PART OF THE LEADERSHIP FOR RESULTS PROGRAM 90174 Improving Sewerage Services and Management for Baghdad Citizens using the Rapid Results Approach INTRODUCTION pilot Municipalities, and concerned District Councils With about 7 million residents and a high population set up to achieve a specific targeted change; improved growth rate, Baghdad is the second biggest and most communication with citizens to improve sewerage crowded city in the Arab world after Cairo as well as management; and increased effectiveness in manag- in Western Asia after Tehran. The growing population ing the sewerage network based on citizen input and has put considerable pressure on the Mayoralty of refined dealings with contractors. Baghdad to improve its public services, the sewerage To generate evidence of the outcomes—and system in particular. milestones and outputs— achieved from the initia- In 2013, the Deputy Mayor for Technical Affairs tive, their significance and how the local stakeholders launched a process of change to improve sewerage contributed, the project team identified outcomes to services by mobilizing people, ideas and resources learn from the initiative using a customized outcome with the support of the World Bank’s Leadership for harvesting tool. Visual maps present the sequence of Results (L4R) program. The intervention would con- outcomes achieved by the actors involved—how the tribute to the government’s goal to serve all citizens outcomes built on each other over time to form multi- of Baghdad with reliable sewerage services by 2017 actor, institutional processes for change to address (National Development Plan 2013–2017). the development goal. Outcome stories and lessons Due to the efforts of the intervention, which took highlight key areas of results. place from January to June 2013, progress has been made in several areas: high-level commitment to BACKGROUND improved sewerage management through a for- The Baghdad Sewerage Directorate is responsible mal steering committee; a new, multi-stakeholder for management of the sewerage main trunks, main approach to reform piloted with an implementation sewerage pumping stations and sewerage treatment team comprised of members from the Mayoralty, the plants in Baghdad. Each of the 14 municipalities of 1 Figure 1. Theory of Change The change strategy map shows how change happened to advance progress toward the goal for reform in the sewerage sector—the development problems addressed, change agents producing the changes, outcome areas, and supporting activities by the World Bank Leadership Practice and the World Bank country office. Baghdad has geographical limits within which they The Deputy Mayor for Technical Affairs decided are responsible for maintaining the water supply and to adopt the L4R approach to facilitate innovative sewerage networks. performance improvements in service delivery, working Maintenance of the sewerage network in Bagh- collaboratively with the World Bank Leadership dad is quite poor, with no action for about 15 years. Practice and the Bank’s sectoral management Significant problems include the growing pollution of units in the region related to MENA Public Sector the Tigris River, an outdated system installed decades Management and Governance (MNSPS) and MENA before for a smaller population, combined sewerage Water and Agriculture (MNSWA).1 and rain water systems, and overloaded and backed The approach: Break the reform process into up sewerage lines due to aging pumping stations. This manageable bits, with an authorizing environment problem has been further exacerbated by the split- ensured by a Steering Committee composed of key ting up of houses into many units after the 2003 war decision makers in the sector, supported by coaches due to a chronic housing crisis that has caused people trained in results-based problem solving. The coaches inside the city to divide their residential properties into led multi-stakeholder implementation teams in Rapid smaller plots with illegal connections to the water and Results Initiatives (RRIs) to tackle problems from differ- sewerage networks. ent angles and produce tangible results within 90 days In November 2012, the Mayoralty of Baghdad with stakeholders continuously learning by experiment- and the World Bank started to discuss both the ing. The current case focuses on the experience of the water supply and sewerage management issues. sewerage sector. 2 Figure 2. Results Chain for Impact Toward Goal Outcomes were grouped according to their type of change, and then placed along a results chain to identify how the project contributed to higher-level results. Figure 3. Map of Initial and Evolving Outcomes An outcome map illustrates how key outcomes along a timeline connected and built on each other to form multi-actor processes for change. 3 OUTCOME STORIES KEY LESSON FOR OUTCOME STORY I I. High-level commitment and authorizing Formally specifying the roles and composition of environment a steering committee and providing supportive coaching to fulfill these roles were critical steps for Key leaders prioritized the sewerage management ensuring clear guidance and authority for the L4R problems and provided the authorizing environment initiative in Baghdad. for change by allocating budgets, establishing focal • System reform requires sustained collective persons and teams, and monitoring progress to solve leadership, but the initiative had only one main problems as needed. champion at the start. This champion, the Deputy Mayor for Technical Affairs, had to travel outside of Outcomes the country, which hindered his ability to oversee Key outcomes in this area and their significance and guide the process. • The establishment of an “acting” steering include: committee allowed the initiative to proceed in • In November 2012, the Deputy Mayor for Techni- the Deputy Mayor’s absence and demonstrated cal Affairs decided to use the L4R approach to the need for the support and engagement of facilitate changes in managing the Baghdad water senior staff to guide activities. The identification of supply and sewerage. L4R incorporates behavioral coaches provided dedicated persons to support and institutional change alongside infrastructure implementation. improvements to pilot rapid, client-responsive • The decision to turn the steering committee approaches that have the potential to be institu- into a formal body provided overall institutional support for the initiative and clarified the roles, tionalized or scaled up. responsibilities, and authority of committee • In January 2013, the World Bank project identified members. three candidates to become local coaches for the RRI implementation teams. In the country context Important indicators that could be used to track it was not possible to find coaches experienced in increased leadership commitment could include: guiding RRI teams and results-based problem solv- • Agreement of steering committee on priority areas ing processes, given the importance of language to focus implementation teams and to allocate and local understanding of issues. budget [Y/N] • Coach dedicated to support implementation • In February 2013, the Deputy Mayor for Technical process [Y/N] Affairs and two concerned Directorate Generals • % of steering committee members regularly (Bagdad Water Authority and Baghdad Sewerage attending meetings to participate in decision- Directorate) agreed to provide a budget and assign making (“regularly” should be assigned two focal persons who would work with the coaches reasonable definition; as evidenced by steering and multi-stakeholder RRI implementation teams to committee meeting minutes) be set up for 90 days to achieve results for a persis- tent problem in their respective sector (water and sewerage). This signaled commitment to improve steering committee to provide overall institutional service delivery, and led to provision of the neces- support and direction during the RRI. sary resources, authorization, and support to set up • In late February 2013, a preliminary diagnostic note the two teams to implement RRIs. on the situation and needs in the sectors was used • In mid-February 2013, the Deputy Mayor for Techni- to guide the steering committee. This detailed note cal Affairs set up an “acting” steering committee helped build consensus and prioritize the water to proceed with the initiative while he was out of supply and sewerage projects—the key was under- the country traveling. To get things moving in his standing the needs from the users’ perspective. absence, he saw that it was crucial to have the The findings related to quality and quantity of water senior staff represent him. The acting steering com- supply and reduced performance of the sewerage mittee was to launch the initiatives and was com- network. Problems found included illegal connec- prised of the two Directorate Generals and focal tions, leaks, and collapsed lines, among others. persons from each sector. He later formalized the • In March 2013, the Steering Committee with municipal officials identified critical challenges 4 and prioritized key challenges in the sewerage sector to form an RRI implementation team to KEY LESSON FOR OUTCOME STORY II identify innovative reform solutions—maintenance The creation of a multi-stakeholder implementation of the sewerage network. The Mayoralty and its team engaged “those who have the problem” in 14 Municipalities had not done maintenance in solving it, a departure from the traditional, top-down approach. about 15 years, and despite many complaints, • The team at first did not include all of the many citizens had never seen maintenance in perspectives and expertise needed to adequately their lifetime. Identifying critical challenges and address identified challenges, with members establishing priorities among a wide group of lacking technical expertise in key areas. The team stakeholders were key steps toward ensuring first included the chief engineer of municipal alignment of interest and focus on results. sewerage and local maintenance staff from Al Sadr Municipality II. Program Contribution • Once the Mayoralty understood the potential value of the initiative to citizens, the Media and The L4R program shared successes from other coun- Cleaning Departments were invited to support the tries to demonstrate the potential of L4R initiatives team. These units also had a direct concern about for managing reforms in Iraq and helped prioritize the sewerage blockage. focus on the water supply and sewerage sectors. The • The team aimed to develop a solution that could World Bank Group team briefed the Deputy Mayor provide a learning opportunity for how to address for Technical Affairs and other members of the leader- the problem over the long term, with multi- ship team on how to assign budgets and focal persons stakeholder involvement. identify coaches who the team could train and closely Important indicators that could be used to track this mentor to support the entire L4R process and the change process could include: importance of establishing a steering committee. The • Team’s autonomy to set its own goal and team also provided written guidance on key roles in implementation process (team charter or other English and Arabic. document specifying team’s mandate and protocols) II. New multi-stakeholder team with space to • % of team members satisfied with responsiveness innovate to improve sewerage management of Strategic Leader (DG Sewerage) to The Mayoralty, pilot Municipalities, and District Coun- implementation needs of team (survey of implementation team) cils all played key roles on the RRI implementation • Formal representation of all relevant groups team to develop solutions. The steering committee on implementation team (yes, no—by key gave them autonomy to innovate while providing lead- department, as evidenced by team charter and/or ership to solve problems impeding progress. meeting minutes) Outcomes Key outcomes in this area and their significance lenges identified in the stakeholder mapping: to include: reduce by 50% the blockage and overflow claims on • In March 2013, the multi-stakeholder implementa- the sewerage system in two districts, within 90 days, tion team was established in the sewerage sector starting from a specific date. By defining their own with members from the Mayoralty, pilot Municipali- goal and work plan the team fostered ownership ties, District Councils, and communities to improve and a realistic plan by those people who carry it sewerage maintenance. For the Baghdad water out. The team also reached a consensus on criteria supply and sewerage sector this was the first time for choosing the districts, taking into account tech- a mixed stakeholder team was established, with a nical and economic factors. specific focus on results. All team members were • In late March 2013, the team modified its perfor- concerned with reducing sewerage blockage. Thus, mance goal to focus on different typologies of dis- this was a major difference from business as usual, tricts. This decision was significant because it aimed with the potential of sparking innovations. at providing cases that should be as distinctive as • In March 2013, the implementation team defined possible to further generalize outcomes that could their own goal and work plan based on the chal- provide a learning opportunity. 5 • From April–May 2013, in a session to review their progress, the implementation team acknowledged KEY LESSON FOR OUTCOME STORY III technical knowledge gaps blocking their ability to The regular team meetings and communication advance the goal. Other challenges included the between the Steering Committee and Implementation team leader and some members of the Mayoralty Team identified the importance to engage the District Councils. This was instrumental for getting systematic often not joining meetings and blocking the team’s input from users to ensure the sewerage system progress. Initially members from Municipalities did overcame challenges to address local needs. not show up for meetings because of miscommuni- • Citizens previously had no voice for improving cation around the potential value to citizens and a water supply and sewerage services, and the lack of availability. quality of services was not monitored via citizens’ • To address these challenges, the Steering Com- reactions. mittee appointed a new deputy team leader to act • The collaboration with the District Councils on as de-facto team leader. A new member from the the content and conduct of the campaign helped ensure alignment of the campaign with local Mayoralty Media Department was added and the knowledge, needs, and priorities. Municipality also assigned new members from the • Feedback from the District Councils, in Cleaning Department to support the team. These combination with real-time feedback through adjustments indicated joint problem-solving and citizen complaint mechanisms, enabled the openness from the team in identifying the knowl- delivery of continuous responsive services that edge gap and bringing in needed expertise and resulted in higher satisfaction and cleaner streets. local representation. Indicators for tracking this change process could include: Program Contribution • Number of sewerage blockages reported by The L4R program provided rapid results training to the citizens (community survey) leadership, encouraged the establishment of a team • % of surveyed community members satisfied with that included representatives of all groups concerned responsiveness of government in addressing and provided mentoring for coaches and teams, and reported blockages (community meeting) support to review progress. • % of District Council members satisfied with their role and influence in the awareness campaign III. Improved communication with citizens for (council meeting) sewerage management The implementation team applied new methods to understand users’ perspectives around the sewerage the Mayoralty saw how better communication with management goal and engaged citizens in finding citizens was crucial for the initiative’s sustainability. solutions. • In June 2013, the implementation team collabo- rated with the District Council on a campaign to Outcomes collect sewerage users’ feedback on the cleaning. Key outcomes in this area and their significance The campaign was aligned with local knowledge, include: needs, and priorities, and communication went two • In May 2013, the pilot Municipalities distributed ways. The team met with citizens in the district to awareness folders and citizen questionnaires on record a video on sewerage users’ feedback. sewerage blockages. This helped the implementa- tion team involve citizens in finding a solution. The Program Contribution Mayoralty also activated a hotline and added two As part of L4R, the Bank offered workshops on new cell phones to receive citizen complaints. The stakeholder mapping and using effective facilitation activation of the hotline and provision of appropri- methods to better understand who influences the ate equipment meant that for the first time citizens performance of the sewerage system. The L4R also have voices in the ongoing project to improve encouraged the direct involvement of citizens in the water and sewerage services, quality of services solution. that result, and other factors affecting sustainability. Through the involvement of the Media Department, 6 IV. Increased effectiveness in maintaining sewerage network KEY LESSON FOR OUTCOME STORY IV The reform process led to fewer sewer blockages and A new competitive funding process was key to cleaner streets in the pilot district and a sharp reduc- identifying a new sewerage cleaning technique for tion in citizen complaints. better quality and more responsive cleaning and maintenance services. • In the past, there had been limited focus on Outcomes sewerage maintenance, and previous bidding Key outcomes in this area and their significance procedures for contractors emphasized price rather include: than quality. • In May 2013, the Directorate General for Sewer- • The new bidding procedure introduced several age launched a new competitive funding process new practices, including specific terms of reference to identify new sewerage cleaning techniques that for contracts, a disciplined review process for bids, incorporated features superior to past practice. The the requirement for local manufacture of some materials, and specifications for more modern funding process included specific Terms of Refer- techniques. ence, disciplined review of bids, provision for local • Once a qualified contractor was selected and manufacture of some inputs, and specifications retained, pilot benchmarks were tracked to monitor dictating more modern maintenance and clean- the cost-effectiveness and eventual scalability. ing techniques. This process departed from the • After the selected contractor started cleaning usual practice and promised to result in more high- in response to a reported blockage, there were quality, responsive, and cost-effective cleaning and no complaints from citizens. This was a marked maintenance services. improvement over the 24 blockages and overflows that had been previously reported in the sewerage • By the end of May 2013, the District launched a new network of that District. program of maintenance services with benchmarks to retroactively judge quality. The first contractor Indicators can be monitored to track this change began the process of cleaning streets, upon assign- process, such as: ment due to reported blockage. From no sewerage • Number of qualified bids received in response maintenance, the pilot Municipalities improved ser- to tendering (“qualified” indicates compliance vice by retaining contractors to remove blockages with the new terms of reference, as evidenced by reported by citizens and used pilot benchmarks to administrative data) • Number of blockages reported after the start of the monitor cost-effectiveness and support eventual new cleaning technique (community survey) scalability. • Average maintenance cost per household • In May–June 2013, after cleaning, the Mayoralty (administrative data, using contractor fees and reported a citizen survey found no complaints from number of households served in District) citizens of blockages. Citizen reports constitute one key indicator for the success of maintenance and need to be monitored over time. show progress can be made here has implications for other projects in Iraq and in the region. The Mayor of Program Contributions Baghdad requested future interventions to improve The L4R program supported training of coaches public service delivery with the Bank using the results- to facilitate the diagnostic work; an L4R workshop based, team learning approach. A follow-up Bank focused on identifying and prioritizing challenges. The project to extend improved water and sewerage ser- Bank trained and supported coaches and mentored vices is in the pipeline for Iraq. This request signaled the team in conducting a preliminary field survey to the Mayor’s awareness that the project had introduced estimate the costs of new technologies and in activat- a new way of solving difficult development challenges ing the citizen hotline and complaint mechanism. in Iraq’s sectors. n NEXT STEPS In June 2013, the Bank country office used the project ACKNOWLEDGMENTS to demonstrate that it is possible to achieve results in Thanks to the World Bank’s sector management units Iraq. This is a problem country in a problem region—to in the Middle East and North Africa Region related to 7 MENA Public Sector Management and Governance (MNSPS) and MENA Water and Agriculture (MNSWA) and the World Bank Leadership Practice involved in the project and mapping exercise: Emmanuel Cuvillier (MNSPS Task Team Leader), Nafie Mofid, Salaam Almaroof, Najma Siddiqi, Eva Schiffer, and Benjamina Randrianarivelo. Thanks to all of the persons that provided information to document this case. WBI’s Capacity Development and Results team led the outcome mapping; Jenny Gold coordinated the exer- cise with Dawn Roberts and support from Dale Hill. Sharon Fisher provided writing, editing, and design services. Samuel Otoo provided overall guidance. © June 2014 World Bank FOOTNOTES 1 For more information on this process, see the MENA Knowledge and Learning Quick Note, Serving Citizens Better: Managing Baghdad’s Water Supply and Sewerage with Leadership for Results (L4R) (September 2013 Number 104) at http://siteresources. worldbank.org/INTMENA/Resources/QN104.pdf and a report issued by the World Bank’s Leadership Practice, Serving Citizens Better: Managing Baghdad Water Supply and Sewerage with Rapid Results (August 2013). 8 ANNEX Table of Outcomes by Key Stakeholders in Baghdad The focus is on outcomes in the sewerage sector although the project looked at both water and sewerage. The numbers refer to the outcomes mapped in figures 2 and 3. Benjamina Randrianarivelo and Eva Schiffer mapped the outcomes. No Outcome Significance Contribution of Type of World Bank change 0 In Nov. 2012, the World Bank This raised awareness on the part The WBG’s review of Mayoralty of Early (WBG) Task Team Leader of the Mayoralty of Baghdad was Baghdad priority sectors had high- milestone (MNSWA) and Deputy Mayor significant, as it would be possible lighted deficiencies in water and for Technical Affairs of Baghdad, to reshape an upcoming project to sewerage service delivery, despite in reviewing results from USD apply lessons learned--an additional the substantial investment. 65 million ITF grants from request had been made in March 2004–2013, agreed that the 2013 for a USD 100 million IBRD loan replacement of water networks to further improve water and sewer- in Al Za’afraniya and sewerage age services in other parts of the city. networks in Al Sader in Baghdad city had been necessary but not sufficient to improve service delivery in other parts of the city. 1 In Nov. 2012, the Deputy Mayor L4R has been a proven method in The WBG project team advised Early for Technical Affairs decided many countries--incorporating be- the Mayoralty about the potential milestone to use the L4R method to havioral and institutional change to of Leadership for Results (L4R) facilitate changes in managing complement projects with infrastruc- initiatives to manage the change the Baghdad water supply and ture improvement-- to pilot rapid, process in the water and sewerage sewerage. client-responsive approaches that sectors, and strategically focus the have the potential to be institutional- L4R on the local needs. Examples ized or scaled beyond the initial proj- of successes in other countries were ect areas and scope. Thus, potential given. impact for Iraq was high. 2 In Jan. 2013, the WBG project Quality coaches are crucial for the WBG contribution was its knowl- Early identified three inexperienced success of an initiative. Due to orga- edge of the standards required for milestone candidates to become local nizational and security constraints in quality coaches and its offering of coaches for the L4R initiatives. Iraq an experienced coach was not new ways to bring inexperienced Constraint available, and new coaches had to coaches up to speed, e.g. through in country be chosen from existing staff and customizing training, and regular context consultants in the World Bank office. mentoring by Skype. 3 In Feb. 2013, the Deputy Mayor This signaled commitment to The WBG made the case to the Early for Technical Affairs and the 2 improve the water and sewerage Deputy Mayor for Technical Affairs milestone concerned Directorate Generals services problem, and ultimately to assign the budget and focal per- agreed to provide budget and led to provision of the necessary sons, clarifying what results could to assign two focal persons who resources, authorization, guidance be expected, including briefing to would work for 100 days on and problem solving support to set him/her and other members of the achieving challenging results up the 2 teams to implement the L4R leadership. for a persistent problem in their initiatives. respective sector (water and sewerage). 4 In Feb. 2013, the Baghdad The focal point was appointed early Mission met with focal points and Early Sewerage Directorate focal point in the project and did not under- discussed the required commit- milestone states he does not have sufficient stand the role he had to play and ment. time to fulfill the role. what was required in terms of time Setback and availability. A non-functioning focal point puts the project at risk as this would mean the team is disconnected from the authorizers to provide senior guid- ance and problem solving. 9 No Outcome Significance Contribution of Type of World Bank change 5 In mid Feb. 2013, the Deputy At the start of the initiatives, the In a first meeting with the DGs for Early Mayor for Technical Affairs set up Deputy Mayor for Technical Affairs, water and sewerage and their staff, milestone an "acting" steering committee to who was the main champion of this the L4R approach was explained proceed with the initiative while project, was traveling. To get things including the role of a steering com- he was out of the country. moving in his absence, it was crucial mittee for the process. to have the support of senior staff who could represent him. The acting steering committee was to launch the initiatives – it was composed of the 2 concerned DGs and focal persons from each sector. 6 In late Feb. 2013, coaches devel- This detailed diagnostic note helped The WBG provided training to Early oped a preliminary diagnostic build consensus and provide the coaches, which facilitated the diag- milestone note on the situation and needs in basis for a better design of the next nostic work—Guidelines, orienta- the sectors. water and sewerage project. tion, and support, including training in stakeholder mapping method Key findings related to quality Net-Map, and conducting participa- and quantity of water supply, and tory exercises, were provided. reduced performance of sewerage network. Problems included illegal connection, leakages, collapsed lines, among others. Important was understanding the users’ perspec- tive. 7 In March 2013, the Deputy Mayor The Steering Committee provided WBG team explained to the Deputy Behavioral for Technical Affairs formalized the overall institutional support and Mayor and now-formal steering the change steering committee. direction during the RRI. For example basics of the L4R, its benefits and on issues of budget, work plan revi- their roles. Guidance was formal- sion, and adding new team mem- ized in a brief note – in English and bers. Arabic. 8 In March 2013, the Steering Com- Identification of critical challenges WBG provided Support to design Behavioral mittee, with Mayoralty officials, and establishment of priorities and facilitate the L4R workshop, change identified critical challenges and among a wide group of stakeholders which provided the opportunity to prioritized two—inefficient billing was a key step toward ensuring align- identify and prioritize the chal- system for water delivery and ment of interest and focus on results. lenges. poor maintenance of sewerage network. The Mayoralty had not done maintenance for branches of sewer pipes inside the district in about 15 years, and despite many complaints, citizens had never seen maintenance in their lifetime. 9 In March 2013, coaches used The Net-Map exercises (March 12 The coaches learned to use a stake- Early stakeholder mapping to deepen to 14, 2013) helped to identify and holder mapping method (Net-Map) milestone understanding around the sector mobilize actors and deepen insight to interview water users on their priorities from the neighborhood on the challenges from the users’ perspective. They had guidance users’ perspective. perspective. The provider perspec- on stakeholders to interview, what tive was already well understood, questions to ask and feedback on but there was limited experience the results. communicating with citizens on the challenges. The Net-Maps tackled two ques- tions: Who influences the perfor- Problems faced included a high mance of the sewerage system? number of blockages and leaks in And: Who influences the setting of the sewerage system, a reluctance acceptable prices? of citizens to pay for sewerage services and a low trust of citizens in the government agencies to deliver sewerage services. 10 No Outcome Significance Contribution of Type of World Bank change 10 In March 2013, the Sewerage For the Baghdad sewerage sector The WBG’s contribution was Institu- DG established for the first this was the first time they set-up a encouraging a team composition tional time a multi-stakeholder mixed implementation team, with that included representatives of all change team with members from the specific results focus. All team mem- groups concerned, instead of limit- Baghdad Sewerage Directorate bers were directly concerned by the ing the composition to those with and Municipality, to improve issue of reducing sewerage block- delineated administration respon- sewerage maintenance. age, including members from the sibilities. Baghdad Sewerage Directorate, and municipal administrations. Thus this was a major difference from business as usual, with the potential of spark- ing unexpected innovations. 11 In March 2013, the team defined The fact that the team defined its The WBG trained and supported Early its own goal and work plan based own goal and work-plan fostered coaches to work with the teams to milestone on the challenges identified in ownership and the setting of a realis- specify the goal and develop the the stakeholder mapping to tic plan by those people who have to work plan. reduce by 50% the blockage and do the work. The team also reached overflow claims on the sewer- a consensus on specific criteria for age system in 2 specific districts, choosing the specific districts, tak- within 90 days, starting from a ing account of both technical and specific date. economic factors. 12 In late March 2013, the team The significance of this decision was The WBG provided guidance Early modified its performance goal to that it aimed at providing cases, to form “ambitious but doable milestone focus on different typologies of which should be as distinctive as performance goals” as well as to districts. possible for the purpose of further jumpstart sufficiently representative Setback generalization, providing a learning examples during regular check-in opportunity. calls. 13 In early April 2013, the team, The significance of this step was the Provided guidance to coaches that Behavioral acknowledging technical joint problem-solving that identified the team members should include change knowledge gaps, invited as new the knowledge gap and openness those directly concerned by the members the chief engineer of from the team members to bring in issues. Turning municipal sewerage and some needed expertise and local repre- point local maintenance staff from Al sentation. Sader 2 Municipality. 14 In early April, the DG Sewerage The DG Sewerage without any Guidance to the DG on the profile Milestone re-assigned focal person but instruction and guidance appointed of the focal point and process for does not brief her on the role. the focal person. appointing a new one. Setback 15 In mid-2013, the coach work with One local coach took the initiative Provided translated profile of focal Milestone the focal point to get her up to to share the description of roles with point in Arabic. speed. the focal point and supported her Turning during team meetings (see next) Coaches reported problem in point weekly call and WBG team worked After this introduction, second focal with them to find solution. point worked effectively. 16 In mid-April 2013, the team This small scale change helped mo- Brainstormed with coaches on new Behavioral established minutes and action tivate team members to take quicker practices they could test to improve change items at weekly meetings. action. the way of working. 11 No Outcome Significance Contribution of Type of World Bank change 17 In mid April 2013, the The team leader and some members of Problem surfaced in the weekly calls Milestone DG Sewerage appointed the Municipality did not join meetings and with the coaches and different solu- a new deputy team this was blocking the team’s progress. tions were proposed (e.g., exchanging Setback leader to deal with low team-leader, establishing deputy posi- engagement. The success of the team depended on tion, etc.), drawing from experiences engaging “those who have the problem” in other countries. in solving it - departing from the traditional top-down approach. However, without an Provided support to team members active engagement of the Municipality and to better understand the strong role team leader this strategy would not work. that the municipalities (as subordinate agencies) would have to play in the Appointing a deputy team leader helped team. everyone save face – the deputy started acting as de-facto team lead while the ini- tial team leader would keep the position. The team leader is the crucial connector and driving force that keeps the team focused in day-to-day work and connects to the authorizers, coach, etc. Without a committed team leader success is unlikely. 18 In early May 2013, one This showed that the Municipality now un- Support to the coaches to devise Behavioral representative from the derstood the potential value of the initia- strategies to deal with the low change MoB Media Department tive to citizens and their role in it, and that participation of municipalities. joined the team and the some missing roles should be provided. Turning Municipality assigned Recommended that the Sewerage point new team members from Members from municipalities were not DG mobilize the DGs of concerned Cleaning Departments. previously showing up because of a misun- municipalities to assign new team derstanding in communication and a lack members from the Municipality who of availability. were directly concerned to solve the issues. 19 In May 2013, at the At the midpoint, the team reported the Encouraged inclusion of women in key Behavioral midpoint review, the team role of the female members in the prog- positions in the team. change reported on the role of ress. The 18 person team had 6 women, the female members including 2 in coordination roles. The and commented on team reported: the women had skills at their contributions, and par, or better, than the many of the men to the relationship of their contribute to the work; the senior staff ac- participation to the knowledged their roles, often for the first progress of the initiative. time; the assignment built the confidence of the women; male colleagues began to accept them as valuable members of the team; the women's contribution to the discussion enriched the decision making to better reflect community needs. 20 In mid-May 2013, the The activation of the hot line and provi- Recommend the involvement of Institu- Mayoralty activated sion of appropriate equipment means concerned persons in the Municipality tional its hotline and added that for the first time citizens will have a in the team structure. It took some change two new cell phones to voice in the progress of ongoing project to time before this was accepted and receive citizen complaints. improve water and sewerage services, the turned into practice. quality of services that results, and other factors affecting its future sustainability. Through the involvement of the Media department the Mayoralty saw that better communicating with citizens was crucial for the sustainability of the initiative. 12 No Outcome Significance Contribution of Type of World Bank change 21 In late May 2013, the Municipality This helped the team and Municipal- Mentoring of teams and coaches Behavioral distributed awareness folders ity involve citizens in finding a solu- during this process. change and citizen questionnaires on tion. sewerage blockages. 22 In mid-May 2013, the team re- This decision promised to increase The WBG provided guidance on Behavioral duced the goal to pilot a solution the likelihood of success while im- adjusting the goal to meet specific change in only one district, recognizing proving cost-effectiveness. constraints. that the districts had the same issues, and that such a reduced focus would limit budgetary com- mitment without sacrificing the eventual ability to scale up and meet the original goal. 23 In late April, the more active At the midpoint review it was identi- WBG facilitated open discussion Milestone coach was assigned a lead role to fied that one coach was mainly about the effectiveness of the interface with the project team. providing needed problem solving coaching support during a debrief- Setback support to complete the project. ing meeting. 24 In May 2013, the DG Sewerage This process departed from the usual WBG mentored team in preliminary Behavioral launched new a competitive practice, and promised to result in field survey to estimate costs of new change funding process to identify new more high-quality, responsive, and techniques. sewerage cleaning techniques cost-effective cleaning and mainte- that incorporated several nance services. features superior to past practice: specific TORs, disciplined review process of bids, provision for local manufacture of some input, and specifications dictating more modern maintenance and cleaning techniques. 25 In May 2013, the district launched From no sewerage maintenance, the WBG had provided continuous Institution- a new program of maintenance municipalities improved service by guidance and coaching which al change services, with benchmarks to ret- retaining contractor to remove block- helped contribute to culmination of roactively judge quality, and the ages reported by citizens, with pilot this key milestone. first contractor began the process benchmarks to monitor cost-effec- of cleaning streets, upon assign- tiveness, and thus eventual scalability. ment due to reported blockage. 26 In June 2013, the team Campaign is aligned with local Mentoring of coaches on adjusting Institu- collaborates with the knowledge, needs and priorities, and the work plan to develop a new way tional neighborhood council on a communication goes two ways. The of communicating to deepen the change campaign to collect sewerage team met with citizens in the district relationship with the neighborhood. users’ feedback on the cleaning to record a video film on sewerage users’ feedback on the cleaning. 27 In May-June 2013, after clean- Previously, 24 blockages and over- WBG had provided continuous Institu- ing, the Municipality received flows were accounted in the sewer- guidance and coaching which tional zero complaints from surveyed age network in District 518 (Al-Sader helped contribute to the involve- change citizens. 2 Municipality). ment of citizens and activation of citizens’ hotline and complaint Citizen complaints constitute one key mechanism. indicator for the success of mainte- nance of sewerage system – receiving no citizen complaints in the commu- nity survey indicates one element of success of the pilot cleaning in one district. 13 No Outcome Significance Contribution of Type of World Bank change 28 In June 2013, the WB country of- This is a problem country in a Worked with WB country office, Milestone fice used the project to demon- problem region - to show it can be coaches and administration to strate that it is possible to achieve done here has implications for other document and communicate proj- results in Iraq projects in Iraq and in the region ect achievements. 29 In June 2013, the Mayor requests A new follow-on WB project to WBG helped MoB organize event Institu- future interventions to improve extend improved water and sewer- with high ranking Baghdad officials tional public service delivery with the age services is in the pipeline for to showcase the results and the key change Bank use the results-based team Iraq. The Mayor’s recognition of the learning from this experience. learning approaches demonstrated success of the results based team learning approach in one district’s water and sewerage services increases likelihood that applying the same approach in the new follow-on project and potentially other project will achieve success too. The project introduced a new way of solving difficult development challenges in Iraq’s water sector. 14