Document of The World Bank Report No: 22503-KOS PROJECT APPRAISAL DOCUMENT ON A PROPOSED TRUST FUND GRANT IN THE AMOUNT OF US$4.20 MILLION TO UNMIK FOR THE BENEFIT OF KOSOVO, FEDERAL REPUBLIC OF YUGOSLAVIA (KOSOVO) FOR A SOCIAL PROTECTION PROJECT June 29, 2001 Human Development Sector Unit South East Europe Country Unit Europe and Central Asia Region CURRENCY EQUIVALENTS (Exchange Rate Effective April 18, 2001) Currency Unit = DEM DEM 1 = US$0.4491 US$1 = 2.2265 FISCAL YEAR January 1 - -- Decmber 31 ABBREVIATIONS AND ACRONYMS BPK Banking and Payments Authority of Kosovo CFA Central Fiscal Authority CPE Central Procurement Entity CRS Catholic Relief Services CSW Center for Social Welfare DFID Department for International Development (UK) DHSW Department of Health and Social Welfare EU European Union FRY Federal Republic of Yugoslavia IAC Interim Administrative Council IOM International Organization for Migration JIAS Joint Interim Administrative Structure ILO International Labor Organization KFOR Kosovo Force KTC Kosovo Transition Council LSMS Living Standards Monitoring Survey NATO North Atlantic Treaty Organization NGO Non-Governmental Organization OSCE Organization for Security and Co-operation in Europe UNFPA United Nations Population Fund UNHCR United Nations High Commission for Refugees UNICEF United Nations Children's Fund UNMIK United Nations Interim Administration in Kosovo Vice President: Johannes F. Linn, ECA Country Director: Christiaan J. Poortnan, ECCO4 Sector Manager: Michal J. Rutkowski, ECSHD Task Team Leader: Hjalte S.A. Sederlof, ECSHD KOSOVO SOCIAL PROTECTION PROJECT CONTENTS A. Project Development Objective Page 1. Project development objective 2 2. Key performance indicators 2 B. Strategic Context 1. Sector-related Country Assistance Strategy (CAS) goal supported by the project 2 2. Main sector issues and Government strategy 3 3. Sector issues to be addressed by the project and strategic choices 6 C. Project Description Summary 1. Project components 6 2. Key policy and institutional reforms supported by the project 8 3. Benefits and target population 8 4. Institutional and implementation arrangements 9 D. Project Rationale 1. Project alternatives considered and reasons for rejection 9 2. Major related projects financed by the Bank and other development agencies 10 3. Lessons learned and reflected in the project design 10 4. Indications of borrower commitment and ownership 10 5. Value added of Bank support in this project 11 E. Summary Project Analysis 1. Economic 11 2. Financial 11 3. Technical 11 4. Institutional 11 5. Environmental 12 6. Social 13 7. Safeguard Policies 14 F. Sustainability and Risks 1. Sustainability 15 2. Critical risks 15 3. Possible controversial aspects 16 G. Main Grant Conditions 1. Effectiveness Condition 16 2. Other 16 H. Readiness for Implementation 16 I. Compliance with Bank Policies 17 Annexes Annex 1: Project Design Summary 18 Annex 2: Detailed Project Description 21 Annex 3: Estimated Project Costs 24 Annex 4: Cost Benefit Analysis Summary 25 Annex 5: Financial Sumrnary 26 Annex 6: Procurement and Disbursement Arrangements 28 Annex 7: Project Processing Schedule 39 Annex 8: Documents in the Project File 40 Annex 9: Statement of Loans and Credits 41 Annex 10: Country at a Glance 43 Annex 11: The Pre-Conflict Social Protection Structure 44 Annex 12: The Current Social Assistance Scheme 46 Annex 13: Organizational Chart of Social Protection in Kosovo 49 Annex 14: Background on Centers for Social Work 52 MAP(S) KOSOVO Social Protection Project Project Appraisal Document Europe and Central Asia Region Human Development Sector Unit Date: June 29, 2001 Team Leader: Hjalte S. A. Sederlof Country Manager/Director: Christiaan J. Poortman Sector Manager/Director: Michal J. Rutkowski Project ID: P072405 Sector(s): SY - Other Social Protection Lending Instrument: Grant from the Trust Fund for Theme(s): Social Protection Kosovo Poverty Targeted Intervention: N Program Financing Data l ] Loan [ ] Credit [X) Grant I ] Guarantee [ Other: For Loans/Credits/Others: Amount (US$m): 4.20 Financing Plan (US$m): Source Local Fo;r.eign Total BORROWER 0.00 0.00 0.00 UK DEPARTMENT FOR INTERNATIONAL DEVELOPMENT 2.42 0.00 2.42 SPECIAL FINANCING 4.20 0.00 4.20 Total: 6.62 0.00 6.62 Borrower: UNMIK Responsible agency: UNMIK/DHSW Address: UJNMIK Government Building Contact Person: Ms. Sandy Hudd Tel: 381 38 504 604 Fax: Email: hudd@un.org Estimated disbu sements Bank FYfUS$m): FY 2002 2003 2004 l Annual 1.50 1.50 1.20 Cumulative 1.50 3.00 4.20 Project implementation period: September 2001 to August 2003 OS PAD fODm Rev Mo-cP 2CO A. Project Development Objective 1. Project development objective: (see Annex 1) The objectives of the project are to: (a) design a basic safety net for the immediate future; (b) design a sustainable social welfare system for the medium term; and (c) develop administrative capacity for delivery of pensions, and veterans' and invalidity benefits 2. Key performance indicators: (see Annex I) * evidence of increased quality and consistency of service provision through centers for social work (CSW), as reflected in regular monitoring of case worker performance (compliance with procedures, accuracy of case selection and referrals, work plans) and, for clients, in feedback from the formnal appeals process * blueprint (program designs) in place for a comprehensive welfare system, and focusing on priority areas (welfare, pensions, veterans benefits, war invalids support) * simple administrative mechanisms in place for the delivery of pensions, and veterans' and invalidity benefits B. Strategic Context 1. Sector-related Country Assistance Strategy (CAS) goal supported by the project: (see Annex 1) Document number: N/A Date of latest CAS discussion: N/A The proposed project is consistent with the Transitional Support Strategy for Kosovo (R99- 178, dated September 16, 1999) which seeks to ensure efficiency and sustainability in public sector spending and build effective, accountable and efficient public institutions. The World Bank's Economic Report on Kosovo emphasizes the establishment of policies and institutions that will reduce reliance on external donor support and promote private sector led recovery and long-term growth. It sets out the key reform areas in the economic policy sphere: sustainable budget policies and institutions that ensure the efficiency and probity of public spending; a framework of laws, regulations and institutions that encourage private enterprise development; and a liberal trade and customs regime that allows Kosovo to realize its potential for growth and exports in the context of its geographic location in the south-central Balkans. And, it emphasizes the active involvement of the local population and its representatives in shaping policy through extensive consultation with local public and private stakeholders. In social policy, it emphasizes: (i) education - a primarily young population (over half the population is under 25) needs to be educated; and human and capital skills that have eroded during a decade of civic exclusion need to be restored; (ii) health care - neglected health services need to be rehabilitated and appropriate health policy elaborated; (iii) social protection - the system confronts a number of challenges: the social aftermath of conflict, economic restructuring in an environment where the local administrative capacity requires substantial strengthening, diffuse roles of different levels of govenmment in social protection, and local and intemational administrators striving to find an effective balance between the roles of the public and non-govemrnmental sectors in social welfare provision. At the same time, the social sectors constitute the major expenditure categories in the budget, accounting for nearly three quarters of total spending, which highlights the need for restraint in adjusting programs and expenditures to Kosovar needs. In the social area, the Bank, in collaboration with UNMIK other donors and local authorities, has initiated a program of sector work and investment projects that aim at shaping effective policies and service delivery mechanisms. A social assessment examines how conflict and displacement have affected social relations - 2 - and institutions in Kosovo and discusses reconciliation strategies. A social protection strategy examines alternative strategies for social risk management, and a poverty assessment is being completed, which will allow better definition of at-risk population groups. These initiatives, on which the proposed project draws, have been extensively discussed with international and local Kosovar stakeholders drawn fom both majority and minority communities. Two Economic Assistance Grants have been put into place (P069469 dated May 13, 2000, and P071114, dated January 10, 2001), aiming at the creation of a functioning and effective budget management system, including the adoption of a sound budget for 2001. An Education and Health Project (P069516, dated May 2, 2000) provides technical assistance aimed at increasing the efficiency in public resource use in health and education and improving governance and management in the two sectors. The project has also financed sector work leading to the social protection strategy. 2. Main sector issues and Government strategy: Background. Before 1989, Kosovo operated its own social protection schemes under the general umbrella of Federal Yugoslav legislation. These included contributory pensions and unemployment benefits, means-tested child allowances for contributors on low wages, and very tightly controlled social help for households with no resources (social assistance). The latter operated through local Centers for Social Work (CSW) that provided cash benefits on a discretionary basis, as well as general social services to vulnerable groups such as children, the elderly and disabled people. The sector also includes various special institutions - a home for mentally handicapped people, a home for the elderly, an orphanage, and schools for the blind and for the deaf - which serve Kosovo as a whole. In 1990, the various Kosovo schemes were merged with their Serbian counterparts and directed from Belgrade. The basic benefit structures were maintained, though with a number of changes of detail - many of which had the direct or indirect effect of excluding Albanians from eligibility. At the same time, many Albanian staff administering the various schemes were dismissed and replaced by Serbs. During the past ten years, basic social protection for most Albanian Kosovars has been provided by the extended family network, by remittances from the large Albanian community outside Kosovo, or by help in kind from various humanitarian organizations. Particularly important among the latter was the Mother Teresa Society, an organized charity funded by international organizations and private donations, with an extensive network of branch and local centers staffed by volunteers throughout Kosovo. As a result of the conflict, social programs were abandoned and have not subsequently been resumed. Consequently, large numbers of Kosovars face extremely difficult circumstances. Many households have lost the main breadwinner and there are high levels of physical and psychological damage. While available information about vulnerability still is scarce, pending results from the ongoing household survey, an indication of the overall level of need may be the number of people that are estimated to be eligible for cash benefits under the UNMIK (United Nations Interim Administration in Kosovo) program - some 55,000 families, or 300, 000 people, i.e. 10 percent of the population. In addition, substantial help in kind is being provided by the various humanitarian organizations, there is an unknown flow of funds from family members outside Kosovo, and many households have begun to receive a supply of cash, as regular stipends are being paid to public sector workers. All of this suggests that the number of people without any cash income is falling, but with formal sector opportunities for work outside UNMIK limited, it is likely that poverty will remain pervasive for some time to come. To address the immediate and most urgent needs, the United Nations Interim Administration in Kosovo (UNMIK) launched a rudimentary social assistance program in 1999, targeted at the most vulnerable households (defined as those with no working members). This was replaced in mid-2000 with the current program, which draws on the combined initiatives of UNMIK and international NGOs, channels modest - 3 - cash benefits to some 55,000 families and provides some welfare services, mainly guidance, through the remaining network of centers of social work (CSWs). The program is gradually being built up with the intention of it taking on the role of a basic safety net for benefit and welfare service provision (1). Currently, it faces a number of challenges: (i) Albanian staff has replaced Serbs in the centers that are located in ethnic Albanian areas (the majority of centers), and many of the replacements have outdated skills harking back to the pre- 1990 period, or lack basic skills and professional knowledge altogether; many centers were severely damaged during the conflict, and most of them lack basic facilities and equipment; organizationally, there is a need for greater coherence - between the Department of Health and Social Welfare (DHSW) that sets policy and standards, the Institute for Social Policy (ISP) that provides monitoring and evaluates the performance of CSWs, and regional and municipal welfare officers that provide field level guidance and support to the CSWs. Overall, the system suffers from shortages of relevant skills and operational knowledge. Details on the system are provided in Annex (1) Welfare services involve the provision of counseling, care and referral of at-risk individuals and households (dysfunctional families, children, disabled, elderly, refugees and displaced persons, addicted, homeless, single-parent families) and liaising with specialized referral agencies. The reestablishment of other social protection schemes is also under consideration, not least because of pressures from the Kosovar community to reintroduce the dormant pension scheme and introduce schemes for war veterans, civilian victims of the recent conflict, and the handicapped. The reintroduction of the pension scheme, in particular, will need careful consideration in light of limited resources (see affordability section below), and new approaches to a pension system will have to be considered. In particular, the merits of a flat-rate pension scheme with limited eligibility should be explored. At the same time, equity considerations will play an important role in shaping any social protection program - how to satisfy the needs and priorities of minority groups, especially the Kosovo Serbs. They generate particular problems for both program rules and program administration in present circumstances in Kosovo, and any successful strategy must strike an appropriate balance between universality and the specific needs of different groups. The third sector - non-governmental, not-for-profit and voluntary initiatives in society, plays an important role in Kosovo. In terms of social protection, the previous system emphasized the role of the state in the care of those most in need. In light of scarce resources and a weak state infrastructure, the value of the third sector and civil society to the care of those in need justifies increased attention. There are over 500 NGOs registered with UNMIK, of which some 200 are international NGOs. Of the local organizations, many are recent, have been formed to attract donor funds and create paid jobs, and often are unclear in their understanding of what the third sector can, or should, do. Collaboration between NGOs is sparse, highlighted by competition for funding. The majority have registered with UNMIK, as this is usually a prerequisite for international support. To date, cooperation between the public sector and third sector organizations seems to focus on specialized services and beneficiary identification. In some areas a third sector organization may provide a needed social service not available elsewhere (e.g. temporary shelter), or the government may draw on the resources of the third sector to implement their programs (e.g. identification of beneficiaries for the social assistance scheme, specific family situations, runaways, domestic violence). One potential area of cooperation, expressed by both government and third sector organizations is the "service" NGOs could provide to the government in identifying beneficiaries, particularly for the social assistance scheme. In some areas the CSW have been directly involved in the design of NGO programs, such as the development of youth centres. Affordability. In the past, social programs were financed from payroll taxes and, to some extent, from transfers from Belgrade. The structure of the social protection system, especially the pension system, was generous compared to Western standards, although benefit payment often fell short of formal compensation - 4 - levels. With the conflict, the situation has changed. Most programs are inactive, and only a narrowly targeted social assistance scheme currently provides benefits and welfare services. The tax base is weak, and payroll taxes non-existent. Resources are drawn from the Kosovo budget, and limited budget resources place an obvious constraint on the reestablishment of the system. Furthermore, expenditures on cash transfers, which depend on eligibility and household decisions to claim, are notoriously difficult to control or forecast precisely. This places additional constraints on the design of safety nets and social protection programs and may require the setting of cash limits for individual program expenditures. A cash limit applies a control to expenditures in a given year. Because many social protection benefits can continue for long periods once granted, it is also important to consider whether commitments entered into in a given year can be met in subsequent years with the resources likely to be available. This is particularly important because experience suggests that the take-up of new payments or services tends to increase over time and be accompanied by pressures for improvements in coverage or benefit levels. It is therefore important to ensure that spending schemes are not only affordable in the short term, but can also be sustained over time. This is particularly relevant in the present circumstances of Kosovo, where the time horizon for additional donor resources may be limited and perspectives for expanding the tax base modest. Careful consideration therefore needs to be given to launching continuing commitments such as restarting the pension scheme, unless it is clear that donor funding can be replaced by adequate local resources when the time comes. Particularly when resources are tight, it is important both that the most vulnerable do receive help and that limited resources are directed to those who most need them. Recurrent expenditures on social protection in 2000 amounted to $41.5 million, or 19 percent of the $215 million total recurrent budget in that year. For 2001, the provision for social protection is $42.5 million, or 18 percent of a $240 million budget. Cash benefit payments account for some 96 percent budget expenditures on social protection. Consistent with a policy of gradual self-sustainability, donor support is declining as a proportion of recurrent expenditures. It fell sharply from 51 percent in 2000 to an estimated 32 percent in the 2001 budget. As the tax base widens, as there are improvements in both tax policy and tax administration, and as the economy starts to grow over the next several years, there should be substantial increases in revenue generated internally - to some $445 million in 2006 according to IMF estimates (IMF, Kosovo - Macroeconomic Issues and Fiscal Sustainability, November 2000). The first call on this new revenue will be the replacement of donor funding rather than improvements in provision. Taking account of this, the IMF figures suggest an increase of 60 per cent in the General Government Budget for recurrent expenditure between 2000 and 2006. If spending on social protection grew pro rata, it would amount to perhaps DM 130m in 2006. Given the many other calls on the Budget, it might be regarded as prudent to assume that the share devoted to social protection would not grow significantly. On the other hand, this would actually leave social protection taking a declining share of GDP - from 2.7 per cent at present to just 2 per cent of GDP in 2006. Both figures are low by international standards, when the average for middle income countries across the world is about 5 per cent These comparisons must be treated with caution. Kosovo is clearly not a "typical" transition economy and several comparator countries are facing difficulties in meeting their social commitments. They do suggest, however, that the figure of $65 million in 2006 is very much at the low end of the range of prudent spending, and that there could well be room for spending significantly more, with an "optimistic" scenario of as much as $155 million. The Social Protection Strategy for Kosovo provides an indicative figure of $115 million for social protection in 2006. - 5 - 3. Sector issues to be addressed by the project and strategic choices: The project will focus on the following: (a) strengthening social welfare services for the immediate future and the medium termn; (b) developing basic administrative processes for pension, veterans' and invalidity benefit provision; (c) building human resource capacity in social welfare (d) developing models for collaboration between public agencies and the third sector in welfare service delivery The proposed project will primarily focus on rehabilitating the welfare system (described in Annex ). This will provide the highest welfare impact (i.e. the most cost-effective way to reach the most vulnerable population groups), and it is in line with UNMIK's priorities. The provision of adequate welfare services will help the population better cope with the family-level problems that have arisen as a result of the conflict and which, if not addressed, can be expected to have significant adverse effects on individual behavior and Kosovar society more generally over time. In particular, they focus on the care of dysfunctional families and vulnerable individuals. The project will also provide the pension and invalids' administration with basic administrative skills needed to manage simple benefit delivery programs. The introduction of such programs are strongly advocated by both majority and minority groups in the Kosovar population. It is estimated that the revitalization of welfare programs, pensions and invalids' programs along these lines will be affordable in light of current and expected recurrent budget constraints. It is estimated that the project will add recurrent costs of no more than some $ 0.6 million. C. Project Description Summary 1. Project components (see Annex 2 for a detailed description and Annex 3 for a detailed cost breakdown): The project would have the following components: indicative Bank- % Of Component Sector Costs % of financing Bank- (US$M) Total (US$M) financing -6 - A. Strengthening the social welfare Institutional 1.02 15.4 0.65 15.5 system: Development (i) Developing the social welfare structure - definition of objectives and responsibilities of and interaction between public and private entities concerned with the planning, management, administration and delivery of social welfare services; drafting of related regulatory acts, instructions and guidelines; developing standards for accreditation and professional qualification; drafting of job descriptions and determination of skills requirements, staffing and training needs (ii) strengthening policy analysis and administrative skills of UNMIK Department of Health and Social Welfare (DHSW) staff; (iii) introducing a strategic planning and policy development capacity in the DHSW; (iv) developing an information and commmunications strategy aimed at welfare system workers and the general public; (v) development of an information technology strategy for the social welfare network. B. Upgrading of social welfare Institutional 2.68 40.5 1.70 40.5 infrastructure: Development (i) rehabilitation of CSWs (ii) equipping of CSWs C. Capacity building for CSWs: Institutional 1.95 29.5 1.24 29.5 (i) training in service delivery for Development current CSW staff (ii) development of a CSW-based staff supervision function (iii) development of a certificate program in social work for future staff -7 - D. Strengthen essential services in the Pensions & 0.17 2.6 0.10 2.4 pension, veterans' and invalidity benefit Social Insurance administration - recordkeeping, benefit determination, pensions in status, public information; and drafting related regulatory acts E. Project Management Unidentified 0.80 12.1 0.51 12.1 Total Project Costs 6.62 100.0 4.20 100.0 Front-end fee 0.00 0.0 0.00 0.0 Total Financing Required 6.62 100.0 4.20 100.0 2. Key policy and institutional reforms supported by the project: At the level of welfare service delivery, the project will support UNMIK efforts to focus services on a set of priority advisory and counseling services, rather than return to the broad menu of services that characterized the previous, pre- 1 990s, system; it will separate the benefit payment function from the welfare service function;it will provide more formal structure for public-private interactions in service provision and staff training; and it will ensure service delivery to minority groups. For the longer term, it will help UNMIK develop a blueprint for a coherent social welfare system for Kosovo. In the area of pension provision and provision of benefits to veterans and invalids, UNMIK is currently in the process of developing appropriate schemes, in large part based on analytical work done in the context of sector work supported by the Bank and the British Department for International Development (DFID). In anticipation of decisions to be taken in this area, the project will provide technical assistance to strengthen routine administrative processes in the Pension, Veterans' and Invalidity Fund. 3. Benefits and target population: The project will increase efficiency and quality in service delivery: I. It will allow the welfare system to provide appropriate responses to needs of poor and vulnerable population groups, in the majority as well as minority communities. Better administration will improve operations of the system; enhanced skills in counseling and care, and better defined referral functions, will bring about more satisfactory services for the target population; and separation of welfare service and benefit payment functions will improve targeting and timeliness of benefit delivery. The target population for welfare services will consist of at-risk individuals and households, essentially dysfunctional families, children, elderly, handicapped people and single-head households. Currently, the target population for cash benefits is limited to households with no employed members, with priority being given to households where no-one is capable of working. 2. It will develop a comprehensive plan for the social welfare system. This will clarify relationships between different actors concerned with welfare, including lines of accountability. This in turn will facilitate the development of appropriate strategies in the future, including in particular where to place the emphasis in practice/service development. 3. The pension/veterans/invalidity component will allow those programs to get off the ground without undue delays once decisions have been taken on pension and veterans' schemes. - 8 - 4. Institutional and implementation arrangements: The project will be implemented over a period of two years. UNMIK (the DHSW, the Central Fiscal Authority (CFA), the Central Procurement Entity (CPE)) will be the implementing agency for the Project. One main objective of the project is to build the capacity of the Department of Social Welfare of UNMIK, which will become a public administration in charge of welfare in a future local authority in Kosovo. The responsibility for implementing the Project from a professional and technical point of view will therefore reside in this department. For financial management and procurement, it will liaise with the CFA and the CPE. Financial management of the project will rest with the CFA. According to the structure of UNMIK, only the CFA, which acts as the Ministry of Finance, has the authority to open bank accounts, conduct and monitor financial transactions including the appointment of an independent auditor and establish the regulatory framework for procurement and expenditure transactions. Therefore, the CFA would be responsible for the financial management aspects of the Grant administration, including the opening of a Special Account as a sub-account to their existing commercial bank account; replenish the Special Account periodically; using their financial accounting system; prepare the financial management reports required by the Bank; and have the use of the Grant funds audited on an annual basis. The system will be programmed so that it is able to produce timely Project Management Reports (PMRs). UNMIK has decided to appoint independent auditors acceptable to the Bank for the audit of the project accounts. The audit costs would be bome by UNMIK as part of its operating costs. Normal disbursement procedures will be used. Once acceptable PMRs are produced, a move to PMR-based disbursements could be considered. A separate department, the Central Procurement Entity (CPE), will be responsible for carrying out all procurement within UINMIK. It is proposed that the CPE would carry out the agreed procurement plan according to agreed procedures on behalf of the DHSW. However, the DHSW will be responsible for defining the terms of reference, detennining short lists, establishing evaluation committees, and contract management. Besides carrying out procurement activities, the CPE would also have a role in advising the Department on implementation matters and reporting. In the DHSW, one individual will be nominated to fulfill a coordination function. D. Project Rationale 1. Project alternatives considered and reasons for rejection: The current project design reflects the fact that resources for investment and subsequent operations, maintenance and benefit payments are strictly limited and are likely to grow only modestly in the future. This constrains a more ambitious approach which would be unaffordable. Moreover, implementation capacity is strictly limited in UNMIK and within the Kosovar community. Therefore, we have chosen to focus on developing essential support services that meet minimal requirements of a safety net, while at the same time building up capacity to provide quality services over the medium term and expand provision if the opportunity rises in terms of more abundant resources. Another option considered was to forgo a project at this time and wait for a clearer political situation and policy decisions in the area of social welfare. It was decided that although there are many uncertainties at this time it would be better to proceed in order to support the DHSW in making informed policy decisions. In addition, the social and poverty assessments pointed to the urgent and immediate need for assistance in large segments of the population and, consequently the need for the early establishment of an appropriate coping mechanism. -9- 2. Major related projects financed by the Bank and/or other development agencies (completed, ongoing and planned). I f7770 \ t 0 dU 0 0 ; \Sl;;i; Latest Supervision Sector Issue f Project (PSR) Ratings _______________________________ a__________L______________ (Bank-financed projects only) Implementation Development Bank-financed Progress (IP) Objective (DO) Improving local living conditions Community Development Fund S S Improving use of public resources and Education and Health Project S S strengthening govemance and management processes in education and health Other development agencies Benefit, service provision, capacity UNMIK Social Welfare building Department initiatives Direct provision of social services, Multiple agencies, bilaterals improvements in infrastructire, training and NGOs of social workers IPIDO Ratings: HS (Highly Satisfactory), S (Satisfactory), U (Unsatisfactory), HU (Highly Unsatisfactory) 3. Lessons learned and reflected in the project design: A number of lessons have been applied in the design of this project: * the importance of local ownership, i.e.seeking input from all Kosovar constituencies in setting priorities and designing delivery systems; * there is a relatively brief window of opportunity during which donors and international experts can have a significant impact on designing systems and formulating policy before interim arrangements become entrenched and resistant to change; * a strong emphasis should be put on aid coordination to ensure complementary in donor initiatives and a priority focus in view of limited implementation and policy development capacity in Kosovo * development support should be designed to take into account current and future resource constraints; the effective utilization of limited resources requires a particular emphasis on the welfare mix, i.e. the diversification of welfare provisoin between different sectors, primarily government, for profit (private) and the not for profit sector. 4. Indications of borrower commitment and ownership: Among all groups in the Kosovar population, there is strong agreement that a safety net needs to be in place. Under UNMIK, rudimentary services and targeted benefit payments aimed at the neediest groups - families with no apparent resources and no members capable of working and, more recently, at families where no-one is gainfully employed - have been introduced. Increasingly, there is interest in resuming pension payments and in compensating war veterans and civilian victims of the conflict. While these are areas worth consideration and therefore are addressed in proposed technical assistance under the project, their actual implementation is strongly dependent on available resources for their recurrent operations. - 10- 5. Value added of Bank support in this project: The Bank has a comparative advantage in assisting in the setting up of systems aimed at social risk management, and it has significant experience in this area throughout central and eastern Europe over the past decade. The Bank also has significant experience with promoting change in post-conflict environments. E. Summary Project Analysis (Detailed assessments are in the project file, see Annex 8) 1. Economic (see Annex 4): O Cost benefit NPV=US$ million; ERR = % (see Annex 4) o Cost effectiveness * Other (specify) The focus of the project is on cost-effective use of limited public resources for basic service provision to individuals and households that have been hardest hit by the conflict and begin building a sustainable and effective social welfare system for the longer term. This should enhance the possibilities of integrating at-risk individuals and households into the mainstream of Kosovar society as productive members with enhanced capabilities to take on economic risk, i.e. it should improve labor market results for them, and at the same time it should result in reduced dependency, delinquency and criminality, lowering the costs associated with vulnerability and dysfunctional behavior among the population. 2. Financial (see Annex 4 and Annex 5): NPV=US$ million; FRR= % (see Annex 4) An important factor in project design is the financial sustainability of the welfare system, and such financial considerations will be an important element of project implementation. Fiscal Impact: The project should have minor fiscal impact. Incremental operating costs will essentially arise from better maintenance standards and operating costs related to equipment such as the installation of generators in CSWs. With regard to additional staff, current welfare department budgets already foresee an increment of some 100 persons over the next year. It is unlikely that all positions will be filled, and some of those resources will be reallocated to operations and maintenance costs. Currently, it is estimated that incremental O&M costs will total $600,000 equivalent, or some 2 percent of the recurrent welfare budget. 3. Technical: A sound strategy has been developed based on the following: a social assessment undertaken by the Bank, a sector strategy analysis undertaken by UNMIK with the support of the Bank and DFID; and following extensive discussions in the field with the UNMIK social welfare system managers and staff, with NGOs operating in welfare in Kosovo, and with local authorities and other stakeholders, including representatives of minority groups. The project will directly address needs that have been identified and expressed by these entities and groups. 4. Institutional: 4.1 Executing agencies: The implementation capacities of the UJNMIK entities (DHSW, CFA, CPE) that will implement the project - 11 - have been assessed, and DHSW and CPE will need strengthening to ensure adequate project implementation. Project management will be in the DHSW, specifically the social welfare section within that department. The DHSW was formed in March 2000 by UNMIK regulation no 2000/10. It is responsible for the overall management and implementation of policy in the areas of health and welfare. The social welfare section is responsible for developing policy and strategies for social welfare, including regulatory frameworks, the setting of standards, and the prevention, monitoring and control of social problems. The section has an international staff of 14, a Kosovar co-director and national staff numbering 640 (including managers, professional and support staff). It is described in greater detail in Annex 13. 4.2 Project management: The DHSW will appoint a coordinator for the project from among the current staff. It will, moreover, be strengthened with one international consultant, who will be recruited for the full period of project implementation. That person will be responsible for the day-to-day monitoring of project implementation in collaboration with relevant DSW staff, and for collecting all information for the purposes of monitoring and reporting on the progress of the project to the Bank and other authorities. 4.3 Procurement issues: In the CPE, one individual is currently designated to handle World Bank project procurement However, a procurement assessment conducted during project preparation has determined that this will not be sufficient to ensure adequate procurement under the project. Therefore, the CPE will recruit under the project, for a period of five months, one international consultant familiar with World Bank procurement procedures. The consultant will ensure start-up of the procurement aspects of project implementation and train a local staff (recruited for the duration of the project) in World Bank procurement procedures. The latter will take over the project procurement function once the international TA leaves, working under the guidance of existing Department of Procurement staff. 4.4 Financial management issues: An assessment of the financial capacity of the CFA has been conducted. It is the conclusion that the existing system meets at least the minimum needs for proper grant administration and reporting. 5. Environmental: Environmental Category: B (Partial Assessment) 5.1 Summarize the steps undertaken for environmental assessment and EMP preparation (including consultation and disclosure) and the significant issues and their treatment emerging from this analysis. The project includes minor civil works for the rehabilitation of Centers for Social Work. These works may have an adverse environmental effect relating to the disposal of debris following the rehabilitation. The civil works on CSW buildings range between $1,300 and $65,000 with an average value of $30,000. Currently, Serbian environmental regulations formally apply in Kosovo, but new regulations are being prepared by UNMIK. These regulations specify that an environmental impact assessment must be done for certain investments, generally larger scale works that are beyond the scope envisaged in the project. However, DHSW will use these regulations as a guide for the preparation of an Environmental Management Plan for this project. 5.2 What are the main features of the EMP and are they adequate? It is expected that an enviromnental impact statement will have to be issued for the works relating to each site, including a description of the main measures that will be taken to offset any adverse effects of the project on the environment. 5.3 For Category A and B projects, timeline and status of EA: - 12 - Date of receipt of final draft: N/A N/A 5.4 How have stakeholders been consulted at the stage of (a) environmental screening and (b) draft EA report on the environmental impacts and proposed environment management plan? Describe mechanisms of consultation that were used and which groups were consulted? The project and its potential environmental impact was discussed with the Department of Environment of UNMIK including local counterparts. The proposed mitigation measures were discussed and agreed and the superivison and certification by Regional Environmental Officers was also agreed. The rehabilitation estimates were discussed in detail with the staff of DHSW in order to assess the potential environmental impact from the proposed activities. The EMP was also discussed with DHSW to ensure that they could ensure compliance with such measures through contracting. The EMP will be available to the public in Kosovo and also through the Bank's InfoShop. 5.5 What mechanisms have been established to monitor and evaluate the impact of the project on the environment? Do the indicators reflect the objectives and results of the EMP? The Department of Environment is in the process of recruiting and training Regional Environmental Officers. These will be international staff with local counterparts for the interim. The training is being conducted at the Regional Environmental Center for Eastern Europe. The Department of Environment confirmed that these Officers would be responsible for the verification that works under the project have been carried out in compliance with the applicable regulation on hazardous materials. Supervision missions will also verify that provisions were included in contracts for contractors and that the REOs have reviewed compliance. The EMP also includes a monitoring plan. 6. Social: 6.1 Summarize key social issues relevant to the project objectives, and specify the project's social development outcomes. The project does address a number of important social issues that have been identified in the Bank's social assessment and UNMIK's social protection strategy paper. These involve (i) giving Kosovar communities a voice in UNMIK directed policy making; (ii) taking local specificities into account in service provision; (iii) to the extent possible, avoiding an ethnic-based two-track service system; and (iv) recognition of extended family structures and informal safety nets, i.e. civil society, in providing support. Preparation of the UNMIK social protection strategy paper, on which the current project is based, involved extensive consultations with Kosovar society - academic, professional, political and civil society stakeholders, and their views are reflected in the conclusions of the report. Further consultation on the focus and content of project components during project preparation has also involved the Kosovar community, and terms of reference for the technical assistance will further emphasize the need for Kosovar involvement. Training programs are exclusively focused on Kosovars. In fact, the underlying approach of the project is in fact to gradually enable a smooth transition of responsibility for policy making and service delivery in the area of social welfare from UNMIK to Kosovars. In recognition of the importance of civil society in providing an adequate safety net - for reasons of limited resources as well as social tradition, design of the organization and institutional processes of the social welfare system will include analysis of how NGOs and civil society organziations can be incorporated into a comprehensive approach to welfare provision, which involves public-private partnership. It is, moreover, expected that the capacity building for CSWs component will be executed by an NGO. Such public-private partnerships can be expected to strengthen the local character of welfare services. - 13 - Further strengthening of local specificity of service delivery will be introduced as CSWs move under the jurisdiction of municipalities, and CSW management and staff acquire improved professional skills and experience that will make them more comfortable in adapting their case work to local reality. While measures to foster bridging between ethnic commnunities to a major degree is a function of adequate security and time, there will be an effort not to duplicate the service network. Instead, immediate ethnic and locality problems will be met through mobile outreach services, based in fixed centers. Thus, the equipment component envisages the establishment of 16 mobile units for this purpose. 6.2 Participatory Approach: How are key stakeholders participating in the project? See 6.1. above. 6.3 How does the project involve consultations or collaboration with NGOs or other civil society organizations? See 6.1. above 6.4 What institutional arrangements have been provided to ensure the project achieves its social development outcomes? See 6.1. above 6.5 How will the project monitor perfornance in terrns of social development outcomes? The DSW consistently monitors service provision, including the quality of services to all ethnic groups. This will continue to be the case during and after project implementation. 7. Safeguard Policies: 7.1 Do any of the following safeguard policies apply to the project? Policy Applicability Environmental Assessment (OP 4.01, BP 4.01, GP 4.01) _0 Yes 0 No Natural habitats (OP 4.04, BP 4.04, GP 4.04) 0 Yes * No Forestry (OP 4.36, GP 4.36) 0 Yes * No Pest Management (OP 4.09) 0 Yes * No Cultural Property (OPN 11.03) 0 Yes 0 No Indigenous Peoples (OD 4.20) 0 Yes * No Involuntary Resettlement (OD 4.30) 0 Yes * No Safety of Dams (OP 4.37, BP 4.37) 0 Yes 0 No Projects in International Waters (OP 7.50, BP 7.50, GP 7.50) 0 Yes 0 No Projects in Disputed Areas (OP 7.60, BP 7.60, GP 7.60) 0 Yes * No 7.2 Describe provisions made by the project to ensure compliance with applicable safeguard policies. See Section 5 above related to the Environmental Assessment. - 14 - F. Sustainability and Risks 1. Sustainabiity: The sustainability of the social welfare system in Kosovo in the medium to longer term depends on the timeliness of economic recovery and a concurrent increase in public revenues. This will reduce pressures on the welfare system as demands on the safety net diminish and, at the same time, it can be expected to stabilize budget allocations and resource availability for welfare services. In the short term, the project has been designed taking into account conservative assumptions regarding resource availability, i.e. the recurrent costs arising from the project are expected to be moderate. At the same time, political and consitutional uncertainities surrounding the future of Kosovo are considerable, and may well have implications for the welfare system. The proposed project remains neutral on that point. It aims at welfare services that can be delivered under current circumstances and reasonable projections of medium-term developments. Extensive consultations with the local population ensure that the project is adapted to the current environment. 2. Critical Risks (reflecting the failure of critical assumptions found in the fourth column of Annex 1): Risk Risk Rating Risk Mitigation Measure From Outputs to Objective The local population does not recognize M 1. Extensive consultations with local ownership of the proposed welfare system stakeholders (political, academic, professional, and of changes in current structures general public, majority as well as minority groups) have taken place in developing the work that underlies the project (social assessment, poverty assessment, social protection strategy). 2. Extensive experience and feedback has already been received by UNMIK and NGOs in fieldwork that is directly relevant to the proposed project components 3. Project preparation, inlcuding terms of reference, has included heavy involvement by local as well as international staff in Kosovo, and field visits have confirmed the relevance of the proposed approaches 4. For the major tasks relating to the CSWs, which are in direct contact with the population, including minorities, qualified consultants will have to have had relevant Kosovar field experience Staff turnover may be high S Improved management and administration, and training, should enable staff to cope better with caseloads and reduce burnout From Components to Outputs -15 - Adequate implementation capacity in N UNMIK entities (DHSW, CPE) have been UNMIK reviewed for institutional capacity to implement the project; they are being appropriately strengthened for project implementation Contracted consultants may not be able to M Terms of reference will require track record of build trust with Kosovar CSW community successful collaboration with Kosovars in social welfare training Overall Risk Rating S Political and constitutional uncertainties influence the overall risk rating; however, as noted in Sections D. 1. and F. 1., postponement of the project would not be a feasible alternative in light of current needs, and to minimize risk, its design is relatively neutral with regard to future adjustments Risk Rating - H (High Risk), S (Substantial Risk), M (Modest Risk), N(Negligible or Low Risk) 3. Possible Controversial Aspects: The are no controversial aspects in the project beyond those relating to the political and cnstitutional uncertainties. G. Main Loan Conditions 1. Effectiveness Condition None 2. Other [classify according to covenant types used in the Legal Agreements.] None H. Readiness for Implementation O I. a) The engineering design documents for the first year's activities are complete and ready for the start of project implementation. 1 I. b) Not applicable. O 2. The procurement documents for the first year's activities are complete and ready for the start of project implementation. 0 3. The Project Implementation Plan has been appraised and found to be realistic and of satisfactory quality. D 4. The following items are lacking and are discussed under loan conditions (Section G): - 16 - I. Compliance with Bank Policies 0 1. This project complies with all applicable Bank policies. O 2. The following exceptions to Bank policies are recommended for approval. roject complies with all other applicable Bank policies. | ~~~~WFP (Community) |Municipalities| DireGt rnanagerialfaccountabiiity relationship .......... Exchange of information OooooooAoo Relationship not clear at this stage of study ????????? Relationship to be considered critically in study - 49 - The above diagram shows the various bodies involved with social protection in Kosovo and the main relationships between them. Department of Health and Social Welfare The DHSW was formed in March 2000 and is responsible for the overall management and implementation of policy guidelines formulated by the Interim Administrative Council in the field of health and social welfare. The Social Welfare section is responsible for developing policy and strategies for social welfare, including regulatory frameworks, setting of standards, and the prevention, monitoring and control of social problems. DHSW is responsible for: * hiring the directors of the CSWs (in collaboration with the municipal authorities) and social welfare institutions; * preparing and implementing the Social Assistance Scheme; * preparing, managing and implementing the social welfare budget, including salaries and operating costs for those institutions for which it is responsible; * designing and managing the transition from food aid to cash benefits; and, * coordinating training initiatives in the area of social welfare. Regional and Municipal Welfare Officers There is a network of intemational Regional Social Welfare Officers, whose main fanction is maintaining a communication and support relationship between DHSW and the CSWs. The RSWOs are responsible to the Regional Administrators and are hired by the Region, however they are also responsible to DHSW in Pristina for policy direction. As of July 1, 2001, the RSWOs will report to DHSW. There are also international Municipal Social Welfare Officers who are not line managed by the DHSW but rather report to the Municipal Administrations. The MSWOs are responsible for ensuring that the municipal social welfare structures understand and implement the policies which are received from DHSW (sometimes through RSWOs). Centers for Social Work The CSWs are the main point of contact for the population with the social welfare system. There are 32 CSWs with one located in each municipality. They range in size from 7 staff members to 32 staff members with a total staff size of approximately 400. The mandate of the CSWs includes: * Studying social problems; * Developing plans and programs for social protection; 3 Undertaking measures to prevent people from falling into a state of social need; 3 Determining the type of social protection required by a person in need; and, 3 Founding, developing, and following the work of 'joint work organizations" and social protection services. Institute of Social Policy The ISP is responsible for research and analysis of social welfare issues. Staffed by 10 persons, this Institute is responsible for managing the appeals process, developing the research basis needed for the formation of sound social policies, and supervise the work of the CSWs. The ISP currently does not have the staff capacity to carry out all of these roles. As for the research there will need to be much assistance to develop this area, but possibly linkages with the statistical agency data could be developed, rather than their current vision of generating their own data source. In addition there is some question as to whether the ISP should be a government body, or an independent agency. Currently it is under the responsibility of DHSW. Pension and Invalidity Fund The only significant provision for retirement pensions in Kosovo was through participation in the arrangements established by the Federal Republic of Yugoslavia for workers throughout the FRY. Until 1989, these arrangements were administered locally in Kosovo by the Pension - 50 - and Invalidity Fund under the general autonomous relationship between Kosovo and FRY which existed at that time. From 1989 to 1999, control of the operations was transferred to Belgrade with the Pension and Invalidity Fund only responsible for payment of funds received from Belgrade. All benefit payrnents were discontinued in January or February of 1999 because of the onset of hostilities, and remittance of contributions ceased at about the same time. Currently the Fund is not paying any benefits but only maintaining data on previous beneficiaries. Staff Engaged in Social Protection Departmental HQ 10 Centers for Social Work 400 Kosovo Social Insurance Fund 80 Institute for Social Policy 10 Shtime Special Institute 100 Elderly Home 50 TOTAL 650 - 51 - Additional Annex 14 Background on Centers for Social Work Centers for Social Work were established in Kosovo in the 1960s/70s as the main public service through which the government provides assistance to vulnerable categories of people. The director of each Center is appointed jointly by the DHSW and the municipality, although it is unclear whether this refers to the intemational or local municipal bodies. The Centers are staffed with social workers, psychologists, pedagogues, administrators, lawyers, and economists. As part of the "local" government, CSWs are a strong point of connection between the international (DHSW) and local government. Salaries are paid by UNMIK based on a contractual relationship. Of note is that particularly in Serb areas, personnel did not sign a contract as this would result in a loss of contributions. Although the DHSW has continued recognize the workers in these CSWs, this is not the case in other departments. UNMIK also provides the Centers with funding for running costs, stationary supplies, and tries to attract intemational financial support for the Centers. A structure that exists throughout the former Yugoslavia, the mandate of the CSWs includes: Studying social problems; Developing plans and programs for social protection; Undertaking measures to prevent people from falling into a state of social need; Determining the type of social protection required by a person in need; and, * Founding, developing, and following the work of "joint work organizations" and social protection services. Beneficiaries include: Children * Deprived of parental support Disrupted in their physical and psychological development * Educationally neglected * )Disrupted in development by family circumstances * Adults Materially unprotected, and completely incapable to work Elderly without family support Invalids With social negative behavior Other persons in the state of social need for other reasons Specifically, beneficiaries may receive: Material help Help for the preparation for work Placement in "joint work organizations" of social protection * Special social work services The mandate of the CSWs is far reaching. Activities may include things like: marriage counseling, foster care and adoption, support for families and children in conflict with the law, reintegration of adults released from prison, home care visits for the elderly and disabled, burial of persons without family, psycho-social counseling, and work with youth organizations. The primary methods through which the CSWs resolved issues were cash-benefits or referral to other organizations, although some Centers did engage in clinical - 52 - social work. There are approximately 400 staff in the CSWs serving a population of 2 million (a ratio of 1 staff for every 5,000 citizens). This ratio is expected to decrease in the next year as the DHSW has budgeted for 100 additional staff, although not all will be placed in the CSWs. Of the current staff, many are not qualified for the profession which they are to fill, and of those who are, many have not been working in social welfare for the past decade and knowledge of modem social work practices is lacking. As the often forgotten partner, even in the previous system, the physical working environment also needs to be improved, both in terms of the physical building and in terms of equipment needs. That said, it raises questions as to how the previous system functioned, and whether all the roles to be fulfilled by the CSWs really happened. The major program being implemented by the CSWs currently, is the Social Assistance Scheme. Supported by the DHSW, this represents a significant change in the role of the CSW, compared with the previous system. It is a cash-benefit program open to the general population, with beneficiaries selected on specific eligibility criteria. Currently 50,000 families are included in program. This program has overwhelmed the CSWs with work in identifying and verifying potential beneficiaries for the program, at the same time as providing needed support to some of the poorest segrnents of the population. It has resulted in an increased profile of the Centers for some of the international structures, and in more "violent incidents" in the Centers when individuals discover that they are not eligible for assistance. The program connects with the employment bureaus, as some beneficiaries are required to provide documentation of unemployment - a positive and also difficult step towards inter-sectoral collaboration. The capacity of the CSWs to handle this Scheme varies, with some being able to effectively "split" responsibilities between administration of the Scheme, and those who deal with professional social work, while in other Centers this division has not been achieved. It appears that services currently offered by the CSWs primarily address the needs of young offenders, orphans, and survivors of domestic violence. The court system began functioning earlier this year, and one CSW noted that it has 60 cases of young offenders. In the area of foster care, there are approximately 1,200 orphans in Kosovo, however the other area coming to the forefront are single-headed households. Domestic violence appears to be coming more prominent, and the need for emergency shelters. Some Centers are also active in serving displaced persons living in collective centers. For the majority of residents in the collective centers their home is completely destroyed, although for some their previously rented premises are not available, and others are displaced from areas where they would have been part of the minority population. The Centers for Social Work are currently overwhelmed by the demands placed on them with the Social Assistance Scheme. This is expected to calm down over the next 6-month period as the bulk of registration will have been completed and the introduction of a more staggered form of verification developed. By spring 2000 the bulk of food aid ended, and although the CSW role in this area ended, this loss of income support may actually result in an increased demand on the Centers rather than the expected decrease. What should be considered though, is the change that this program has made in the role of the CSWs from previously, particularly considering the number of cash-benefit clients they now deal with. In Kosovo (and the former Yugoslavia) the CSWs had a role in cash assistance and social service programs. Previously the Centers were often divided into two departments, one for professional work in social and family legal protection, and the other for global accounting and financial duties. Although there are suggestions to separate these two roles into independent structures, any separation of these responsibilities should be thought through carefully, particularly considering the current maze of - 53 - government structures. Benefits in joint responsibility include the familiarity of this form of working, and the knowledge the Centers' staff have of the population they serve. It may be advisable sometime next year to evaluate the ability of the CSWs in targeting, as well as the effectiveness of the Social Assistance Scheme, to verify this assumption. In the previous system there was an administrative committee for each Center composed of 5 members, 3 from the comrnunity and 2 from the CSW. This committee acts as an executive board, and is nominated or dismissed by the municipality. There was also a regulatory committee to reviews the CSW affairs and finances, and a professional board (like a consultative board) could also be established. Responsibility for the CSWs is returning to the municipalities, and it is unclear whether this also means that these boards are to be reestablished. As key accountability structures for the CSWs and the municipalities, it raises the question as to what accountability structure is envisaged in the future. The CSWs are poorly equipped and the working environment is unsatisfactory. There are some basic requirements for heating, roof repairs, toilets, as well as for other equipment such as tables, chairs, photocopiers, telephone/fax lines. This basic equipment is required for the implementation of, for example, the Social Assistance Scheme. In addition improvements to the physical space in the Centers is required. Currently some do not have a "reception" space, others have no "counseling rooms". Regardless of the future role of the Centers it can be expected that these will still be required. The Centers do not have the same referral resources as previously, and some of those previous resources may not be deemed appropriate for modem social work practices (e.g. institutional care). In the previous system there were bodies referred to as "joint work organizations" and possibly 3rd sector organizations could be viewed as part of this, or a replacement for the same. This will be discussed in the later section. Centers for Social Work were set up at a time when many people had jobs, and therefore turned to their employer for support. The number of people served by the CSWs as permanent cash beneficiaries could be presumed to have been significantly less. Previously the Centers had a "pot of money" for special cases, in order to respond to "emergency" cases, such as payment of funeral expenses, for an expensive medicine, or even to buy diapers for a recent orphan. For the beneficiaries now, they turn to the CSW for this type of support, however the Center does not have such discretionary financing available to it. Capacity-Building in the CSW Capacity-building within the Centers for Social Work has come from two directions: the move from food aid to cash benefits, and the idea to pass community information services provided by internationals, with international (UNHCR) support, to a local body. Funded by various donors, the international NGOs involved in this are ADRA (Adventist Development and Relief Agency), ICMC (International Catholic Migration Commission), and CARE. Other agencies involved include European Children's Trust (ETC), CRS (Catholic Relief Services), Movimondo, SAVE the Children, CARITAS Spain, and UNICEF. All have contributed in some way to improving the working conditions in the CSWs (e.g. equipment, loan of vehicles, small physical reconstruction activities), and some are actively involved in training. Training is coordinated by the DHSW, with all international NGOs working with identified CSW. Although the skill level of the staff in the Centers varies, topics in common in each training program are ethics of social work, needs assessment, case management, child protection, and gender sensitivity. The methodology varies with some having short weekly sessions and others a couple of longer sessions per week. Some include "conferences" on specific topics, others include shadowing in fieldwork. The background purpose however varies, with some viewing the CSW as the body responsible for clinical - 54 - social work, others as an organization only involve itself in cases connected with the courts. Although the Centers do respond positively to the idea of training, there is some frustration. Since continuing professional training was not obligatory in the previous system, some question why this is required considering their professional background. Other Centers are frustrated as they do not have the time nor space to apply the learnings due to the daily work demands, and others request training which moves beyond basic social service skills to more clinical social work practices. Of note is that the funding for NGOs involved in training ends between December 2000 and June 2001, and no potential donor for continuing the program has been identified. - 55 -