanced education programs, 18 The Implementation Experience research and technological development, that the role of the World Bank in this issue and citizen culture was considered relevant would be fundamental. It is thought that the by one of the groups. strategy must include aspects such as financial resources and guarantees; The Modernization of the State: Two lines of technical assistance for technical, financial, thinking arose regarding this challenge: the and environmental impact studies; and first approached it from an institutional instruments that support private view point, and the second focused more participation, concessions, titles, and from the political perspective. The first ownership, pre- and postevaluations, argued that there is an urgent need to strengthening capabilities for public and modernize the state apparatus itself, by private contracting, universalizing introducing the implementation of effective contracting systems, and so forth. and efficient management approaches. The second analyzed the concept of political Poverty and Environment: It must be development, which is to be understood mentioned that toward the end of the more as improving the credibility and workshop there was concern over the fact transparency of political parties, reforming that poverty and inequality were not traditional parties, creating new and greater included among the three main priorities. options for participation and expression, However, the group believed that in order to recovering political values and ethics, face these two challenges the crucial bringing about changes in political attitudes element was education, as education is a and comrmitment and the like than as fundamental factor in reducing poverty and institutional improvement. increasing equality. The subject of sustainable development with a regional At the end of the discussion, it was agreed emphasis was introduced in the plenary to include both aspects, because institutional session, and its elaboration was delegated to improvements should also take place with the technical groups as a future task. the new political attitude. Concluding Remarks: The government's team The role of the World Bank in this goal is rated the workshop as highly productive unquestionable, and it was unanimously and extremely helpfuil in reaching consensus pointed out that, in light of the comparative in matters that they seldom have advantages mentioned before, this must in opportunities to consider and discuss as a fact be one of the areas in which the Bank team. The results of the workshop were should provide support to the country. summarized as follows: Support for efficacy in the management of resources in the context of decentralization * A full agreement by government and transfer of international experiences in representatives on placing peace and this field was considered to be especially coexistence as the main developmental relevant. In addition, there was a desire for challenges facing Colombia. This was support for improvements in processes followed by improving human capital, involving the effective administration of modernizing the state, improving justice and the installation of public physical infrastructure, reducing information systems. poverty, and promoting sustainable development. Infrastructure: Although they identified different priority levels, all groups pointed to . A call on the Bank to become effectively infrastructure as a strategic objective for the client oriented by responding to the nation, and once again there was consensus 19 Participatory CAS in Colombia: A Case Study country's developmental demands, even churches. Attendance was poor from labor in those cases where it does not have unions, politicians, and media. The low specific comparative advantages in the response from these groups may be a field, by developing a learning capacity reflection of limited familiarity with the Bank and transferring international (in the case of unions), the burden on invitees experiences, and by improving its of financing their respective transportation operational services to the country, and subsistence expenses (a particular providing more flexible, timely, and problem for low-income organizations and effective assistance. those outside Bogota), and the long-term focus of the exercise (in the case of the Workshops with Civil Society media). Relative response by groups reflects Representatives also the Bank's efforts in the last few years to reach out, efforts that have been heavily A distinctive feature of the CAS was to focused on NGOs and academia. It is also a involve in its deliberations a broad clear signal for the need to continue representation of civil society. About 140 strengthening our relationships with those groups received invitations to participate in groups that have not been targeted up to a series of workshops on December 2-3, now as part of our efforts. (Annex 4 shows 1996. (See annex 3 for the text of the the full list of participants in each workshop brochure, which has full workshop.) information on the events.) The selection process of the people invited to the At the end of the consultation process, t he workshops was aimed at identifying key Bank distributed to all invitees, the media, leaders of an ample spectrum of civil and other groups a report containing the organizations whose opinions are highly conclusions reached in the workshops. respected, carry substantial weight, and Feedback about this report has been very transcend their respective organizations and positive, particularly from persons that could can therefore be considered to reflect the not attend the meetings. A series of meetings prevailing views in Colombian civil society. with representatives of civil society to discuss The organizations invited ranged from the outcome of the discussions with the community groups, NGOs, religious government on the CAS are planned to take organizations, and workers' unions to place after the process has been concluded. academia, media, politicians, and private This will be a way to continue strengthening sector associations. The workshops' agenda our links with civil society, since was designed to define development opportunities for collaboration derived from priorities that could be utilized by the Bank the assistance strategy are expected to be and the government as inputs in the CAS identified. discussions. A total of 50 leaders, representing broad segments of civil society, Workshop Model and Methodology ultimately participated in three half-day workshops. Because invitees were given the The workshop model followed in each choice of selecting the workshop they would session had the same elements of future and attend, based on their schedule convenience, present as in the other events, but it asked each workshop had a random mix of about the relative roles of various actors- participants from all types of organizations. government, private sector, civil society, and multilateral organizations-regarding the There was an excellent response to the development challenges. This question was invitation from the NGO community, asked, instead of assessing the relationship academia, private sector associations, and between Colombia and the World Bank, 20 T1he Implementation Experience under the assumption that most of the similarities and differences. Finally, the list participants would not have the experience was reviewed to decide if any major necessary to assess that relationship. challenge had been omitted, so that it could be added. Given the diversity of participating groups and the need to make the consultation Phase II. Discussion in Small Groups on the workshops as efficient as possible, the Topics Identified electronic system known as Groupware was used to facilitate the discussion and permit Each small group was assigned two or three instant gathering of information. Each topics for analysis in greater depth. session began with an explanation of the Instructions for this detailed examination process followed by the World Bank and the were as follows: government of Colombia in preparing the CAS and a description of the role played by 1. Review prior comments on the topic and the consultations with civil society. Each examine them for greater session was organized in three phases, understanding. Write your comments described as follows: directly on the computer. Phase L Brainstorming to Identify Key 2. Answer the following: Which of the Issues following five actors should play an important role in the topic you were Groups were asked the following questions: assigned, and why? National What are the main challenges Colombia government, territorial government, faces in the coming years in its pursuit of private sector, civil society, multilateral greater economic and social development? agencies, particularly the World Bank? Why do you think these challenges are important? 3. Identify something innovative or surprising you may have learned today Working in groups of two or three persons, about the topic assigned to your group, the participants in each session first and share it with all the participants. exchanged ideas on two or three challenges to development. Their ideas were then In brief interventions in the plenary sessions, entered into the computers provided for representatives from each group would each small group. Challenges and issues share their perspective on what they had were identified, and a brief explanation of learned. A brief exchange of ideas on the their significance was added, using topics of greatest interest ensued. Finally, examples or considerations related to participants were asked to review all the problems or limitations associated with comments on each topic, especially those them. assigned to other groups, and record their reactions in the computer. The list of challenges submitted by participants was reviewed in the large The anonymity that this system provided group session. This list was shown on a was very well received. In fact, the random large screen in the front of the room, as well combination of participants brought as on each computer screen. The list was together at the same table individuals with reviewed, and an agreement was reached diverse social, economic, and authority on repeat items to be eliminated and statuses . However, ideas appeared on the combined. Participants were able to view screen and nobody knew the source. Thus, the comments as they considered their the ideas stood on their own merit. Each 21 Participatory CAS in Colombia: A Case Study participant could comment on any idea. Peace and Development: A lack of harmony in However, nobody could erase any of the the coexistence of citizens at the community ideas expressed; all of them became part of level and the prevalence of violence were the record. identified as the greatest obstacles to development in Colombia. This Phase III. Vote to Decide on the Order of phenomenon comes at a high social cost and Priorities entails great risk for the preservation of democracy and the protection of the civil This task consisted of prioritizing the rights of the population. The challenge for perceptions of the most important needs for society as a whole is that of ending the war national development and the possible role and opening possibilities for development of the World Bank. This was done in two which can only be available within an separate voting sessions, which answered atmosphere of peaceful coexistence. the following questions: * Colombia is in urgent need of a state 1. What are the most important issues for policy in which the government, civil national development? society, the private sector, the armed forces, and so forth participate together, 2. In which of these issues do multilateral and which clearly and persistently organizations, particularly the World demonstrates leadership in the search for Bank, have a comparative advantage in peace. There is concern over the fact that providing assistance-whether they peace policies may be limited to obtaining currently have this advantage or, in your security by essentially repressive means. view, should have it? This orientation tends to further weaken the social fabric among the poorest Based on voting results, an additional sectors of the population, especially in discussion was held on how the Bank could peasant communities. better respond to national priorities. * It was determined that the social Finally, participants were asked the construction of a public space- following question, to provide them with a transforming the coexistence of citizens final opportunity for recommendations for on the basis of communal values and the joint workshop to be held on December collective goals for the common good -is 6 and 7: Assume you are advising a select a feasible strategy for peace. Certain basic group of Colombian government and World conditions must be collectively met, Bank officials who will be defining the however, in order to implement this strategy for assistance to Colombia during strategy: job opportunities, real spaces for the next three years. What are your final participation, and defeating corruption. recommendations? Please consider questions of procedure as well as content. Improving Education: Improving the coverage and quality of education was seen The Desired Future as the most effective way of dealing with one of the major structural factors that The following is a brief description of the create poverty in the nation: the lack of five principal challenges or national opportunities to acquire qualified development priorities identified by the 50 knowledge, which is found in a large civil society participants in the three portion of the population. Implementing the sessions: decentralization process in education poses 22 The Implementation Experience serious problems, which have become disadvantage in terms of access to business obstacles to improvements in educational opportunities. services. Advances regarding coverage are questionable as well. Implementation of land reform and the promotion of a favorable environment for Improving the quality of education requires the development of the rural economy- several things: (a) recycling and retraining which currently produces 70 percent of the Colombian teachers to develop new products consumed in cities -were pedagogical concepts and technologies with identified as critical objectives. One effective a clear inclination for participation; (b) way of working against the high demystifying traditional academic training concentration of resources in few hands and opening new spaces for technical and could be the creation of incentives for technological training; (c) an educational productive use of land, so that it is not curriculum that conceives of individuals as simply hoarded as savings. Effective action whole beings, with clear values in favor of in this area would mitigate the serious harmonious communal life and open to problem of displaced peasants. critical conceptions of knowledge (current training has led to diversification at all levels In urban areas, the need to create a in a culture whose moral values support favorable environment for the development quick and easy solutions and place little of micro- and small enterprises has become emphasis on the value of work and social an effective means of creating opportunities responsibility); and (d) educational contents for business development and employment. must strive for a more cosmopolitan view of The lack of credit and lack of adequate reality that will allow individuals to levels of both business and technological recognize the parameters and the training continue to inhibit the development international context in which they live. of these sectors, which significantly contribute to social stability and to a Last, the need for a sound mechanism for reduction of violence. funding higher education was considered, so that universities may deal with the Improvements in the Efficiency and challenge of improving their international Effectiveness of Justice: Improving the justice competitiveness. system was identified as a challenge in itself, as well as an element that is key to Economic Democracy: There is a strong harmonious communal coexistence and consensus acknowledging the excessive peace. The struggle against violence and concentration of the means of production, corruption, conflict management at both the including key sectors such as finance and personal and the social levels, respect for the communications. This significantly limits basic human rights of Colombians, and the opportunities for economic and social agents subjection of the diverse sectors of society to to develop their business potential and clear coexistence rules can be effectively and participate effectively in economic policy legitimately achieved only through a decisionmaking. Advancing toward an judiciary that decides on and settles conflicts economic model that establishes harmonious in a timely and equitable manner while development combining economic and keeping the goal of the common good in social needs was seen as a priority. This sight. model must contemplate broadening access to capital and technology by low-income The need for structural reform in the justice sectors, which are currently at a clear system was mentioned, starting with the 23 Participatory CAS in Colombia: A Case Study institutional structure: judicial careers and to the need to make an inventory of the political "clientelism"; corporate structure, natural resources and biodiversity of the the legislative system, and the educational nation. system that supports the preparation of judges. Increasing expenditures for justice Role of Different Actors: Government, without structural reform has led to greater Private Sector, Civil Society, and inefficiency, with no clear improvements in Multilateral Organizations efficacy. A key issue requiring a short term solution is the congestion experienced in Peace and Development: Making determined judicial offices. progress in this field requires the active participation of all actors mentioned, Increased participation of civil society in the including the armed forces and armed field of justice has produced a significant insurgents. Exclusion of some of these impact on human rights. The contribution of groups, or an exaggerated, distorted civil society, however, must strengthen the participation by only one of them, could role of the state as the only party responsible lead to failure to reach the goal of social for ensuring the application of justice to coexistence. The role of multilateral each and every Colombian. All forms of organizations in this area was regarded as private justice must be eradicated. positive by some, in that they may serve as catalysts in processes leading to agreements Preservation of Natural Resources and on programs and their implementation. Biodiversity: A critical challenge to They may also serve as interlocutors that development consists in securing the induce states to comply with their sustainability of the natural base for commitments. They may contribute with economic growth. On this matter there was successful experiences in the international recognition of a lack of coordination field as well. Other groups believed the between institutions or a lack of investment traditional role played by institutions such aimed at preserving the valuable natural as the World Bank offered no advantages resources and biodiversity of Colombia. In for involvement in these predominantly terms of the strategies required to make domestic processes. progress in this area, the following alternatives were considered: strengthening Improving Education: Workshop members public and private institutions in charge of stated that there was a need for clarity managing resources, creating strong about the respective roles played by the alliances between private and public sectors, national and territorial governments in and promoting the internationalization of education and added that the private sector the issue while at the same time and NGOs needed to play a more active role safeguarding national interests. in terms of the goals of educational quality and innovation. Regarding the World Bank, Emphasis was placed on the cross-cutting workshop members stated that there was a nature of the environment in terms of need for incentives to innovate and adjust matters such as health, education, and the structure of education to world trends, technology, and the need to promote the stressing national competitiveness at the ethics of preserving the environment by the international level. use of incentives such as legislation by virtue of which polluters pay and the protecting Economic Democracy: The role of party is eligible to receive cash awards. governments in this area must continue to be active, with the clear goal of reaching In terms of activities, high priority was given agreements with other sectors of society. 24 The Implementation Experience Both the private sector and civil society must clear that many participants focused on the adopt a more active role in meeting these traditional comparative advantages of the goals. For its part, the World Bank must Bank instead of looking for areas where the define programs that specifically promote Bank may eventually contribute to the these goals and develop instruments to resolution of the most critical challenges control and evaluate the progress achieved. faced by the nation. Improving the Efficiency and Effectiveness of Overall, it was found that among the six Justice: The role of civil society, especially priority topics included in the lists prepared that of NGOs in the area of human rights, by each session, there was at least a 50 has been highly significant. However, the percent coincidence between perceived fundamental challenge confronting the national priorities and the perceived different social sectors is that of advantages of the World Bank. The area strengthening public justice and eradicating with the most obvious differences between the varied systems of private justice that the two lists concerned the topics of violence prevail in the nation. The contribution of and peace: these were always very high on multilateral agencies in this area should not the list of national priorities and very low in be scattered and should contribute to the terms of comparative advantages. The civil creation of a comprehensive strengthening society representatives in the three groups program that includes all sectors of society. debated whether the World Bank has proven experience in this area and whether Preservation of Natural Resources and this affords it a comparative advantage. Biodiversity: It is necessary that each actor Given the general agreement on the need for assumes its own role in this area and peace in order to make significant progress contributes to the creation of initiatives for in all the other development topics identified preservation. The national government and discussed, it was thought that it would should have a role as catalyst, as developer be convenient for the Bank to consider of the regulatory framework, and as a guide participating in this area, which is so in relation to sustainable development. Civil relevant for Colombia. It was suggested that society has a crucial role in developing the Bank should consider developing a ethical standards and citizen participation greater capacity to respond to the issues of in this field. The private sector must regard violence and peace, which are primary the environment as a long-term ally. concerns of civil society representatives. Territorial administrations must develop a sense of region, or a shared home Final Recommendations environment. Multilateral agencies are to play a role in financing. Aside from the topics covered in previous sessions, and in response to the last question The Action Strategy addressed to the groups, following are some of the general recommendations on the role The challenges to development identified by of the Bank and the strategic planning civil society in which the World Bank offers process which is currently under way: competitive advantages are the areas of education, economic democracy, * The role of the World Bank as part of a preservation of natural resources and strategic alliance focused on attaining biodiversity, and provision of infrastructure the objectives listed does not have to be (this last item was mentioned as one of the limited to a purely financial capacity. most important priorities for development The possible role of the World Bank on but failed to make it to the list of five). It was the issue of peace is that of a catalyst 25 Participatory CAS in Colombia: A Case Study which facilitates alliances of different The Joint Government-World Bank public, private, and civil society sectors. Workshop In this sense the Bank's programs should focus on the comprehensive The next step of the plan was a two-day rehabilitation of populations that have joint workshop for representatives of the suffered violence. This role would government and of the World Bank who present a significant challenge to the had participated in their respective Bank in terms of flexibility, openness, workshops. The objective of the event was and efficiency. to reach agreement between the World Bank and the government of Colombia about (a) • Adopting a strategy such as the one the key components of the country proposed implies emphasizing action by assistance strategy, (b) the indicators of civil participation instead of through success for each component, and (c) the risk bureaucratic theory and practice. It factors that might affect the strategy and would be necessary to develop ways of dealing with them. The results of procedures that facilitate timely and each of the previous three workshops effective interaction between civil society formed the point of departure for the and the public sector. process. The tool used to analyze the relatiVe importance of each of the challenges, as well a A broad-based citizen consultation and as the indicators and the risks, was the citizen participation movement must be logical framework. promoted, to determine social needs and the way in which they should be Methodology of the Workshop oriented. It is better for the Bank to focus on a few priority issues rather than to The first activity of the workshop was a attempt to cover many topics without series of short presentations of the main proper focusing. Participation of the results of each previous event: the Bank could cause the priorities identified Washington workshop and the workshops to become part of the national agenda of the government and of civil society in and have the continuity required to Bogota. After these presentations, during convert them into state policies, instead the two days of the workshop, three of only the policies of specific exercises were carried out with the administrations. following specific objectives: * The detailed formulation and * Establish a consensus between the Bank implementation of this strategy should and the government on those challenges contemplate the active participation of or strategic objectives to be supported by all social sectors. Opportunities for the World Bank, starting from the continued consultations with varied challenges identified in the previous social sectors regarding implementation three events of this strategy should be created. * Define the expected results for each of * For its part, the NGO community should the strategic objectives agreed upon in adopt a long-term view, focusing on the first exercise and specify the type of strategic objectives defined by society as intervention expected with the support a whole, and should continuously assess of the Bank its achievements and operating costs. 26 The Implementation Experience Analyze the consistency of the existing small-group exercise. Each small group was lending and ESW program with the asked to identify and briefly define, out of objectives and results defined in the the three lists, those objectives that should previous two exercises, in order to be supported by the World Bank. (See the identify existing activities that should be agenda and design of group exercises in modified and new activities that should Annex 5.) be required. After each group presented its own list in The three exercises were carried out through order of priority, an interaction ensued to a combination of small-group activities, identify those items chosen by all of the plenary sessions dealing with the results of groups on which there was a consensus. each group, and general discussions and Five out of the six items that were selected debates on critical items as deemed by the plenary were present in each of the necessary by workshop participants. The groups, although, in some cases, in a overall climate of the activities was cordial different order of priority. It became clear, and cooperative. It was relatively easy to once again, that the challenge attaining of reach agreement with respect to the six greater coexistence and peace was the absolute challenges the CAS should address, even first priority for all of the groups. This was though, as would be expected, some items the single item with the greatest degree of required more debate than others. consensus. The second objective was that of better opportunities in education, also with The Strategic Objectives a great degree of consensus, even though with some variation regarding educational Table 1 presents the list of challenges and levels. The tendency was to favor basic strategic objectives for Colombia's education for all, but some advocated better development identified by the World Bank, opportunities in secondary and specialized the government, and civil society, which technological and scientific training. The served as the point of departure for the first next four items in order were improving institutional legitimacy and efficiency, improving infrastructure services, Table 1. Strategic Objectives for Colombia promoting sustainable development, and Government World bank Civil Society reducing poverty and inequality. The list below shows the six priority areas of Peace Sustainable Peace and strategic objectives agreed upon by the economic development government and the World Bank. Human development Capital Improvement Priority Areas of CAS: Poverty of education Modemization reduction with of the state emphasis on Economic * Peace rural areas democracy * Human development Infrastructure Institutional Improve * Legitimacy and efficiency of Poverty development efficacy and institutions efficiency of * Infrastructure Internationa- Justice * Sustainable development lization and * Poverty and inequality competitiveness Preservation of natural Sustainable resources and The interaction around these objectives was growth with a biodiveristy open and very rich, especially when regional focus participants presented their views regarding 27 Participatory CAS in Colombia: A Case Study the current situation and the desired task force to look into the matter and interventions to produce significant develop a framework that could eventually changes. It is worth mentioning, in some be used to deal with issues of violence and detail, the views expressed with regard to peace in Colombia and other countries. the competitive advantage of the World Bank in the area of peace and the question At the end, there was full agreement of the legitimacy of the public institutions. that, given those necessary distinctions, the Bank could effectively contribute to The World Bank and Peace: The issue of the the creation of conditions for durable extent to which the Bank has a competitive peace and development in two ways: as advantage in assisting Colombia in the area a catalyst of the international experience of peace was brought up again, as it had of others and through its own been during the previous workshops. Some experience in various areas of the world, participants argued that the conditions of particularly regarding peaceful violence and the achievement of peace were coexistence in postconflict interventions. internal political issues of Colombia. As such, they said, the Bank should not get 7he Legitimacy of Public Institutions: This was involved in them. Others argued that a also the subject of lively and substantive distinction must be made between political debate. Some government participants felt negotiations with armed groups, on which that the use of the term illegitimacy to refer the Bank may not have a comparative to public institutions was inappropriate. advantage, and the creation of conditions to They argued that institutions are legitimate achieve peace and development, on which to the extent that they are established in the its experience might be very relevant. In Constitution or other laws and operate addition, current statistics were cited within given mandates and rules. Other showing that the question of political participants, from the Bank and the violence (by guerrillas and paramilitary government, particularly the representatives organizations) was a minority issue in terms of regional governments, stated that the of numbers, since the majority of violence concept of legitimacy refers to respectability, (80 percent) occurs among citizens as a efficacy, responsiveness to clients, and a result of lack of tolerance. Therefore, themes modern structure and performance. In this such as how to fight organized forms of respect, to the extent that institutions are violence, or how to strengthen the justice not recognized and respected by citizens system, or how to establish a dialogue with they have low legitimacy. qualified international sources, are quite appropriate. Their formal legality is not questioned. It is their performance. The group finally was Furthermore, participants from the World satisfied with this explanation and agreed to Bank indicated that in the past, questions of define the strategic objective in terms of conflict and violence were treated as risks greater legitimacy. factors for Bank operations and not as an objective of intervention. However, the Bank The work of the first day ended with this was changing its position and was open to discussion. consider other courses of action in this critical subject, provided the government The Results for the Strategic Objectives defined an expected role for the World Bank. Toward this end, it was mentioned The activities of the second day centered on that the department of the Bank to which the results for the strategic objectives and on Colombia belongs had recently established a an assessment of the existing lending and 28 The Implementation Experience technical assistance program. Most of the e Youth enjoying a better quality of life work in the morning was done in a plenary session, which started with the presentation Increased access by poor children to of the logical framework matrix and its more and better integral care main concepts, using transparencies and flip * Strengthened autonomy of the charts. The six priority areas were left at the educational institutions (schools) purpose level of the matrix. Greater provision of health and nutrition In a general discussion led by one of the services at national and regional levels. facilitators, each of the small groups that worked in the exercises of the day before Legitimacy and Efficiency of Public Institutions: identified the key topics they had discussed under each of the main priority challenges. * Strengthened culture and practice of The listings below present a summary of the political participation in public affairs main topics agreed upon by the full group, stated as results expected for the CAS * Existence of regulatory frameworks for between 1998 and 2000. role definition and efficiency incentives * Public institutions becoming results Peace: oriented and under greater social control * Citizens with greater confidence in institutions of justice * Citizens demonstrating greater trust and respect for public institutions and * Citizens enjoying greater security, processes particularly in urban settings * dEnhanced participation of civil society in * Cultural change under way toward a pbi atr culture of peace and reconstruction of public matters values * Different levels of government exercising their competencies in a coherent and * Increased resolution of conflicts with coordinated fashion. community participation - Citizens and authorities constructing a Infrastructure: common language for an inclusive * Increased infrastructure benefiting poor agenda for peace communities and integrating the country * Public institutions with greater * Greater participation of private sector in legitimacy. financing and developing public infrastructure Human Development: * Improved service delivery of urban * Greater coverage and better quality of public transport education at all levels achieved * Efficiency costs achieved in energy * Greater coverage and better quality of service provision education for rural peasants achieved * Improved quality, efficiency, and * Institutions of higher education coverage of water and sanitation developing greater capacity to produce services and disseminate knowledge 29 Participatory CAS in Colombia: A Case Study Reduction of costs for long-distance thought required additional activities. In the transport. plenary session, each project or activity was analyzed. If there was disagreement, the Sustainable Development: item was discussed until consensus was reached. * All sectors incorporating an environmental dimension and providing The exercise led to a preliminary incentives for sustainable management identification of consistency and relevance of projects and technical assistance activities * Better environmental quality in urban with the proposed objectives for the CAS. centers However, it had a serious limitation. The * Better protection of human life from exercise required close familiarity with all environmental risks the projects for the group to be able to make judgments; this was not the case with most * Environmentally sustainable projects of the participants. Therefore, the analysis promoting economic opportunities, could not be rigorous enough to lead to clear especially for the poor. exclusions (projects or activities not consistent with new objectives) or to new Poverty and Inequality: activities. Nevertheless, the exercise revealed that in the area of peace and coexistence e Increased numbers of peasants with there was a clear need for additional family farms activities, if the area was to receive the high level of priority that the government team - Urban infrastructure improved in the attributed to it. (Annex 6 shows an example poorest neighborhoods of relationship between objectives and * Poor sectors with greater access to projects.) sustainable housing with basic standards Concluding Remarks: * Wide access of micro- and small enterprises to productive support The joint workshop achieved a mechanisms significant advance in the identification of key themes and objectives to guide the policies of the country assistance strategy and also achieved advances in The Consistency of the Poretfolio with finding areas of agreement between the Proposed Strategic Objectives and Results World Bank and the government of Colombia. Similarly, it allowed for The last exercise asked participants to great familariy amon em of analyze the consistency between the existing thetteamshwith respectetoetheir lending and technical assistance program viewo tanti ies ir and the identified strategic objectives and and informal environment. results. In groups of three people, using the matrix provided, group members examined The subject of peace and coexistence and each of the projects and technical assistance how the CAS will contribute to it activities. If the project or activity continued in the agenda of the contributed to an objective, they made a government, as it had during the mark in the corresponding space. At the end government's workshop. There was of the exercise, group members had to place agreement about the need to identify an asterisk in whichever column they 30 The Implementation Experience projects and activities that would allow permanent staff levels of public such a contribution, taking into administration. consideration criteria like the present comparative advantage of the World Based on the strategic areas defined in the Bank, its client orientation, and its joint workshop, as well as the capacity to generate additional corresponding results identified as targets advantages. under each one, the working groups did the following for each of them: (a) refined the The workshop did not advance enough statement of objectives and results to better in the establishment of priorities within conform with the methodology of the each of the strategic objectives and logframe; (b) established a priority order of results, or in indicators and risks for the results of each strategic objective; (c) each of the objectives. The experience further elaborated the set of activities that with the last exercise led to the needed to be pursued, by assessing the conclusion that the more technical contribution of existing projects and aspects of the construction of the logical proposing new activities; (d) identified the framework constituted a task to be risks involved and ways of dealing with assigned to specialized technical teams them; and (e) formulated indicators to be familiar with each of the priority areas. used as progress benchmarks. With this It was, then, agreed that the exercise information, a logical framework matrix would continue, starting in the second was developed for each area. half of December, 1996 under the leadership of the National Planning The initial phase of this work went from Department. mid-December 1996 to January 21, 1997. The work was done in two steps. In step Construction of the Logical Framework one, each working group refined the statements of objectives and results, gave an In a meeting on December 10, the order of priority to the results, and identified government and the Bank agreed on an which projects of the existing portfolio agenda for continuing the process. The contributed to each of the results. In step detailed plan appears in annex 8. To follow two, a smaller group for each of the up, a working team led by the deputy strategic objectives developed a preliminary director of the DNP, in conjunction with the list of indicators and identified potential local staff of the resident mission, was risks for each level of the logframe. The charged with the task of finalizing the output of this exercise appears in annex 7. logframe for the CAS, which had been This first draft of a logical matrix for each of initiated during the joint workshop. the strategic areas was sent to the country team in Washington for review, comments, The team designed a process for the task in and proposed changes. This started an such a way that it allowed the treatment of interactive process involving the each strategic objective with the direct government and World Bank teams in involvement of the concerned sectoral which the logical framework was ministries, the technical units of DNP, as constructed. The draft was reviewed by the well as the participation of other interested different sector groups of the country team parties. This approach fulfilled two criteria: that specialized in each of the areas of the one, use the technical expertise required to matrixes. Several of them wrote notes with assess the portfolio and define new questions, comments, and proposed activities, indicators, and risks; and two, changes. The comments dealt mainly with build ownership of the CAS within the more logic and indicators. In terms of logic, some 31 Participatory CAS in Colombia: A Case Study of the results or activities proposed were of the CAS: to attain sustainable development judged to be strategies or some strategies to with continuous reduction of poverty and be activities. In terms of indicators, some improvement of social conditions in an were considered too ambitious or beyond environment of peace. the potential impact of the proposed activity, and others were thought to be too The next step in the process was the difficult to measure. The proposed changes upstream review of the proposed country were incorporated into the matrices and assistance strategy framework by the sent back to the government teams for their regional vice president and his regional review. management team in early March 1997. The review document discussed the social, and In addition, the new draft of the matrix political context and economic performance prepared by the country team for each of Colombia, and the logframe matrices and strategic objective presented a modified proposed program constituted the key version of the logframe to facilitate a better technical annex. Overall, the management understanding of the matrix. The changes team endorsed the proposed strategy were the following: (a) a new column with framework and commended the staff for the summary background and diagnosis work done, which demonstrated (a) statements pertaining to each proposed strategic focus, (b) a significant consultative objective and strategy; the information for process, (c) realistic social and political these statements came mainly from ESW on assessment, and (d) clarity about poverty, decentralization and public International Finance Corporation (IFC) and management, and government sector Economic Development Institute (EDI) roles. statistics; (b) combining strategies and The main concerns were related to the actions in one column, which corresponds possibly overambitious nature of the to the levels of results and activities in the proposed program. original logframe; (c) a new column headed "instruments," which lists the projects and The main questions posed concerned: (a) the activities of the proposed CAS program. suggestion to expand the background information on economic performance and The new draft was then reviewed by the address the need for the country to correct government teams. There were some fiscal imbalances; (b) the need to work additional discussions between the working closely with the IFC on developing long- teams of the government and the Bank term financial products and facilitate and concerning sources of data for the diagnosis, support private sector participation in logic, and formulations until agreement was infrastructure financing; (c) the challenge reached in each area. The agreement also and risks of undertaking complex and included the opening of the column on difficult issues such as violence, indicators or progress benchmarks into two: decentralized provision of social services, one with the indicators for the country and infrastructure financing, and judicial another with the benchmarks for the CAS reform. The suggestions of points (a) and (b) program. It was understood that the targets were accepted. Regarding the comment on for the country might include other policies (c), it was concluded that to play the or interventions but that those of the Bank catalytic role the Bank was being required to would include only the proposed program take, it was necessary to confront and for 1998-2000. Annex 7 presents the properly manage those higher risks. To do logframe matrix for each of the six strategic so, the Bank and the government of objectives as well as the agreed overall goal Colombia were required to identify a proper 32 The Implementation Experience mix of instruments consistent with allocated activities through which the government budgetary resources, once they evaluated and the Bank intend to attain the desired the tradeoffs. development objectives -taking into account the restrictions faced by the Finally, it was agreed to maintain a government (its borrowing strategy and balanced blend of lending and nonlending fiscal constraints) and the Bank (budgetary services and small and large technical and human resources) -and predefining the assistance projects. Although it was difficult criteria or set of trigger points that would to define the optimal composition of allow the Bank to move between different knowledge transfer, pilot operations, and lending scenarios. (See annex 8 for full list of large projects, the final strategy defined participants and the agenda.) with the government for presentation to the Board offered a proper balance of them. The session consisted of two activities: an A revised document incorporating the account of the process followed between suggested changes was prepared and June 1996 and June 1997, and the presented to the Executive Committee at the presentation of the main features of the end of March. The committee agreed with matrix for each strategic objective followed the proposal. Then a detailed first draft of by a brief discussion. The minister of the country program and CAS document finance, on behalf of the country, and the was prepared by the country team leader newly appointed director of the department, and discussed with the country team in on behalf of the World Bank, endorsed what several meetings, in April and May, had been prepared by the working teams, including the staff of the resident mission under the leadership of the resident through a telephone link. representative and the country team leader. Bank and Government of Colombia The straightforward and friendly nature of Discussion of the Draft CAS this last meeting between the government and the World Bank was the best tribute to The last stage of the process was the the serious and very productive consultative discussion of the final draft with the process undertaken by the working teams to government in a final meeting. This last prepare the 1998-2000 country assistance meeting was delayed considerably because strategy framework and program for of the restructuring of the Bank under way Colombia. at the time. The restructuring implied significant changes in the management The final version of the CAS was drafted teams of the region and of the country. The after this meeting, reviewed by the regional meeting with the government finally took vice president and the Executive Committee place on July 16, 1997, in Bogota. The in September, and approved by the Board of session was designed as a vehicle for Directors in October 1997. Annex 9 presents confirming the agreed-upon assistance the logframe matrix for each of the strategic strategy; prioritizing the specific program of areas of the CAS. 33 4. Lessons from the Experience During the 1996 Annual Meetings, the first step toward developing a new form of Colombian authorities and the Bank agreed Bank participation in the country that is to carry out the CAS exercise in a expected to become substantially more participatory manner. The participatory effective as it moves forward in support of process was ample and included the country's development agenda. consultations with national and selected local governments, and with representatives This section outlines the main lessons of civil society. As a result, an intense and derived from this yearlong experience, some highly innovative process was implemented. of which might be useful for similar A major conclusion of this process is that exercises in other countries. rather than winding up as an isolated exercise to meet a requirement of the Bank's Main Features of the Process business process, the construction of the CAS rapidly became an instrument for Planning: A carefully designed plan of action developing a new form of business to carry out the collective construction of the relationship among the Bank, the country assistance strategy was a key government of Colombia, and civil society element that contributed to its success. that is conducive to dealing effectively with There was a rigorous plan and a flexible but the main development challenges of the disciplined fulfillment of its activities. Each country. main task had a clear objective, a method, sufficient time allocated, a person The development of the CAS in Colombia responsible, the needed resources, and a was characterized by the high level of well-specffied expected product. commitment and substantive contribution of the government in the various phases of the Teamwork: Working together in an process, a constructive interaction with a environment of open dialogue and wide range of civil society representatives, democratic, responsible coordination was and the utilization of a distinctive another feature contributing to the success methodology and innovative computerized of the exercise. The teams were organized in technologies for purposes of organizing and the following way: there was a core team, conducting the CAS debates. Despite the with the responsibility of carrying out the already substantial achievements of the new plan, formed by staff from the country team participatory framework, which resulted in and the resident mission under the joint the identification of new challenges for the leadership of the country team leader and Bank's assistance to Colombia, this is only a the resident representative. The 34 Lessonsfrom the Experience Washington-based country team was had assigned to civil society in the process of involved at every step of the process, developing the CAS. These were, mainly, to beginning with the Bank's workshop. enrich our understanding of the critical During the construction of the logical development challenges facing Colombia framework and in the joint workshop, the and the relative roles of the various sectors Bank's team made a commendable in meeting them-including the Bank. It demonstration of working together toward made very clear that the government and common objectives. Similarly, the the Bank remained the principals in the government teams worked very effectively process of defining the CAS, while, at the during the government workshop and same time, both agreed about the during the development of the matrices for importance of civil society's contribution each of the strategic areas. Finally, the toward the definition of the assistance follow-up to the joint workshop was done strategy. Moreover, it stated that the Bank's by a joint team of the DNP and the resident Board of Executive Directors -representing mission that had a very open and effective the totality of the Bank member countries - way of conducting the business during the maintained the ultimate authority in four months of the process. approving the CAS. Inclusion: The process was characterized by Contrary to experiences in other countries, an explicit effort to involve key stakeholders the process of consultation with civil society interested in Colombia: national and was extremely smooth and constructive. regional governments, representatives from There was no challenge to the rules of the eight segments of civil society (base game proposed for the exercise. In fact, all organizations, unions, NGOs, churches, the civil society representatives welcomed the media, business associations, political Bank and government initiative to seek their representatives, and academics), and the views and positions in such crucial matters. World Bank. There was always a legitimate There was no indication by the participants and explicit effort to listen to everyone who that they perceived any ulterior motives had a contribution to make, within the behind the consultation, such as trying to constraints of the available time and legitimize the Bank's or the government's resources. standing in the country. The only request arising from the workshops that would Clear Rules: The rules of the game were complement the current rules has been the defined and fulfilled. The plan of action demand for the establishment of some form included the identification and definition of of monitoring mechanism for the roles and expectations, which were implementation of the CAS that would communicated in precise terms and always include civil society participation. accepted by all stakeholders. The clarity of expectations was particularly critical for Methodology of the Events: Each of the members of civil society, many of whom had workshops and follow-up work sessions had no experience of working with the World a specific design and methodology tailored Bank and, accordingly, none whatever with to the nature of the objective and the preparation of a country assistance participants. A common feature of all of strategy. them was the opportunity for every participant in the various activities to The invitations sent to the 142 directly express his or her point of view and representatives of civil organizations ideas. The details of tasks and instructions of defined, in no uncertain terms, the purpose the exercises presented in the annexes show and role that the government and the Bank how this was done in the workshops of the 35 Participatory CAS in Colombia: A Case Study country team, the government and the joint about several outcomes that are expected to workshop. As mentioned earlier, the make a contribution to the overall impact of methodology of the consultation with civil the strategy in the reduction of poverty and society used Groupware as one of its tools: violence and the creation of conditions for Groupware is designed to gather all the durable peace and development. The ideas available, provide anonymity to ensure following are some of the most important that the ideas stand on their own merits, outcomes: process the information quickly, and provide instant feedback. * Six key development challenges received the highest level of consensus by the The working sessions during the government and civil society. These were construction of the logical framework had (a) the reduction of violence and the also a method that allowed all those present achievement of durable peace and to offer their input-first by collectively development; (b) improvement of human reviewing each of the ideas and statements, capital, including education, health, and and second by individually reviewing copies nutrition; (c) increasing the legitimacy of the materials produced after each session and efficiency of public institutions; (d) and commenting on them in writing. The improvement of physical infrastructure; comments and changes were then (e) reduction of poverty, particularly in incorporated into a revised version of the rural areas; and (f) increased documents and distributed, again, to all environmental protection and sustainable members of the teams. development. The most important of these challenges is the reduction of Use of Experienced Facilitators: Experienced violence and the achievement of durable trainers and facilitators designed and peace and development. conducted each event. A team from the Learning and Leadership Center (LLC) of * Several benefits from this exercise can the World Bank took the lead in the already be foreseen. First, it has allowed a Washington workshop for the country team. deeper understanding by the Bank of the A local independent consultant was hired to main participants and interests involved work with the resident mission in the design in the Colombian developmental agenda. and conducted the workshop with the Second, it allowed officials and leaders to government. The presence of this consultant contribute to and share in the rationale added transparency and objectivity to the and basic strategic considerations exercise. The team of LLC that deals with underpinning the Bank's work in the Groupware was in charge of the workshops country. Third, the proposed with civil society. A team formed by staff participation of civil organizations and from the LLC, the resident mission and the other partners in the project cycle of new local consultant took responsibility for the operations will increase their knowledge joint government-World Bank workshop. of and information about the new vision, Finally, the deputy director of the National values, and priorities of the World Bank, Planning Office, with the methodological such as client orientation, excellence, support of a staff member from the resident partnership, results on the ground, and mission, coordinated the sessions during the poverty reduction as the overall goal. construction of the logical framework. Finally, all of the above provide a framework that facilitates-and reduces Main Outcomes the transaction costs involved in-the process of building alliances with The participatory CAS in Colombia brought 36 Lessonsfrom the Experience government, cooperation agencies, and discourse regarding client orientation NGOs for the implementation of the with its decisions and actions. agreed assistance strategy. Consequently, contributing to durable peace and development has become the Civil organizations and other partners overarching goal of the CAS program in are well represented in the CAS program Colombia. for 1998-2000. In effect, some of the strategic objectives include strategies and Limitations actions pertaining to the role of civil society in the program, such as oversight Utility and Limitations of the Logical committees (veedurias ciudadanas). Other Framework: A major analytical foundation of objectives include the establishment of the Colombia CAS exercise has been the use benchmarks indicating high levels of of the logical framework methodology. The interaction among citizens, civil use of logframe has contributed organizations, and the staff of public substantially to the productivity of the CAS institutions. Similarly, the strategy of formulation process by providing all actors tripartite alliances of the public and the with a common language and a clear and private and civil sectors has been shared framework for the type of process introduced in several of the proposed and results the participants -including civil operations of the program as an society -should expect and work for. It innovative approach to the inclusion of provided a road map. Another major new social actors in development, contribution of the logframe instrument is particularly in the area of poverty that it has made possible a fresh and reduction. comprehensive approach in defining the country strategy. The developmental needs The Bank views conflict and violence in of the country have been at center stage, Colombia as a part of a strategic objective rather than those derived from sectoral or rather than simply as a risk factor. A bureaucratic pressures that blurred the real notable theme of the CAS process was challenges and appropriate strategies. It is that, up until the joint workshop, the this fresh approach that has allowed the Bank had dealt with violence and conflict emergence of new forms and areas of in Colombia as a major constraint or risk potential Bank assistance, and this new to its operations rather than an area of course breaks with the rather mechanical intervention. As a result of the absolute strategic planning approaches of the past, consensus between civil society and the which tended to preserve the same type of government regarding violence and social country assistance. conflict as serious challenges for the development of the country, the World Despite the net clear advantages of using Bank agreed to incorporate this area into this analytical instrument, there have been the CAS program as a strategic objective. some shortcomings worth acknowledging Thus, the Bank accepted the request by and addressing in a systematic manner. In the government and civil society to play a the first place, at some stages the catalytic role in this area by focusing on requirements of the methodology prevailed and dealing with structural issues over the natural dynamic the group had contributing to violence and social developed. This was especially the case conflict. This significant change has had during the joint workshop. In hindsight, a positive impact on the image of the given the high-level decisionmaking Bank, in terms of the coherence of its capacity of the government team, the 37 Participatory CAS in Colombia: A Case Study workshop should have privileged those participants would concentrate on the activities that had a higher strategic-decision national challenges rather than on the content rather than focusing on exercises of agenda of each of the constituencies. a more technical nature. Thus, the decisionmaking versus technical role of the Nevertheless, the workshops may seem to be participants should drive the design of very oriented toward participants from meetings rather than the methodological Bogota and toward those who are articulate requirements and categories of the logical and confident. This is a fair criticism. In the framework. future, it might be possible to select people from different regions of the country and to A second consideration is that because of hold focus group discussions with leaders of the specific nature of the CAS exercise- both urban and rural communities. strategic planning of an assistance program Similarly, we need to be able to obtain the rather than of a discrete investment views of mayors from medium-size and project-the rigorous implementation of the small cities, town council members, whole logframe should be qualified. The extension workers, and other public as well possibility of ensuring consistency between as nongovernmental agents. the higher categories of purpose and results and the specific activities is almost nil, Decisionmaking and Allocation of Resources: because the latter are generally at a very The methodology used in the various rudimentary level of development. An workshops allowed all participants, on an alternative proposition would be to consider equal basis regardless of their status or rank, the higher logframe categories as to express their views and to influence the normative-rather than logical-conditions decisions reached by the groups regarding for the development of the activities; that is, the order of priorities of Colombia's the higher categories would provide the development challenges. However, these basic parameters and objectives under participants did not have a hand in which the lower categories would be allocating actual or potential resources of developed as part of the normal process of the new lending or ESW program. And they development and implementation of the were not directly involved in the last phase activities. of the process, the construction of the logical framework. Some of the discussions and Representation of Stakeholders: We are conclusions in which academics, NGO convinced that the process of preparing the leaders, and local officials, among others, current Colombia CAS was a serious step had participated were used as inputs for the forward in a participatory development preparation of the program. However, the effort. But it would not be appropriate to limiting factors of costs, time, and logistics claim that the CAS was the result of a full precluded fuller participation by, at least, people-based nationwide exercise. It was the types of representatives that took part in selective in terms of who participated in the workshops. each of the three key types of events. In the case of the civil society workshops, we Notwithstanding that, we expected a highly identified about 140 leaders reflecting the participatory approach in the preparation of composition of civil organizations in the new operations that would then allow a Colombia; these were individuals generally greater degree of involvement of relevant recognized as representing their stakeholders in the definition of constituencies and able to make a critical components, activities, and the use of but constructive contribution. We decided to resources. As a matter of fact, four new take this option to make sure that operations-Magdalena Medio regional 38 Lessons from the Experience development, youth development, rural perceived urgencies would take precedence enterprise zones, and rural education, as over the strategic priorities identified well as the ESW on violence and social through this lengthy and productive capital-have all taken such an approach. consultative process. Also, changes in the financial or political environments, both Follozw-up Panel: Despite the fact that the intemal and external, could create new CAS document resulting from the process demands or priorities. These risks are continues to be the guiding framework for compounded by the recent change of the relationship between the Bank and the administration in Colombia. There will be a govermnent, the intention of creating a legitimate claim by a new administration to follow-up panel to monitor the change the relative weight of certain agreed implementation of the country assistance priorities or add new ones that had not been strategy with the participation of the originally contemplated. Some mechanisms government, civil society and the Bank has for allowing flexibility and adjustments in not crystallized until now. Nevertheless, we the CAS that do not compromise the are currently engaged with the Permanent commitment of the parties to its key tenets Assembly of Civil Society in an attempt to should be worked out to avoid the risk of identify and pursue areas of interest to the the CAS becoming irrelevant or outdated. Assembly that coincide with the strategic objectives of the CAS. In addition, we It is crucial for the success of this new form maintain -going relationships with the of strategic planning exercise that the Colombian Confederation of NGOs around parties assign the CAS a central role in the the CAS framework. The confederation, in business relationship between Colombia and turn, keeps close contact with the the Bank, including the selection and design government regarding the business plans of of lending and nonlending activities and in the multilateral organizations. The follow- assessing progress toward agreed results. up panel, however, remains as a pending Although the Bank is increasingly gearing issue. up its business process to ensure the consistency of its operations with the CAS, Major Challenges Ahead governments will take some time in adjusting to this new form of operation. The The participatory CAS promotes a new adherence of the principal actors to the CAS form of business relationship between the would constitute also a key element to country and the Bank that is focused on ensure the credibility and responsiveness of pursuing agreed-upon national priorities civil society to this new initiative. The and specific results. The various activities development of some form of monitoring the Bank would develop in Colombia in the arrangement that would incorporate civil near future would need to be consistent society in the process of reviewing progress with, and contribute toward, those priorities in the CAS implementation seems critical - and results. both as an way of mitigating the risks of deviation from the agreed course and of There is a risk, however, that in the course ensuring civil society's strong commitment of the CAS implementation, sectoral or to this new business approach that the regional pressures would deviate the government of Colombia and the Bank are authorities and Bank management from the trying to put into place. priorities and results agreed upon. Thus, 39 Annex 1. World Bank CAS - Country Team Workshop, October 30-31, 1996 List of Participants Name Title Country Operations I (LA3C1) Ernesto May Country Team Leader Marina Niforos Country Officer Harold Bedoya Consultant Natural Resources Management and Rural Poverty (LA3NR) Elsie Garfield Senior Agricultural Economist (P) John Heath Sector Economist (A) Philip Hazelton Natural Resource Management Specialist Martien VanNieuwkoop Natural Resource Economist Infrastructure (LA3IN) Jaime Port-Carreiro Senior Energy Planner (P) Jose L. Irigoyen Senior Highway Engineer Aurelio Menendez Transport Economist Human and Social Development Group (LASHD) Miriam Schneidman Operations Officer (P) Patricio Marquez Health Specialist (A) Joel Reyes Consultant Marco Mantovanelli Consultant Maria Elena Castro Social Scientist (C) Public Sector and Private Sector (LA3PS) Andres Jaime Senior Operations Officer (P) Herman Von Gersdorff Senior Economist Jit Gill Long-term Consultant Jyoti Shukla Economist 40 Annex 1 Environment and Urban Development (LA3EU) Eleoterio Codato Senior Urban Management Specialist Teresa Serra Environment Specialist (A) Resident Mission (LA3CO) Felipe Sa6z Resident Representative Jairo Arboleda Consultant Environment Department Pollution and Environment Economics Division (ENVPE) Kirk E. Hamilton Consultant Latin America and Caribbean Department International Finance Corporation Strategy and Coordination Division (CLAD3) Bernard E. Sheahan Division Manager Office of the Director (CLADR) Rosalinda Quintanilla Economist 41 Annex 2. World Bank CAS -Government Workshop, Santafe de Bogota, November 16, 1996 List of Participants Name Title Ministry of Finance and Public Credit Dr. Jose Antonio Ocampo Minister Dr. Leonardo Villar Vice Minister Dr. Clemente del Valle Director, Public Credit Dra. Angela de Rivera Assistant, Public Credit Dra. Alejandra Gutierrez Assistant, Public Credit National Planning Department Dr. Juan Carlos Ramirez Director Dr. Arturo Garcia Deputy Director Dr. Jesus Duarte Chief, Social Development Dr. Nestor Roa Chief, Infrastructure Dr. Affredo Sarmiento Chief, Social Mission Dra. Ileana Kure Chief, Decentralization Dr. Alvaro Balcazar Chief, Agrarian Unit Dr. Alberto Maldonado Chief, Urban Development Dra. Claudia Salcedo Chief, Public-Private Credit Dra. Olga Lucia Jaramillo Assistant, Public Credit Dra. Adriana Guzman Assistant, Public Credit Dr. Fabio Sanchez Transport Unit Dr. Manuel Francisco Tenorio Transport Unit Ministry of Transport Dr. Carlos Hernan L6pez Minister Dr. Guillermo Gaviria Director, INVIAS Ministry of Mines and Energy Dr. Rodrigo Villamizar Minister Dr. Carlos Conte Deputy Minister 42 Annex 2 Ministry of Education Dr. Jaime Nino Minister Ministry of Health Dr. Guillermo Torres Deputy Minister Ministry of Economic Development Dr. Orlando Cabrales Minister Ministry of Agriculture Dr. Rafael Echeverry Deputy Minister Findeter Dr. Antonio G6mez Merlano Director Ecopetrol Dr. Felix Betancourt Adviser to President Instituto de Fomento Industrial (IFI) Dr. Gabriel Borrero Director Local Government Dr. Antanas Mockus Mayor of Bogotf District Dr. Alvaro Uribe Governor, Antioquia Presidential Advisers Dr. Jorge Restrepo Economic Adviser Dra. Isabel Martinez Adviser for Bogota Agenda and Group Exercises Introduction 9:00 a.m. Introduction by Dr. Jose Antonio Ocampo, Minister of Treasury 9:10 a.m. New emphasis on the definition of the Bank's country assistance strategy to Colombia. Dr. Felipe Saez, resident representative of the World Bank in Colombia 9:20 a.m. Objectives of the workshop and agenda. Dra. Ines de Mosquera, workshop facilitator 43 Participatory CAS in Colombia: A Case Study Process of the Workshop 9:30 a.m. Presentation of participants 10:00 a.m. Identification of major challenges that Colombia has to face for its future development 10:45 a.m. Coffee break 11:00 a.m. Continuation (plenary session) 11:30 a.m. Analysis of the relationship between multilateral cooperation entities and the country 1:00 p .m. Lunch 2.15 p.m. Vision of the country in the year 2005 3:00 p.m. In view of the competitive advantages of the World Bank, identify the challenges on which the Bank's assistance to Colombia will be focused. 4:00 p.m. Coffee break 4:15 p.m. Continuation (plenary session) 5:00 p.m. Summary of workshop results and comments by participants Exercise No. 1 Identification of major challenges that Colombia has to face for its future development-vital issues that should be dealt with as priorities (10:00 a.m.-10:45 a.m.; 10:45 a.m.-11:00 a.m. coffee break; 11:00 a.m.-11:30 a.m.) G) Individual work (10 minutes): Each participant writes down four major challenges faced by the country 0I Group work (35 minutes): * Four groups-each group appoints a coordinator and spokesperson * Each participant reads and briefly explains one challenge without repeating subjects. Each participant will be given the opportunity to put forward his points. * The spokesperson writes each challenge on the blackboard and numbers it. A column should be reserved on the left to write down the number of votes Votes Number Challenge 44 Annex 2 Each participant, in silence, chooses and writes down the five most important challenges and gives each one five, four, three, two, or one points (the more important the challenge, the higher the number assigned). Each participant reads the challenge's score to the spokesperson and briefly explains the selection. At the end, the points are added up and the challenges of the group are then selected and prioritized. ® Coffee break (15 minutes) 3 Plenary session (30 minutes): * Each spokesperson reads out the challenges of the group and indicates the five priorities with the corresponding scores. When reading the challenges, the spokesperson should indicate which of these have already been mentioned by previous groups. * The facilitator, with the assistance of the group, groups the challenges by affinity. This procedure should reduce the number of challenges to approximately 12 to 15. Result: The identification of 12 to 15 challenges or priority strategic objectives that the country should deal with in the future to reach desirable and growing levels of development. Exercise No. 2 To analyze the relationship between multilateral cooperation agencies and the government. To identify positive aspects and points that could be improved. To establish which positive aspects apply to the World Bank (11:30 a.m.-1:00 p.m.) 0 Individual exercise (15 minutes): * Each participant makes a graphic representation of the relationship between cooperation entities and the government (his personal opinion or what he has heard from third parties). e3 Group exercise (40 minutes): a Each participant, one at a time, draws and explains to the group his graph and sticks it to the wall. * Each participant puts a star against the graph of his choice; the one with the highest number of stars will be the graph of the group (Other aspects of other graphs may be added to the graph chosen.) * The coordinator leads the discussion so that the group, in light of the graph chosen, may define five positive aspects of such a relationship (this may include aspects of other graphs) and five points that could be improved. The spokesperson will make the notes on the same page of the graph if there is space or, if not, on a different page. * The coordinator asks the group, with relation to each aspect or advantage noted, if 45 Participatory CAS in Colombia: A Case Study this applies to the World Bank or not Circle those that apply to the World Bank. 0 Plenary session (35 minutes): * The spokesmen of the four groups explain their results. * The facilitator groups together the positive aspects of the Bank. Results: (a) The positive and valuable factors and those that may be improved in the relationship with cooperation entities were identified; and (b) The competitive advantages or strengths of the World Bank that are worth capitalizing on were established. Exercise No. 3 To define a vision of the country in the year 2005 if World Bank assistance is structured so as to capitalize on those competitive advantages of the Bank that may assist in achieving the this vision. 0 Explanation of the workshop model (10 minutes) (i Group exercise (20 minutes): * Form groups of three persons with your two neighbors * Imagine, from the perspective of the Bank's assistance to the country that Colombia has overcome the challenges or met the strategic objectives identified in the morning. What would the results be? The group represents a journalist who is writing headlines about this new Colombia; each group should agree on the headlines, and not on the article, that reflect the achievement of the strategic objectives with the support of the World Bank. 0 Plenary session (15 minutes): * The spokesperson of each group reads and briefly explains its headlines; the facilitator writes down the 10 headlines on the blackboard and tries to establish, with the assistance of the group, a tendency toward three or four major subjects. Results: (a) To establish which concrete positive results may be contributed to Colombia by a World Bank assistance program oriented toward such strategic points in which its action could be more effective, given the Bank's competitive advantages; and (b) To establish which aspects of such a vision of the future the Bank could contribute to in a more effective manner. Exercise No. 4 In view of the competitive advantages of the World Bank, identify the three challenges or strategic objectives on which Bank assistance to Colombia should be focused. Indicate how these advantages should be incorporated into the bank assistance program. (3:00 p.m.-4:30 p.m.; 4:30 p.m. coffee). 46 Annex 2 ® Individual exercise (10 minutes): Each participant selects, from the 12 to 15 challenges identified in the morning, the three most important ones. These are the challenges that should be incorporated into the Bank's assistance program. Participants assign one, two, or three points to each challenge (the more important the challenge, the higher the number of points). The selection is of those challenges where the Bank can make a more effective contribution. O Group (35 minutes): * Each one gives the scores to the spokesperson, the scores are added up, and the result is the position of the group with relation to the three priority challenges where the Bank should focus its assistance to Colombia. * For each challenge identified, the group should specify three roles or functions where the Bank should assist Colombia. * For each challenge identified, the group should establish three roles or functions in which the Bank should assist in order to overcome the challenge. • The coordinator should lead the discussion so that the group may justify its choice and the role assigned to the Bank. * The spokesperson should write down on three acetate sheets the three challenges with their corresponding functions to be presented at the plenary session. 3 Plenary session (45 minutes): * The spokesperson explains the group's work. * The participants may make their comments on the points put forward. Result: The identification of three priority challenges for the World Bank's contribution to Colombia and the best ways to make such a contribution. 47 Annex 3. World Bank CAS-Consultation with Civil Society on Development Challenges Content of Leaflet in its development assistance activities. The World Bank-with the consent of the 0 As part of its new orientation, the World Colombian government-makes an Bank has opened the discussion of its invitation to several representatives of civil three-year strategies to governments and society in connection with the preparation civil societies. of the three-year assistance strategy to be provided by the World Bank to Colombia. 0 The executive board of the World The purposes of the invitation are: Bank-which is made up of all member countries -has the final authority to 3 To enhance the understanding of the determine the contents of the strategy. most important development challenges The purpose of the discussions with faced by the country in the medium term governments and civil societies is to ensure that such strategies meet their c3 To identify the roles of different social priorities and suit their interests. levels in overcoming Colombian development challenges (0 The assistance strategy process of the World Bank recognizes the preeminent O To identify possible World Bank roles in role of the government in formulating overcoming development challenges. and executing the country development strategy. However, both the Colombian Invited Representatives government and the World Bank concur O Base organizations in stating that the contribution of the O Labor unions different sectors of civil society to the O Nongovernmental organizations formulation of the assistance strategy is O Churches important. 0 Communications media O Business associations Stages in the Assistance Strategy 0 Political leaders Fornulation Process (0 Academics 0) Workshop with the Colombia country Background to the Invitation team in which the strategic development objectives for Colombia were identified 0 The World Bank is seeking to achieve and to which the World Bank may greater participation of all social classes contribute, given its competitive 48 Annex 3 advantages. This workshop took place in 0 Technological aspects: Washington on October 30-31, 1996. Electronic processing of ideas and 03 Workshop with the government, with individual and group the same objectives as the previous one, recommendations in order to speed in which the economic authorities, sector up discussions and consensus ministries, national institutes, and through continuous feedback of regional governments participated. This information. This method allows an was held in Bogota on November 18, immediate production of results of 1996. the discussion and, in a very short time, the final report. 0 Consultation workshops with representatives of civil society in order to (3 Duration of and registration for identify development priorities and the workshops: roles of the government and private and civil society sectors in the policies, plans, Three workshops of an approximate and programs to meet such priorities. duration of three hours each will This was held on December 2-3, 1996. take place. Each participant may participate in accordance with his or 0 A joint workshop to be attended by a her time availability: select group of government and World Bank representatives in order to Workshop 1: Monday, December 2, formulate, on the basis of the results of from 2:00 p.m. to 5:30 p.m. the previous steps, the country assistance strategy. This was held on Workshop 2: Tuesday, December 3, December 5-6, 1996. from 8:30 a.m. to 11:30 a.m. 3 Discussion and approval of the strategy Workshop 3: Tuesday, December 3, by the executive directors of the World from 2:00 p.m. to 5:30 p.m. Bank during the second quarter of 1997. E0 Emphasis is placed on continuous and Methodology punctual attendance. 0) Methodological principles: 0D Places for participating in the workshops will be assigned in accordance with the * Active participation order of registration. E Anonymous nature (value of ideas 0 Deadlne for registrations: November 27, and not of the persons or their 1996. positions) * Identification of consensus • Continuous and immediate feedback. 49 Annex 4. Consultation with Colombian Civil Society, Santafe de Bogota, December 2-3, 1996 List of Participants December 2, Afternoon Dr. Edgar Reveiz Procomun Dr. Jaime Arias Senado De La Republica Dr. Silvio Mejia Acic Dr. Mario Aristizabal Conconcreto S.A. Monsenior Jaime Prieto Barrancabermeja - Santander Dr. Diego Pizano Salazar Federaci6n De Cafeteros Dr. German Duque Ayala Senado De La Repfblica Dra. Caroline Shorten Centro Col. De Filantropia Dr. Luis Carlos Ospina Universidad Del Valle Dr. Pedro Amaya Instituto Ser Dra. Carmen Martin Camara De Comercio Barranquilla Dra. Ines de Brill Confederaci6n Col. Ong'S Dr. Galo Burbano Ascun Dr. Julio Cesar Uribe Ecofondo Dr. Cesar Gonzalez Asociaci6n Bancaria December 3, Morning Mr. Orlando Sierra Hernandez La Patria Manizales-Caldas Mr. Eduardo Vega Iglesias Banco De La Republica Mr. Ignacio Franco Pastoral Social Mr. Rodrigo Escobar National Planning Council Ms. Leonora Castanio ANMUCIC Father Rodrigo Sepuilveda Pastoral Social Ms. Alejandra Garces Presencia Foundation Ms. Juana Maria Unda Bernal ASOCANA Mr. Carlos Lleras De La Fuente Presencia Foundation Mr. Affredo Fuentes Corporation For Excellence In Justice Ms. Maria Mercedes Cuellar Estrategia Magazine 50 Annex 4 December 3, Morning (continuation) Mr. Enrique Andrade Fundacion Social Ms. Maria Cristina Garcia CINDE Father Camilo Bemal Minuto De Dios Corporation Ms. Olga Restrepo Forero National University Ms. Maria Cristina Hernandez Mario Santodomingo Foundation Mr. Jose Leibovich CEDE, Universidad De Los Andes Ms. Amalia Arango Actuar Antioquia Medellin-Antioquia Ms. Maria Eugenia Avendanio Bogota Chamber Of Commerce Ms. Maria Ernilia Correa Colombian Business Council Mr. Guillermo Esguerra Colombian Philanthropy Center Mr. Raniro Santa Hocol Foundation December 3, Afternoon Ms. Olga Lucia Toro Colombian Philanthropy Center Mr. Hernando Bemal El Rosario University Ms. Adriana Mejia Small Enterprise Association Mr. Jaime Marulanda Risaralda Coffee-Growers Corporation Committee, Risaralda Father Francisco de Roux National Planning Council Mr. Luis Carlos Villegas ANDI Ms. Janeth Hemandez National Planning Council Ms. Maria Cristina Rojas Javeriana University, Bogota Mr. Carlos Rond6n PARCOMUN Mr. Carlos Sandoval Pedagogical and Technological University Colombia, Tunja Ms. Angela Maria Robledo Restrepo Barco Foundation Dr. Ricardo Delgado CINDE Dra. Lina Fulladosa ASOCOLFLORES 51 Annex 5. World Bank CAS-Joint Government and World Bank, Workshop, Santafe de Bogota Purpose For the World Bank and the government of Colombia to reach agreement on the following: * Key components of the country assistance strategy (CAS) * CAS success indicators Risk factors that could have a bearing on the success of the strategy, and how to deal with these. The logical framework will be used as a working tool. Agenda December 6: 1.00 p. m. to 8.00 p.m. 1. Presentation of workshop results: * World Bank team in Washington, by Ernesto May * Government team in Bogota, by Juan Carlos Ramirez * Consultations with civil society, by Jairo Arboleda. 2. Establishing the World Bank role in the light of Colombian development priorities. Coffee 3. Identification of and basic agreements on main CAS components. 4. Analysis of whether the main CAS components are consistent with the existing lending and technical assistance program: * Presentation by Marina Niforos. * Comments on the program. * Necessary adjustments to the program. 52 Annex 5 December 7: 9.00 a.m. to 6.00 p.m. 1. Summary of Day One. 2. Identifying risks that could affect key CAS components. Coffee 3. Identifying risks that could affect successful World Bank involvement. 4. Identifying risks that could affect Colombian development targets. Lunch 6. Introduction to the logical framework for the country assistance strategy. 7. Developing success indicators for the logical framework purpose level. Coffee 8. Developing indicators for the logical framework results level. 9. Checking allocation of funds to the projected loan and technical assistance program. 10. Participants comments on workshop. 1-1. Closing of joint workshop. Joint Workshop Exercises 12:00 n. Presentation of participants during lunch. 1:00 p.m. Introduction: Ines Mosquera 1:15 p.m. Presentation of workshop results: World Bank team in Washington, by Ernesto May Government team in Bogota, by Juan Carlos Ramirez Consultations with civil society, by Jairo Arboleda 2:00 p.m. Exercise No. 1. World Bank-government consensus on Colombian strategic targets or goals that should have World Bank support. Show and distribute transparencies listing the goals defined by each of the three parties involved. Groups. Divide into four groups and bring back a group position on Colombian goals that should have World Bank support (45 minutes). Each group should appoint a secretary. 2:45 p.m. Plenary Session. Each secretary explains his or her group's results. The facilitator, with group support, defines a group position by bringing together related subjects. 3:30 p.m. Exercise No. 2. Identifying components of the recently defined goals on which World Bank support should focus, and specifying the results it is envisaged will be obtained with that support. 53 Participatory CAS in Colombia: A Case Study Groups. Divide into the same four groups. Each group is assigned two goals, and should identify components and results for these (45 minutes). 4:15 p.m. Coffee 4:30 p.m. Plenary Session. The secretary of each group explains the relevant results. The facilitator writesdown the results on the board (15 minutes per group equals 60 minutes). 5:30 p.m. Analysis of whether the main CAS components are consistent with the existing loan and technical assistance program. Program presentation by Marina Niforos (15 minutes). 5:45 p.m. Exercise No. 3. Analyze whether the existing loan and technical assistance program is consistent with the goals and components identified. Groups. Form a group with your two immediate neighbors. Using the relevant table, write down at the top the components identified, and then examine whether the project is consistent with one of these components. If it is, tick the corresponding column. At the end of the exercise, put asterisks in columns (components) where it is felt that additional activities should be included, or projects yet to be defined (30 minutes). 6:15 p.m. Plenary Session. The facilitator asks delegates one by one whether or not the projects are consistent with any of the components identified, and writes the results down on a transparency containing the same table. If there is any disagreement, the question is discussed until a consensus is reached on each project. The facilitator then asks which components should have asterisks placed against them to show that further action should be identified for inclusion in the program. 7:00 p.m. At the end, the facilitator and the group examine which projects are consistent with the objectives and which ones should be further examined to determine how to deal with them. 54 Annex 6. World Bank CAS -Consistency between Strategic Objectives and Existing Projects |HUHAN CAPITAL | Inceased coverae Strengthened autonomry Inmroved service delivery Proposed & equality of education of educational institutions in nutrition and health in Objectives at all levels subnational governments NMagdalena Medio Secondary Education Municipal Health Regional Developnent] Scholarship Program Systems I Project | Secondary Education Pasto Education Municipal Health Portfolio Scholarship Program systems if Antoquia Education Pasto Education 55 Annex 7. World Bank CAS-Plan for Completion of Logical Framework Order Actions Responsible 1 Present to government results of the joint workshop Jairo Arboleda 2 Analyze results as a whole to consolidate and eliminate Government redundancies, refine formulation, order of priority regarding expected assistance from the Bank. Cut or add. 3 State purposes for each of six areas, based on results. State Govermment goal, based on purposes. technical teams 4 Examine portfolio of projects in light of priorities, taking Government and into consideration (a)the cost of exclusion, relevance to results, technical teams and adjustability. 5 Identify new activities for results that need them. Government 6 Define risks, indicators, and means of verification for each Government and result, following the guidelines of the logframe. J. Arboleda 7 Send output of steps 1 to 6 to all participants in the joint Government and government-World Bank team. the World Bank 8 In two joint sessions, the joint team defines the risks for strategic objectives and goals; reviews risks identified by the government team regarding results, adjusting as needed; develops indicators for goals and strategic objectives; and reviews indicators developed by the government team. Government and Adjust as needed. WB resident mission 9 Present to Bank headquarters the product of steps 1 through 8. Felipe Saez 10 Bank team reviews products of steps 1 through 8. Country team 11 The Bank and the government discuss comments and Ernesto May proposed changes and come to agreement. Felipe Saez 12 Meeting of government and Bank teams participating in joint workshop of Dec. 6-7 to validate proposal of Government and technical teams. the World Bank Note: Some of the steps required several work sessions. In addition, team members worked individually to complete assignmnents. 56 Annex 8. World Bank CAS -Final Meeting, 1998-2000 Program 1:00 p.m. Lunch 2:30 p.m. Introduction: Opening remarks by Treasury Minister Mr. Jose Antonio Ocampo and the director of the World Bank Department for Venezuela, Colombia, and Ecuador, Mr. Andres Solimano. 2:45 p.m. Presentation of the agenda by Ines de Mosquera. 3:00 p.m. Country assistance strategy (CAS) process by Ernesto May. 3:10 p.m. Parameters for the exercise: * Fiscal considerations, debt strategy, and the role of the multilaterals (WB/ IDB): Clemente del Valle (10 minutes) e World Bank budget considerations: Andres Solimano (10 minutes) * Portfolio improvement plan. Marina Niforos (15 minutes). 3:45 p.m. Summary of strategies in each area, discussion and priorities: 1. Reducing violence: Caroline Moser (10 minutes) 2. Human capital development: Constance Corbett (10 minutes) 3. Achieving Improvements in public sector legitimacy and efficiency: Felipe Saez (10 minutes). 5:00 p.m. Coffee 5:15 p.m.4. Improving infrastructure services: Jayme Porto-Carreiro (10 minutes) 5. Sustainable development: Ernest May and Teresa Serra (10 minutes) 6. Reducing poverty and promoting rural development: Jairo Arboleda (10 minutes). 6:30 p.m. Analysis of whether program and pipeline are consistent with priorities agreed upon. 57 Participatory CAS in Colombia: A Case Study 7:15 p.m. Establishing the mechanism for finalizing the CAS document in the light of conclusions drawn from the session. 7:25 p.m. Commitment by the parties to implement the strategy. 7:30 p.m. Close. List of Participants Ministry of Finance and Public Credit Dr. Jose Antonio Ocampo Minister Dr. Gabriel Misas Economic Adviser to President Dr. Eduardo Fernandez Vice Minister Dr. Joaquin Bernal Technical Vice Minister Dr. Clemente del Valle Director, Public Credit Dra. Viviana Lara Deputy Director, Contracts Unit Dra. Elizabeth Currie External Debt Rationalization Dra. Maria Alejandra Gutierrez Contract Unit Adviser Dra. Angela de Rivera Contract Unit Adviser National Planning Department Dra. Cecilia L6pez Director Dr. Arturo Garcia Deputy Director Dra. Claudia Salcedo Chief External and Internal Credit Dra. Viviana Perez Adviser External and Internal Credit Ministry of Agrculture Dr. Antonio G6mez Merlano Minister Ministry of Education Dra. Rosa de Lima Gallo Technical Secretary Ministry of Development Dr. Orlando Cabrales Martinez Minister Ministry of Environment Dr. Eduardo Verano de la Rosa Teresa Serra Task Manager, Environmentally and Socially Sustainable Development Jayme Porto-Carreiro Task Manager, Infrastructure Bernard Sheahan Strategic Coordination Manager, IFC Marina Niforos Country Officer Mauricio Cuellar Local Consultant, Infrastructure Martha Laverde Local Consultant, Human and Social Development Jairo Arboleda Development and Participation Specialist, ESSD 58 Annex 9. Final Version of Logical Framework Matrix for Three of the Areas Colombia-CAS Program Matrix OVERARCHING DEVELOPMENT OBJECTIVE: Attain sustainable development with continuous reduction of poverty and improvement of social conditions in an environment of peace StTk4T Partnership or investment in financial agencies to develop market maker hidustry => Support for private pension funds * IFC: Credit lines for SMEs * IFC: Support for transfer of know-how for leasing industry (impl.) Sustainable Development (Protection and Conservation of the Environment) Diagnosis Strategy/Actions Progress Indicators Instruments Related Activities Colombia Colombia/Bank IBRD/IFC/EDI IDB Colombia's critical enviromnental Improve management of natural * Enact National Forestry Technical assistance (TA) and investment * Envir. Program problems are: (1) inadequate resources, conservation of major Action Plan and Forestry operations targeted to rural areas: (0mpl.) management of natural resources strategic ecosysters, and Statute (1998) * Natural Resources Manag. (impl.) * Cali Water & Sanit. (deforestation, loss of biodiversity, environmental management in urban * Prepare Pacific ecological * Agricultural Technology (impl.) (impi.) endangered strategic ecosystems, soil centers, including protecting human zoning (99) * Land Reform (98) * Rio Bogota Sanit. degradation, water use conflicts, highly life and health from risks deriving * Revise Urban * Magdalena Medio Program (98) r (impl,) polluted rivers, canals, and wedands); fromn environmental degradation or Environmental TA Strategy * Natural Resources Management n, . Rio Medellin Sanit. and (2) (air and water) pollution and landslide, earthquake, and other of Ministry of Environment including pilot projects environmentally (impi.) environmental risks (floods, earthquakes, natural disasters. (98) and economically sustainable in strategic * Ag. Science & industrial accidents) in urban centers * Prepare and implement areas of violence and poverty (national Technology (99) (resulting from rapid urbanization, urban environmental parks, peasant reservations, buffer zones) * Frontier Devt. increased industrialization, and strategies and action plans (00) * Colombia- inadequate management of urban (UEAPs) for Bogota, Cali, Venezuela (00) transport). Medellfn, and Barranquilla TA and investment operations targeted to * Sustaminable (UEAPs 98; urban centers: Management of implementation according * Urban Environmnent TA (irnpl.) Hydrographic to agreed timetables) * Santaf6 I (impl.) Watersheds (98) * Set up industrial pollution * Bogota Transport (impl.) * Sustainable monitorng and control * Land Regularization and Barrio Management of systems in Bogota, Cali, Upgrading, including envirommentally and Marshlands (Col. Medellin, and Barranquilla economically sustainable pilot projects in Caribbean) and of (99) strategic areas of violence and poverty Coastal and Marine * Prepare UEAPs for 10 to (99) * Resources 12 midsized cities (00) * Cartagena Water and Sewerage (98) (Caribbean, Increase conservation of principal * Consolidation of 30 *IFC: Cartagena Water (98) Pacific) (99) strategic ecosystems buffer zones o~Santaf6 11(00) * Centro Forestal Las strategic ecosystems buffer zones o Urban Environment Management Gavistas (impl.) deforestation for Investment, including financing * National Research selected strategic mechanisms for the treatment of waste Project on the use ecosystems water (00) and conservation of •Increase by 15 *Natural Resource Management (impl.) biodiversity (00) percent strategic * Natural Resource Management nI (00) information for conservation and biodiversity use _ Sustainable Development (Protection and Conservation of the Environment) Progress Indicators Instruments Related Activities Colombia Colombia/Bank IBRD/IFC/EDI IDB The poverty-environmental degradation Target pollution control efforts to * Reduction in number TA and investment operations targeted to * Center For Cleaner relationship has not been sufficiently areas with potentially higher impact of people living on rural areas: Production (impl.) taken into account in public initiatives to on health and quality of life for poor inappropriate urban * Natsral Resources Management (impl.) * Improved Environ. deal with environmental problems. populations. land * Agricultural Technology (impl.) Quality and * Increase in coverage * Land Reform (98) Pollution Control Promote productive enployment and efficiency of * Magdalena Medio Program. (98) * (water treatment opportunities for the poor through water supply, sewage, * Natural Resources Management n1 (00), plants, clean environmentally sustainable projects and waste colection including environmentaUly and production), with (for example, in forestry, extraction services economically sustainable pilot initiatives in emphasis on activities, management of protected * Increase in number of strategic areas of violence and poverty cooperation with areas, fishing, solid waste collection, beneficiaries of (national parks, peasant reservations)* the private sector and recycling). productive initiatives (99) campesino TA and investment operations targeted to Modern. (97) reservations, and urban centers: * Cartagena Water on) * Santaf6 I (impl.) (98) * Reduction in level of * Cartagena Water and Sewerage (98) * Aqueduct of Pereira environmental * IFC: Cartagena Water (98) (98) degradation in * Land Regularization and Barrio Upgrading ecosystems where (99), including environmentally and pilot projects are economically sustainable initiatives * carried out * Santaf 11 (00) The state has not foly taken into account Taking into account cost- * Increase (public and * Prepare regulations on user *Al investment projects with potential environmental costs and benefits in effectiveness concepts, build private) fees and pollution charges environmental impact must include actions formulating economic and sector policies, environmental considerations into environmental for water (98) and air (99) to prevent, minimize, mitigate, or especially in connection with key key production sectors and the investment as a compensate for such impact, subject to production sectors (for example, energy, provision of public services. percentage of GDP cost-effectiveness criteria mining, industry, agriculture) and public * Lower water and services. energy consumption * Study to set up accounting frameworks and * Consolidation of a per unit of value monitoring and evaluation guidelines to National Environ. added for key facilitate cost-effectiveness analysis of Information System production sectors investment in environmental programs for for M&E of * Increase number of key sectors (related to budget system National firms in compliance reform) (98) Environmental Plan with environmental (financial standards * Sector study to assess results of public sustainability) (98) * Increase number of sector environmental management firms certified in programs (99) accordance with ISO * Study on inclusion of environmental 14000 standards variables in tariffs for public services Sustainable Development (Protection and Conservation of the Environment) Diagnosis Strategy/Actions Progress Indicators Instruments Related Activitie Colombia Colombia/Bank IBRD/IFC/EDI IDB Significant progress has been made in Improve capacity of environmental * EMAs with licensing, * Revise Environment TA and investment operations targeted to * Pr. National recent years in setting up a national management authorities (EMAs) and monitoring, Ministry's Urban rural res: Reserch or environmental management system seek opportunities for partnerships evaluation, and Environment Techmcal Biodiversity (00) (SINA). However, work is still needed to with other government agencies and enforcement systems Assistance Strategy (98) TA and investmnent operatons targeted to * Laa Gavistas Forest make the SINA operate effectively, as a the private sector, NGOs, and fily operative * Prepare and inplement urban cntes: Cnr (impF.) decentralized system with strong input academia. * Increase in number of urban environmental urban centers Center (impl.) from local communities and the private partnerships in natural strategies and action plans Urban environmental management TA sector. resources (UEAPs) for Bogota, Cali, (impl.) management Medellfin, and Barranquilla . TA operation for EMAs, departmnents, and programs (such as (UEAPs) (98) municipesaon fot use pants, and parks) *Prepare and implement muiiaiisolnduepnig,wt Inaroductin of PrenirondImmental trainingemphasis on natural disaster preparedness industrial pollution education plans for the four monitoring and cities with more than I enforcement systems million inhabitants (98) in the four cities with * Set up industrial pollution over 1 million monitoring and inhabitants, based on enforcement systems in Community BogotA, Cali, Medellin, participation and and Barranquilla, including public disclosure of public disclosure of information infonnation and community participation Envirommental interventions have been Development of strategic * Environmental * Prepare and implement * Development of schemes to be included in * Cooperation b/w focused mainly on dealing with the partnerships with production sectors, considerations built urban environmental various projects to promote strategic private and public impact of specific projects; weaknesses public services, ministries, and into General strategies and action plans partnerships with the private and public sector for pollution exist in the consideration of sector and subnatonal agencies to Development Plan (UEAPs) for Bogota, Cali, sectors and support a coordinated control (impl.) environmnental issues in the fonnulation implement the environmental agenda and sector and Medellin, and Bafranquila implementation of the environmental of local, sector, and subnabonal in priority areas (for example, subnational planming (98) agenda * Paper induptry strategies. rational use of natural resources in Prepare UEAPs for 10 to (impl.) public services and clean production 12 midsized cities (00) policies in industry). * Expansion of Environment Ministry's sectoral commnittees to cover key production sectors (such as energy, mining, industry, agriculture) and public services 01 0" Progress Indicators Instruments Related Activities Colombia Colombia/Bank IBRD/IFC/EDI IDB EDUCATION Education With primary education enrollment rate Ensure participation of all * Primary education * Two percent increase in primary * Informal ESW-Policy Note on * Institutional close to 80 percent and secondary Colombians in economic, enrollment rate increased education enrollment rates at the Education to New Development for education at 50 percent, Colombia is far political, and social development from 80 to 86 percent at the national level, and 5 percent Administration (98) Education (98) away from its constitutional mandate of to guarantee peace, democracy, national level, and from 66 increase in rural areas by the providing universal basic education up to and competitiveness in the global to 75 percent in rural areas year 2000, both related directly * Issues and lessons leamed from age 15 (ninth grade). economy through: by year 2000. to our interventions. the implementation of (1) Basic and secondary decentralization in the education Primary education enrollment in the rural education: Expand access and * Secondary education * Annual average increase of 1.5 sector: areas is 66 percent compared with 89 improve quality of education enrollment rate increased percent at the national level in - EDI "Learning with percent in the urban areas. Of every 100 within a decentralized framework, nationally by 2 percent per secondary education enrollment Lending" (98) students entering primary school, only 30 ensuring the transfer of year. rates. reach ninth grade, with less than one- responsibility for provision to the * IDF grant for analysis of issues quarter completing without repetition- municipal level and strengthening * Retention in ninth grade * One percent annual average of financing, efficiency and reflecting the very low intemal the normative, technical increased to 36 out of 100 increase in global education equity in higher education. efficiency of the system. assistance, and evaluative students enrollment rates in the functions at departmental and department of Antioquia and in * Primary Education 11 (impl.) Compared with other countries in Latin national levels necessary to * Overall repetition rates the municipality of Pasto. * Secondary Education (impl.) America, Colombia shows low spending complement and support reduced by 25 percent per student at the primary and secondary development of municipal * In schools participating in v Antioquia Education (98) level-only Bolivia, El Salvador, and capacity; strengthening * Academic achievement test projects, academic achievement * Pasto Education (98) Paraguay spend less. In relative terms, development of school autonomy results improved by 10 test results improve by 10 * Rural Education (99) Colombia spends about 12 times more on in management with educational percent percent. * Local Govemment Education higher education than on primary (the quality; and encouraging and Credit Line (00) highest ratio in the region with the supporting community and private Municipalities: Municipalities: exception of Brazil and Paraguay). sector participation. Particular * Increased number of * In areas participating in the attention to be paid to the needs municipalities certified to projects, increased number of * Magdalena Medio Program (98) of rural education. directly manage the municipalities are certified to (2) Higher education: Strengthen education system and fiscal directly manage the education competitiveness, efficiency, and resources system and fiscal resources. equity. (3) All levels: Strengthen resource * Move to a capitation system * Municipalities involved in the transfer mechanisms to achieve of distribution for investment projects increase the equity and efficiency. resources in 15 participation of the education municipalities with more sector in the use of national than 100,000 residents investment transfers. Schools: * 25 percent of schools (basic Schools: and secondary) in the o 80 percent of schools (basic and country have a high level of secondary) participating in the community participation and projects have a high level of manage their own community participation and investments to improve the manage their own investment to quality of education improve the quality of education. .aoitreA1 . Progress Indicators Instruments Related Activities Colombia Colombia/Bank IBRD/IFC/EDI IDB The death rate of young men and Youth development: (1) Increase * Homicide rates among youth In the areas where projects are * Youth Development (99) * Social Safety I women, age 15-24, is equal to the death the quality of life of youth; (2) decreased by 15 percent implemented: * Agriculture Technology (impl.) (impl.) rate of adults age 25-59, (that is, 27 improve access to education and * Increased numbers of youth * Magdalena Medio (98) * Promotion of Youth percent of total); 76 percent of deaths health services; (3) support * Employment opportunities return to formal schooling and Health among youth is caused by homicide. In employment assistance venues; for youth increased have higher employment * Social Safety Net 11 1993, 51 percent of victims of violence and (4) increase sociopolitical opportunities (99) were youth, while only 16 percent of participation. * Agriculture perpetrators were youth. More than 23 * Increased private sector Technology (99) percent of youth, age 12-24, do not study provision of services for youth or work; 53 percent do not have access to * Health indicators for at-risk secondary education; and only 33 youth improved (incidence * Health indicators for at-risk percent of youth, age 15-19, have work. of drug usage and alcoholism youth improved (incidence of Unemployment rate among youth is reduced) drug usage and alcoholism twice as high as the national average. reduced) Despite significant progress in the Improve system of integrated * Increased number of increased coverage of services for early childhood care and community welfare homes children under the age of seven, education services, especially for that pay special attention to deficiencies in the coverage and quality the poor. the psychosocial of the services still persist, particularly development of the child for the poor. * Increased number of municipalities that share the management of Colombian Institute of Family Welfare services The low capacity to generate knowledge Technology challenge: * Productivity through * National policy for education * EDI Regional Seminar: * Colciencias III and technological know-how contributes Increase capacity to generate technical advancement technology strengthened and "Distance Education in (impl.) to the country's weakness in responding knowledge, develop technological increased. lessons collected from existing Developing Countries" (98) effectively to the socioeconomic skills, and utilize technologies to initiatives. * EDI's World Link demands of a globalized and enhance education at all levels. * IDF Grant to support Technology interdependent world. Development (98) aN Ln- 2 ~ ~ ~ 2 Strategy/Actions Progress Indicators Instruments Related Activities Colombia Colombia/Bank IBRD/IFC/EDI IDB HEALTH Insurance challenge: * Affiliation of poor to the * Affiliation of the very poor in * EDI Regional Seminar: * Hospital Law 100, the health sector reform law Expand the affiliation and subsidized health insurance departments and municipalities "Networks, Technology and Management enacted in 1993, mandates universal coverage of health insurance scheme, from 5.9 million covered by the Municipal Health Distance Leaming for Health Modemization health insurance coverage through its among the poor. (out of 12 million total) poor Services Project increased by 3.4 Sector Reform and Population (impl.) provision for obligatory coverage of in March 1997 to 10.8 million (75 percent) in 1997, 2.3 Policy" (98) & Health Sector workers, dependents, and the poor, over million, or 90 percent of the million (up to 99 percent) in Reform (impl.) a six-year period. Nevertheless, still an total, in 2000. 1998, and 101,000 (100 percent) * EDI Regional Seminar: * Social Safety Net estimated 30 percent of the population in 1999. (There are 3.4 million "Flagship Program on Health (impl.) does not have access to health care * During the period 1997- already affiliated in 1996, or 36 Sector Reform and Sustainable * TA for the Creation services mandated by Law 100, with the 2000, a reduction in matemal percent of total). Financing" (98) and Management of share climbing to 50 percent among the mortality by 4 percent, Health Units poor. Epidemiological challenge: starting at around 100 per * In municipalities covered by the * EDI Regional Seminar: (Empresas Improve the quality of health and 100,000. Municipal Health Services "Integrated Approaches to Solidarias de Salud) Social and economic transformations of nutrition services, with particular Project, during the period 1997- reproductive Health and (impl.) recent decades have contributed to the attention to the municipal level. * During the period 1997- 2000, matemal mortality reduced Population Planning" (98) * Social Safety Net 11 emergence of a new set of health 2000, a reduction in child by 4 percent. (99) problems. While the prevalence of mortality (children under * Municipal Health I (impl.) * Health Infrastructure infectious and communicable diseases five years of age) by 8 * In municipalities covered by the * Municipal Health 11(99) (99) has diminished sharply, percent, starting around 130 Municipal Health Services nonconumunicable diseases and injuries per 100,000. Project, during the period 1997- * Magdalena Medio Program (98) associated with violent acts have 2000, child mortality (children emerged as the leading causes of * Number of municipalities under five years of age) reduced sickness, disability, and death. that have been certified (that by 8 percent. For children, perinatal conditions and is, entitled to manage infectious diseases constitute the major autonomously central * Increased number of cause of deaths, while malnutrition government financial municipalities that have been continues to affect 13 percent of children Institutional challenge: transfers), increases from certified (entitled to manage under five. In line with Law 100, strengthen 131 out of 1,061 autonomously central the health system's institutions, municipalities in March government financial transfers): The operationalization of Law 100 organization, financing, human 1997 to 950, or 90 percent of an additional 236 in 1997, 247 in remains the key institutional challenge. resources, services development, the total, in 2000. 1998, and 165 in 1999. The principal difficulty is how to and delivery. manage the transition from a regime of Increased number of hospitals * Increased number of hospitals financing supply directly in public and other public health and other public health facilities facilities to one primarily of subsidies to facilities converted into semi- converted into semi-autonomous demand via explicit individual insurance. autonomous or autonomous or autonomous units: an units: among primary care additional 100 in 1997 and 109 in The health system emphasizes curative facilities, from 283 out of 732 1998. over preventive care and provision facilities in 1997 to 585, or 80 through higher-level institutions over percent of the total, in 2000; primary care institutions. Primary and among secondary and services are also mainly clinic-based, tertiary facilities, from 120 out with limited outreach to the community. of 141 in 1997 to 141, or 100 percent of the total, in 2000. Environmentally and Socially Sustainable Development Network The World Bank 1818 H Street, N.W. Washington, D.C. 20433 USA Fax: 202-522-3247 E-mail: sdpublications@worldbank.org