Document of The World Bank Report No:ICR0000212 IMPLEMENTATION COMPLETION AND RESULTS REPORT (IBRD-46400) ON A PROPOSED LEARNING AND INNOVATION LOAN IN THE AMOUNT OF US$ 5.0 MILLION TO THE REPUBLIC OF ARGENTINA FOR A FAMILY STRENGTHENING AND SOCIAL CAPITAL PROMOTION PROJECT- PROFAM May 2, 2007 Argentina, Chile, Paraguay and Uruguay Country Management Unit Poverty Reduction and Economic Management Unit Sustainable Development Department Latin America and the Caribbean Region 1 CURRENCY EQUIVALENTS ( Exchange Rate Effective ) Currency Unit = Argentine Pesos Argentina Peso .0.3238 = 1 US$ US$ 1.00 = Argentina Peso 3.088 Fiscal Year January 1 through December 31 ABBREVIATIONS AND ACRONYMS LIL Learning and Innovation Loan PROFAM Family Strengthening and Social Capital Promotion Project UNDP United National Development Programme Vice President: Pamela Cox Country Director: Axel van Trostsenburg Sector Manager: Jaime Saavedra Chanduvi Project Team Leader: Josefina Stubbs 2 Argentina PROFAM: Family Strengthening and Social Capital Promotion CONTENTS 1. Basic Information _IL1 2. Key Dates _IL2 3. Ratings Summary _IL3 4. Sector and Theme Codes _IL5 5. Bank Staff _IL5 6. Project Context, Development Objectives and Design _IL6 7. Key Factors Affecting Implementation and Outcomes _IL7 8. Assessment of Outcomes _IL8 9. Assessment of Risk to Development Outcome _IL9 10. Assessment of Bank and Borrower Performance _IL10 11. Lessons Learned _IL11 12. Comments on Issues Raised by Borrower/Implementing Agencies/Partners _IL12 Annex 1. Results Framework Analysis _IL13 Annex 2. Restructuring _IL14 Annex 3. Project Costs and Financing _IL15 Annex 4. Outputs by Component _IL16 Annex 5. Economic and Financial Analysis _IL17 Annex 6. Bank Lending and Implementation Support/Supervision Processes _IL18 Annex 7. Detailed Ratings of Bank and Borrower Performance _IL19 Annex 8. Beneficiary Survey Result _IL20 Annex 9. Stakeholder Workshop Report and Results _IL21 Annex 10. Summary of Borrower's ICR and/or Comments on Draft ICR _IL22 Annex 11. Comments of Cofinanciers and Other Partners/Stakeholders _IL23 Annex 12. List of Supporting Documents _IL24 3 1. Basic Information PROFAM: Family Strengthening and Country: Argentina Project Name: Social Capital Promotion Project ID: P070374 L/C/TF Number(s): IBRD-46400 ICR Date: 10/18/2006 ICR Type: Core ICR GOVT OF Lending Instrument: LIL Borrower: ARGENTINA Original Total USD 5.0M Disbursed Amount: USD 4.5M Commitment: Environmental Category:C Implementing Agencies Consejo Nacional de La Mujer Cofinanciers and Other External Partners 2. Key Dates Process Date Process Original Date Revised / Actual Date(s) Concept Review: 09/15/2000 Effectiveness: 11/26/2002 11/26/2002 Appraisal: 11/20/2000 Restructuring(s): Approval: 11/13/2001 Mid-term Review: 04/11/2005 04/11/2005 Closing: 12/31/2006 3. Ratings Summary 3.1 Performance Rating by ICR Outcomes: Satisfactory Risk to Development Outcome: Low/Negligible Bank Performance: Satisfactory Borrower Performance: Satisfactory 4 3.2 Quality at Entry and Implementation Performance Indicators Implementation Performance Indicators QAG Assessments (if any) Rating: Potential Problem Project at any Yes Quality at Entry (QEA): None time (Yes/No): Problem Project at any time Yes Quality of Supervision (QSA): None (Yes/No): DO rating before Satisfactory Closing/Inactive status: 4. Sector and Theme Codes Original Actual Sector Code (as % of total Bank financing) Sub-national government administration 11 5 Other social services 89 95 Original Priority Actual Priority Theme Code (Primary/Secondary) Vulnerability assessment and monitoring Primary Secondary Participation and civic engagement Secondary Primary Gender Primary Primary Other social development Secondary Primary Population and reproductive health Secondary Secondary 5. Bank Staff Positions At ICR At Approval Vice President: Pamela Cox David de Ferranti Axel van Country Director: Mirna Alexander Trotsenburg Jaime Saavedra Sector Manager: Maria C.Correia Chanduvi Maria-Valeria Project Team Leader: Josefina Stubbs Penna ICR Team Leader: Josefina Stubbs ICR Primary Author: Olympia Icochea 5 6. Project Context, Development Objectives and Design (this section is descriptive, taken from other documents, e.g., PAD/ISR, not evaluative) 6.1 Context at Appraisal (brief summary of country macroeconomic and structural/sector background, rationale for Bank assistance) Country Background: Argentina has historically been among the Latin American countries with high per capita incomes and education levels as well as low inequality. However, political instability and economic downturns have contributed to slower growth rates and a rise in inequality and poverty over time. In 1998, for example, the unemployment rate was 14.5% and, according to the Bank's Poverty Assessment (2000), poverty and extreme poverty rates reached 29.4 and 7.4%, respectively. In spite of being at the onset of the 2001-2003 economic crisis, by the time the Family Strengthening and Social Capital Promotion Project (PROFAM) was appraised in 2000, the country was already facing increasing poverty rates and high levels of unemployment and underemployment, coupled with low wage levels for the lowest quintiles. Besides further deteriorating the country's socio-economic indicators, the economic crisis also had a negative effect on the institutional capacity of provincial governments which are in charge of 85% of the public social expenditure and are responsible for providing key social services and safety nets to the poor. Low coverage by both the central and provincial governments' social assistance programs left a substantial share of the poor population without any protection. The economic crisis further deteriorated the social capital mechanisms available to the poor, increasing their vulnerability. According to the World Bank Study on Social Capital in Argentina1, in 2001 the lowest quintiles reported lower diversity and frequency of networking compared to the highest quintiles. Among those in the poorest quintile, only about 33% socialized with friends in contrast to almost 60% of those in the highest quintile. Furthermore, the economic crisis strained families' cohesion as a result of altering the traditional roles of family members. In response to the severe unemployment of male heads of households, women and the youth had to insert themselves into the labor market. This situation generated an increase in family conflicts leading to the deterioration of family cohesion, domestic violence, and problems with depression, alcoholism and substantial abuse; particularly in men as reported by a UNDP Study.2 Sector Background ­ Gender, Family & Poverty: Gender relations and cultural assumptions are the notions that define families as social institutions. Socially assigned gender roles shape relationships among family members, determining the behavioral expectations and socio- economic opportunities offered to women and men both within and outside the home. Differentiated gender roles are reflected, among other things, in: (i) decision-making within the family regarding the allocation and use of time and financial resources; (ii) labor market participation and opportunities for both women and men, as well as their income earning 1Argentina: Together We Stand, Divided We Fall. Levels and Determinants of Social Capital in Argentina. Report N0 2481-AR. PREM. World Bank, May 31st, 2002. 2Equidad de Género en Argentina. Datos, Problemáticas y Orientaciones para la Acción. PNUD-Argentina. 2004. 6 potential; (iii) access to education and health resources; and (iv) the incidence of domestic violence. Therefore, reshaping the socially assigned gender roles at the household level can have an impact on social behavior (i.e. reducing the incidence of domestic violence) as well as economic opportunities (i.e. increasing female labor force participation leading to increased family incomes). While Argentina's achievements in reducing gender gaps are noteworthy at the aggregate level, there are important gender disparities among the poor, between urban and rural areas and among geographical regions. Poor women tended to work less than their richer counterparts and were more likely to be employed in the domestic service sector. Maternal mortality was almost triple the national average in the provinces of Chaco, Formosa and Jujuy, and estimates for clandestine abortions ­ one of the causes of maternal mortality ­ oscillated between 350,000 and 500,000. At the national level, teenage pregnancy was high and associated with low educational levels ­ with only 50% of students completing the second grade. Female- headed households had a greater likelihood of being poor and children in such households were more likely to have lower educational levels and become poor themselves: 66% of children aged 15-19 in female headed households were not in school, compared to the 51% of children in male-headed households; 25% of school drop-outs from female-headed households leave school with less than a minimum primary education, compared to less than 10% of drop- outs from households headed by men; and, the probability of being poor was four times higher for children under 20 years old, if she or he came from a female-headed household (Correia, 1999). Recognizing that gender disparities exist in the country, the Government of Argentina committed itself to developing a new social capital approach that promoted equal opportunities for both women and men, and encouraged the notion of shared responsibilities as a foundation for a cohesive society. The ultimate goal of the Government's new approach was to incorporate a gender perspective into public policies, social development programs and Bank-financed operations. In contrast to previous social capital approaches, this new approach had as its cornerstone the reduction of gender disparities among poor households. The Government's lack of experience in implementing this new approach, coupled with the mixed results of Argentina's achievements in reducing gender disparities, was the rationale for the development of a Learning and Innovation Loan (LIL) that would test and monitor the implementation of this new social capital approach at a local and decentralized level. Gender issues would be integrated in community based interventions as a way of strengthening the social capital of poor families and reducing their social and economic vulnerability. The Country Assistance Strategy (CAS) for Argentina, for fiscal years 2001-2004, focused on the poor and promoted equitable and sustained growth through: (i) enhancing social development, including poverty alleviation and human resource development; (ii) improving the state's performance, particularly at the sub-national level; and (iii) consolidating structural reforms. The CAS recommended a selective approach to poverty alleviation by focusing on specific social themes and indicators, and promoting innovation in Bank instruments that addressed the needs of vulnerable groups; especially in their delivery mechanisms. The LIL was fully aligned with this approach because the family was envisioned as the unit for 7 intervention and by looking to reduce gender disparities within the family, the LIL also advocated for the public sector to stress the linkage between gender segregation and social and economic opportunities. The LIL would be implemented by the National Council of Women (CNM, its Spanish acronym), the agency responsible for mainstreaming gender in public policy and programs, and would also work with local governments (LG) and community-based organizations (CBO). 6.2 Original Project Development Objectives (PDO) and Key Indicators (as approved) PROFAM's objective was to test and monitor a social capital approach that addressed the vulnerability of the poor by targeting families as cohesive units and promoting gender equity. To achieve this objective, the LIL was designed to be implemented in close collaboration with LG, CBO and NGOs and support, monitor, and learn from: (i) initiatives that promoted cohesive family practices (Programa Equidad); (ii) actions that fostered a more effective use of community resources by strengthening linkages among neighboring families; (iii) actions that captured the potential of community social capital by creating and/or strengthening civil society organization networks; and (iv) the dissemination of best practice community interventions. Key performance indicators as stated in the Project Appraisal Document (PAD) included: · improved awareness among beneficiary families of the importance of gender equity and cohesive family practices as means of reducing their vulnerability; · improved awareness among beneficiary families participating in Programa Equidad of children's emotional needs and how to respond to these; · decrease in domestic violence episodes among beneficiary families participating in Programa Equidad; · improved evidence of responsible parenthood among beneficiary families, particularly an increase in the father's involvement in childcare and support and a decrease in teenage pregnancy; and · increase in the proportion of CBO and LG connected in civil society networks. 6.3 Revised PDO and Key Indicators (as approved by original approving authority), and reasons/justification Not applicable. 6.4 Main Beneficiaries, original and revised (briefly describe the "primary target group" identified in the PAD and as captured in the PDO, as well as any other individuals and organizations expected to benefit from the project) The main project beneficiaries were poor Argentine families with a history of domestic violence against women and children, teenage pregnancy, juvenile delinquency and/or substance and alcohol abuse. PROFAM beneficiaries also included families living in areas where there was a lack of access to reproductive health information and services; including child care. Other primary target groups were civil society organizations and local governments that received capacity building and support for their family strengthening and capital promotion initiatives. Lastly, the CNM was both the implementing agency and a 8 beneficiary because it received technical assistance and capacity building support through PROFAM's Institutional Development Component. 6.5 Original Components (as approved) Component 1: Family Strengthening (US$ 4.27 million) This component supported initiatives of community-based networks, LG and CBO that were intended to promote equitable gender relationships within the family and expand community social capital. This component consisted of the following sub-components: (1) Programa Equidad: The principal activity carried out by PROFAM, Programa Equidad, was a demand-driven grant program for small sub-projects that promoted and strengthened the capacity of families to actively function within their communities. Sub-projects targeted poor families with a history of domestic violence against women and children, teen pregnancy, juvenile delinquency, and/or substance and alcohol abuse; these were predominately implemented in poor areas where there was a lack of access to reproductive health information andservices, including childcare. A detailed description of the sub-project eligibility criteria and process is described below: · Eligibility: LG, CBO and other civil society groups were eligible to apply for grants, although preference was given to organizations with proven targeting mechanisms, technical experience in related themes, and demonstrated capacity and willingness to learn and be innovative. Specific eligibility criteria and procedures for LG and civil society organizations were detailed in the Operations Manual. · Themes: Due to the demand-driven nature of Programa Equidad, the Operations Manual included eligible themes rather than specific activities. Some examples of sub- project themes included reproductive health, domestic violence, maternal/paternal responsibility, rights and citizenship, child welfare and educational support, culture and recreation and environmental awareness. Ineligible themes included religious or political activities and major civil works. · Criteria: Sub-project proposals had to: (a) include a gender perspective that took into account the priorities of both women and men; (b) foster partnerships among LG, CBO and families in order to increase access, availability and utilization of resources; and (c) incorporate participatory decision-making processes with potential beneficiaries. Priority was given to proposals that met all three criteria. Technical assistance was provided for applicants that lacked experience in mainstreaming gender issues in their work, but demonstrated the capacity to achieve PROFAM's development objective. Small grant requests could not exceed US $30,000 and had to be matched with a minimum community contribution of 20%. Technical assistance for the preparation and implementation of the subprojects could be included in the proposal amount. · Selection: The CNM was responsible for ensuring that the proposals met the minimum technical criteria before they were presented to the evaluation and selection committee, comprised of external specialists that conducted the review and selection of grant proposals. The principal responsibilities of the committee included: (i) carrying out a 9 review of community sub-projects in compliance with project guidelines and eligibility criteria as defined in the Operations Manual; and (ii) assessing community participation in the identification, preparation and execution of sub-projects and the quality of technical assistance. The committee was also responsible for establishing the parameters for monitoring and evaluating the implementation of sub-projects. (2) Social Capital Promotion: This sub-component supported the strengthening of existing networks, LG, CBO and other civil society organizations through capacity building and technical assistance and, in some instances, through the provision of basic equipment such as computers or printers. The selection criteria and procedures for such activities were detailed in the Operations Manual, and priority was be given to networks that demonstrated innovative approaches to family strengthening and the promotion of equitable gender relations. Capacity building activities for the organizations: (i) encouraged reciprocity among families, civil society and governmental organizations and promoted an integrated approach to facilitate collaboration among these; (ii) improved the participation of families and other stakeholders in the design, management and monitoring of community-based initiatives; and (iv) strengthened the administrative capacity of such organizations. Component 2: Gender and Community Awareness (US$1.21 million) The objective of this component was to raise awareness of the importance of equitable gender relations within the family through communication strategies that relationships among families, local governments and civil society and community organizations; particularly related to reproductive health choices, decision-making, parental responsibility and respect for non-traditional gender roles among youth and children. The communication strategy was designed to: (i) disseminate best practice community interventions; (ii) promote an increased understanding about gender issues and the rights of children among critical stakeholder groups; (iii) encourage the active participation of families in the definition of their own priorities as well as in the evaluation of social programs from which they benefited; and (iv) increase awareness of the benefits of working in alliances or partnership networks. Component 3: Institutional Development (US$1.20 million) This component built upon the existing project management capacity of the Project Implementing Unit (PIU) within the CNM by providing technical assistance and capacity building for PIU staff and consultants. Specifically, this component financed: (i) consultants that supported the technical and administrative implementation of the project; (ii)capacity building for PIU staff and consultants; (iii) the design and implementation of a monitoring and evaluation system, including the baseline and performance indicators; (iv) project audits; and (v) equipment (computers, printers, software etc) necessary for project implementation. 6.6 Revised Components Not applicable 6.7 Other significant changes (in design, scope and scale, implementation arrangements and schedule, and funding allocations) The project experienced three relevant changes that affected its scope, funding allocations and 10 schedule: 1. 1. Increase in funds & reallocation of loan proceeds: in December 2001 the Government abandoned the convertibility plan whereby the peso had been interchangeable with the dollar at par. As a consequence the peso was devaluated to one third of its previous value and this resulted in a threefold increased of loan funds in pesos. CNM took this opportunity to increase the number of subprojects to be financed by the Programa Equidad and the Social Capital Fund from the original target of 100 sub-projects established in the PAD, to142 sub-projects. It also increased outreaching efforts towards other governmental programs through seminars, workshops and meetings. These changes were instrumented through a reallocation of loan proceeds for a total amount of US$1.2 million in December 2004 out of categories 1, 2, 4 and 6 into category 3 ­ Subprojects. 2. Extension of closing date: the LIL's closing date was extended for a total period of 1.5 years (from June 30, 2005 to June 30, 2006 and from June 30, 2006 to December 2006). The main reason for the delay in project implementation was the 2001 crisis, which implied successive changes in administrations which affected the project, as well as a virtual paralysis in disbursements during 2002. Additional time was also required to implement the larger number of subprojects incorporated, to allow beneficiaries executing sub-projects to present their accounting and technical reports, and to make adjustments to the LIL's evaluation arrangements (such as reconstructing the baseline and integrating the new operational approach of the subproject's second round) 7. Key Factors Affecting Implementation and Outcomes 7.1 Project Preparation, Design and Quality at Entry (including whether lessons of earlier operations were taken into account, risks and their mitigations identified, and adequacy of participatory processes, as applicable) Although the LIL was prepared in three months, it was well conceived in terms of its relevance to the country's development approach and the Bank's assistance strategy. Project design and implementation benefited from: (i) an understanding that the project would be a learning and innovation loan and that the design would not be complex; (ii) the integration of lessons learned from other social interventions; and, (iii) the participatory approach used throughout the project identification, preparation and implementation process. These are described below: · PROFAM was conceptualized and designed as a learning and innovation loan. This was the basis for the project to: (a) integrate an innovative gender approach into public social interventions by enhancing intra-family and family and community relationships; (b) decentralize project implementation to LG and CBO; (c) develop a participatory monitoring and evaluation system in which beneficiaries' concerns were included and considered as project impact and performance indicators; (d) build the CNM's capacity to design, implement and evaluate a demand-driven grant program; and (e) sensitize and mainstream a gender and family approach into CBOs, NGOs and LG community development activities. PROFAM's simple design concentrated most of the efforts and resources, 64% of total costs, in the first component, Family 11 Strengthening. · Support from a Project Preparation Facility (PPF) grant helped develop the bases for project design. PPF funds were used to carry out a social study and a stakeholder's consultation. In addition, a PHRD grant on gender and capacity building established in 1999 contributed to lay the basis of the CNM's analytical work on domestic and international knowledge and intervention experiences on family and gender. These actions enhanced the CNM's capacity to design and implement the project components. The project's scope was therefore aligned with the institutional capacity in the country. It promoted partnerships between the public and private sectors (CBO and academia), and ensured a synergic exchange of knowledge and skills between these two actors; which benefited project implementation and evaluation. · The project design also took into account the findings of studies on gender-based violence (see section 6.1 for references), a comprehensive and qualitative social assessment that included field visits and a social capital survey undertaken by Bank staff in the country office.. Both the study and the survey confirmed the relevance of introducing a gender approach in the project. · A participatory approach was adopted both in the project identification and preparation phases. Both the CNM and the Bank project preparation team carried out a consultation process with potential beneficiaries to learn from existing experiences with community-based family interventions. Important lessons were drawn from this experience and incorporated into the Operations Manual, including targeted beneficiaries, eligibility, project activities, potential demand for Programa Equidad, costs of sub-projects and appropriate institutional mechanisms. Notwithstanding the thorough information gathering process carried out during the preparation phase, in retrospect, the PAD could have benefited from more in-depth discussions to clarify the project's overall conceptual approach and strengthen the alignment of the project development objective with the performance indicators. The PAD deals with a number of key social concepts without specifying their operational links and implications in terms of mainstreaming, regulations and enforcement, among other things. As included in the PAD, the selected performance indicators refer more to measure the results of the intervention rather than to the project's overall learning objective. Nevertheless, the final project evaluation prepared by the government helps correct this misalignment by detailing the methodologies that were used to integrate a gender approach into the sub-projects, identifying which methodologies and tools worked best and identifying best practice interventions. Similarly, although the project accurately identified potential implementation risks, some of the mitigation measures were rather limited in that they did not include all risk factors. For example, the PAD recommended that ownership be developed within the beneficiaries in case the CNM did not remain committed to the project's innovative conception; yet the PAD did not address the necessary conditions to foster ownership. In addition to the abovementioned, the PAD could not foresee the extent of the risks posed by the economic crisis that was on the onset at the time of loan negotiations in October 2001. As explained in the next section, these 12 risks materialized and affected project implementation. 7.2 Implementation (including any project changes/restructuring, mid-term review, Project at Risk status, and actions taken, as applicable) PROFAM was to be implemented in three years with original effectiveness and closing dates envisaged for January 2002 and June 2005, respectively. Instead, the project implementation period lasted for five years, with the first disbursement being made in February 2003; more than a year after the estimated project effectiveness date. As discussed below, multiple factors explained the need for a longer implementation period. In December 2001, two months after the loan's signature, a severe economic crisis triggered a major political and institutional upheaval that included the resignation of President De La Rúa. There was a succession of interim presidents, a default on public debt and parity between the peso and the dollar was abandoned. GDP fell by 11% in 2002, bringing the overall growth decline since 1998 to around 20%, and unemployment rose to 20%; by early 2004, 50% of the population was estimated to be living in poverty. This crisis led to delays in declaring the project effective for over a year after loan approval in November 2001. The GOA also faced serious budget constraints during the crisis, which limited the availability of counterpart funds. However, PPF resources were used to launch the project. In spite of these setbacks, the project's objective became even more relevant given the increased poverty levels as a result of the crisis. This was confirmed by the sheer volume of responses to the first call for sub-project proposals in December 2002. There were 1,600 proposals of which 329 were selected to be reviewed by the evaluation committee. The change in government in May 2003 also interrupted project implementation. When PROFAM was prepared and approved, the CNM was a stand-alone institution, linked only to the Presidency. When the Kirchner administration came into office, however, the CNM became part of the Council of Social Policy led by the Ministry of Social Development and this new council required a review of all 329 sub-projects that were pre-selected in the first call for proposals. They also raised the qualification standards for grant eligibility, resulting in all but 32 of the sub-projects that had been previously selected to be re-categorized as ineligible for funds because of methodological problems and incomplete documentation. Furthermore, the gender mainstreaming approach included in each sub-project was carefully scrutinized to ensure that it was responding to the needs of both men and women within the family dynamics, and, therefore, would not introduce tension within the family as a result of changing women's roles. The project team worked closely with the LG, CBO and NGOs that submitted sub-projects that were reclassified as ineligible, and at the end a total of 153 sub- projects of the originally 329, were financed from the first call for proposals; these were implemented in 2003- 2004. Another factor that delayed project implementation was the substantial learning curve of both the CNM --to monitor and provide adequate technical assistance-- and of the CBO and LG --to meet the criteria and requirements for grant eligibility. In addition, grant awardees had serious problems in submitting all the required auditing documentation on time. This situation caused the CNM to devote more human and financial resources to ensuring that sub-project implementing agencies met the eligibility criteria and submitted all necessary documentation, 13 and slowed down both the signing process and the disbursement of funds. To overcome this limitation, the CNM hired additional personnel experienced in community project management and providing technical assistance to organizations. The CNM also made changes in the eligibility requirements for selecting proposals and introduced ex-ante training for the organizations interested in presenting proposals to the two funds for the second call of proposals. The role of the Bank was crucial in supporting the CNM in identifying mechanisms to address limitations within the organizations. Among the Bank's main recommendations was the provision of guidelines that while in keeping with the principles detailed in the Operations Manual, allowed flexibility in order to accelerate the implementation of sub-projects, tailor on- site technical assistance to address particular problems faced by the organizations and changing specific procedures that were constraining the implementation of sub-projects. Due to the effects of the political and financial crisis during the first years of project implementation, the Bank downgraded the project's outcome rating to Unsatisfactory for the period December 2003 ­ April 2005. It also increased two risk ratings: Government support to the CNM for its gender equity agenda and the timely provision of grant funds. However, the Government's request for a reallocation of funds at the end of 2004 was a clear indication of its commitment to continue with the project and implementation improved in the following years. 7.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization M&E Design: The development of a participatory M&E system was planned for the beginning of project implementation. The main objectives of the system were to analyze the implementation of sub-project and provide evidence that would allow public agencies and organizations to learn from the implementation and results of this new approach. Additionally, at the request of the Ministry of Finance, the M&E system would detail the cost effectiveness of sub-projects. To achieve these objectives, the M&E system: (i) followed the project's logical framework, including its outputs and impact indicators; (ii) integrated data from other sources such as sector surveys and studies; and, (iii) included beneficiary evaluations and consultations with civil society groups through the Forum for Civil Society. Testing would be done through control groups in comparison with a baseline: (i) LG versus CBO; (ii) local-based approaches versus centralized approaches; (iii) family approach versus sectoral approach; and (iv) gender equity approach versus approaches that accept traditional roles. The CNM, with support from women's provincial offices, would have primary responsibility for project supervision, monitoring and evaluation, and the preparation of operational reports, a mid-term evaluation report prepared at the end of the first year and disseminated to civil society, and an impact evaluation report to be produced at the end of the third year and consist of results from the beneficiary assessment and main lessons learned; this last report would be disseminated among federal and local governments and civil society. M&E Implementation: The CNM developed an effective and participatory monitoring and evaluation system, yet somewhat different from the original design of the PAD. The CNM teamed-up technical and financial specialists to conduct monitoring activities and to provide technical assistance for sub-projects.. These activities were conducted in a systematic way and 14 counted with a set of different operation and reporting mechanisms, such as activity-planning sheets, logbooks, regular inter-sectoral staff meetings, supervision missions, sub-project status reports and back-to office reports. The results from evaluations of the implementation of project activities provided feedback for subsequent activities. For example, the findings of the evaluation of the first call for proposals determined that there was a need to reform the guidelines and eligibility requirements and to provide technical assistance to prospective applicants before the second call for proposals. Other results of the M&E system led to the provision of tailored and on-site technical assistance to the organizations and to the revision of financial and accounting manuals that simplified administrative procedures; this proved crucial for the success of the sub-projects. Also, as planned in the PAD, the M&E followed a participatory approach. In addition to monitoring and evaluating LG and CBO operations, different events where organized to get direct feedback from the beneficiaries. The best examples were the Regional Meetings, which were a venue to exchange experiences on the sub-project operations and results among the project staff, the organizations and the beneficiaries. In addition to the valuable feedback on sub-projects, participants were more empowered as a result of the exchange and discussion of their experiences. The CNM was not able to produce an impact evaluation as indicated in the PAD, nor to establish a baseline. First, funding delays and the staggered launch of sub-projects caused these to be implemented in different points in time, thus restricting the possibility of making comparisons with control groups. Second, it was not possible to control for external effects because the long term outcomes for project beneficiaries could not be known. Third, in the second call for proposals, the CNM required all implementing agencies for sub-projects to have local addresses. That stipulation not only excluded large organizations that were based in Buenos Aires, but also limited the possibility of making comparisons between organizations, provinces and calls for proposals. In spite of these problems, the CNM performed an evaluation study for the last year and a half of the project to evaluate its performance, extract lessons learned and obtain a beneficiary evaluation. This study was carried out by a group of national universities, in different Argentinean provinces, which had previously participated in the selection of proposals in the second phase of May-September 2004. The evaluation focused on whether the project achieved its objectives in terms of testing gender mainstreaming into social capital interventions and the relevance and effectiveness of the same. The study employed three different types of instruments: a survey applied to the organizations' coordinators and a socio- demographic and focus group survey applied to a sample of PROFAM beneficiaries. This evaluation has produced useful results included in the outcomes assessment of this ICR. (See annex 8 for further details) 7.4 Safeguard and Fiduciary Compliance (focusing on issues and their resolution, as applicable) The Indigenous People Safeguard was the only safeguard applicable to the project. As indicated in the PAD, the project would coordinate with the Argentina Indigenous Community Development LIL. These two projects were operated simultaneously, had the same operational mechanisms (i.e., demand-driven approach) and were overseen by the Ministry of Social Development. Even though there was not a formal Indigenous Peoples' Development Plan 15 (IPDP) the project did reach out and included indigenous families and communities, given that several sub-projects were implemented in areas with a high concentration of indigenous peoples. For example, in the province of Formosa, a sub-project helped strengthen four associations of artisan indigenous women and helped consolidate the artisan networking at the departmental level. Similarly, the Instituto Nacional de Asuntos Indigenas (INAI), the government institution in charge of indigenous affairs, was involved in the production of educational material used in indigenous communities. Furthermore, indigenous organizations were encouraged to join regional networks, such as in the Puna region, so they could fully participate in the project capacity building program and receive technical assistance in the preparation and implementation of sub-projects. It is apparent that the lack of an IPDP was not an impediment for including indigenous communities in the project. Financial management was satisfactory throughout the project's duration. The Borrower respected the relevant loan financial covenants by submitting quarterly financial monitoring reports and annual audit reports in a timely manner. While some of the audit opinions include a single qualification regarding the misclassification of some expenditures among disbursements categories in the early project years, this issue was sorted out before the project closing date and necessary adjustments were made. 7.5 Post-completion Operation/Next Phase (including transition arrangement to post-completion operation of investments financed by present operation, Operation & Maintenance arrangements, sustaining reforms and institutional capacity, and next phase/follow-up operation, if applicable) Sustainability is reflected in: (i) the operational arrangements made by the CNM to maintain the gender and family approach and methodologies in their work program and mainstream these into the work of other ministries; and, (ii) the strengthening of institutional capacities within LG, CBO and NGOs and their willingness to continue using the approach tested in PROFAM. The CNM was not only committed to supporting the project's results, but it is already applying its principle and methodologies in the social protection programs that are currently carried out by the Ministry of Social Development, including the: Programa Familias por la Inclusión Social (Social Inclusion Family Program); Plan Nacional de Seguridad Alimentaria (National Plan of Food Security); and, Plan Manos a la Obra (Local Development and Social Economy Plan.) These programs have evolved from an individual focus ­ welfare approach in which the beneficiary had a passive role ­ to a family-focused empowerment approach. Furthermore, as indicated by the CNM in its project implementation report3, implementing PROFAM activities has strengthened CNM's work on mainstreaming gender into main social policies and the application of new legislation on reproductive health, domestic violence and the elimination of all forms of discrimination in productive activities ( i.e., access to credit) at both the sector and local level. PROFAM's gender mainstreaming approach has also been included into several institutional agreements with other sector ministries as well as in regulations or laws. For example, the CNM reached an agreement with the Ministry of Defense to provide training to the police on how to understand and handle domestic violence cases, and how to introduce gender equity 16 principles into the agency's personnel code of conduct. The approach has helped the Ministry of Health enhance its treatment protocols for reproductive health and eating disorders by providing its staff with information regarding the relationship between family dynamics and these diseases, as well as gender issues involved in them. The CNM is now planning to design a protocol for assistance to domestic violence victims based on experiences from PROFAM sub-projects in this area. The protocol would establish standards and parameters for government agencies mandated to respond to domestic violence related issues. The LG, CBO and NGOs that participated in PROFAM sub-projects perceived themselves as being more competent in integrating gender issues into their social capital programs and interventions. They reported to have gained new skills ranging from project planning and implementation, to financial and project management skills. Beneficiaries also confirmed the expansion or consolidation of working relationships with other organizations and local governments; thus, expanding their possibilities to take advantage of new services or new opportunities. Many of the CBOs that participated in PROFAM are currently working in existing social protection programs; integrating PROFAM's gender approach through training and technical assistance to beneficiaries (women and families). 8. Assessment of Outcomes 8.1 Relevance of Objectives, Design and Implementation (to current country and global priorities, and Bank assistance strategy) PROFAM's objectives were relevant when the LIL was designed, and became even more relevant as Argentina went through a crisis in which poverty and unemployment increased in the short time; with individuals feeling deprived and highly vulnerable in comparison to others or to their past situation. The role of women and youth also changed as a result of being obliged to insert themselves into the labor market to ensure the material and emotional survival of their families. At present, PROFAM's objectives are relevant for both the current Government's social development strategy and the Bank's CAS. A new development agenda has emerged in response to the country's sustained economic recovery, in which the approach and methodologies for social policies are being transformed. The Government is transitioning from traditional assistance programs that were essential in the aftermath of the 2001 crisis, to those that aim either to reintegrate their beneficiaries into the labor market (through education, credit, training and active employment policies) or, to address drastic destitution through conditional cash transfer that are linked to families' investments in education and health. The Bank is supporting those efforts through a Heads of Household Transition Project (Loan No. P383). The social inclusion pillar of the 2006 CAS purports to support the Government's efforts to establish permanent safety nets and foster employment. PROFAM's objectives and its connection with poor families fit very well with this new strategy; given its potential to build skills and competences at the family level through integrating gender equity principles (e.g., access of men and women to reproductive health, criminalization and penalization of domestic violence, equal pay, availability of early childhood facilities, support to female heads of households, etc.) and increasing social networks. As mentioned above, the GOA through different social development programs is working with PROFAM beneficiary organizations to provide training and technical assistance on integrating a gender approach into family 17 empowerment actions. 8.2 Achievement of Project Development Objectives (including brief discussion of causal linkages between outputs and outcomes, with details on outputs in Annex 4) PROFAM's overriding objective ­ to test and monitor a social capital approach to address the vulnerability of the poor by targeting families as comprehensive units and promoting gender equity ­ was achieved. The project was able to: (i) test a gender mainstreaming approach through the implementation of 221 sub-projects carried out by CBO, NGO and LG; (ii) learn important lessons regarding the implementation of social capital building interventions that included a gender approach; (iii) contribute to the development of innovative ways of reducing the vulnerability of poor families; and, (iv) enhance institutional development and learn how to effective integrate gender issues into social policy so as to ensure sustainability and achieve the most progress. PROFAM also increased the proportion of CBO and LG connected to civil society networks, a foundation for community social capital. All this was achieved in spite of the national crisis that took place at the beginning of project implementation. In terms of activities and outputs, 221 sub-projects were financed under the first component, and were carried out by 200 CBO and NGOs and 41 LG. The sub-projects benefited 49,109 individuals directly and indirectly (80% women and 20% men) across all of the country's provinces. Working along ten thematic areas ­ domestic violence, reproductive health, responsible fatherhood and motherhood, rights and citizenship, culture and recreation, environment, resilience, rural development, tourism, production-oriented activities ­ the sub- projects provided either training, technical assistance, equipment or support for the construction of small infrastructure. The majority of the sub-projects (81.2%) were implemented by heterogeneous groups made up of both women and men. Over half of the organizations (63.4%) employed multiple methodologies and activities to integrate the gender equity approach. For example, a standard sub-project working in production-oriented activities included several productive activities t (i.e. arts and crafts, orchards, animal husbandry) and provided orientation seminars on reproductive health issues, domestic violence, responsible parenthood, nutrition, and alcoholism and drug abuse. The seminars were held once a month and included lectures and theatrical performances, among other techniques. Technical assistance on productive activities was provided on-site with the assistance of professionals in the area that guided the group (for more examples see Annex 4.) Additionally, under the second component, 13 communication campaigns and 6 regional meetings with heads of households participating in the sub-projects were carried out, and a set of videos and other publication material that were part of the communication strategy were prepared. Main Outcomes: (i) Lessons from testing and monitoring a gender approach into community development /social capital programs: According to the CNM's evaluation report, 89.7% of the participating organizations found that working with both men and women facilitated gender mainstreaming in the sub-projects and a 18 better understanding of gender roles and behaviors. The organizations reported that mainstreaming gender was more challenging in certain themes than in others. The organizations with sub-projects that focused exclusively on reproductive health, domestic violence, responsible fatherhood and motherhood or rights and citizenship themes declared that they had more leverage to understand and integrate gender equity approaches and concepts and that therefore, they were more effective in achieving their objectives. In contrast, the organizations that worked with rural development or production-oriented activities, culture and recreation, environment and resilience themes, noted that they faced more restrictions in mainstreaming gender and retaining participants in the different activities, thus, their actions were less effective. The organizations also noted that the group dynamics-based methodology was the best approach because it gave project beneficiaries a space to interact and communicate with each other. The use of learning tools that were outside the norm ­ for example, theatrical performances and use didactic material based on pictures ­ was also viewed positively by the organizations because these facilitated the understanding of concepts and messages. Another result of testing a gender approach into community development interventions was a better notion of the families' demands for interventions. Domestic violence was the theme most requested by women (12,163) and the second in line requested by men (2,417), while reproductive health raised the same interest from both sexes. Furthermore, the beneficiaries requested particular subjects in each of the themes offered by the organizations; to which they had to respond with additional training. For instance, in the domestic violence theme, 50.8% of the organizations had to provide training in legal advice for victims, 32.8% in domestic violence detection, and 26.2% in establishing and management shelters for victims. The organizations that worked in the domestic violence theme also found that there was an important presence of domestic violence victims within their beneficiaries ­ 42% of the beneficiaries in the metropolitan areas or 3,317 individuals ­ which conditioned them to implement tailored interventions to address this problem. Organizations that collaborated with professionals from other areas, expanded their outreach through the formation of promoters and conducted ex-ante planning exercises to address domestic violence, reported better results. Over half of the organizations reported that the time needed to prepare a promoter was at least six months, and there was more demand from the promoter to have the role of facilitator between the beneficiary and the specialist. (ii) Perceived effects of the sub-projects by the beneficiaries: According to the beneficiary evaluations, PROFAM's approach and methodologies proved to be effective in reducing the family's vulnerability by empowering women, sensitizing men on their own stakes in gender equity, increasing women's participation and decision-making in their interaction with the labor market and provision of public services (i.e., health, judicial), introducing self-awareness mechanisms for identifying violent attitudes and practices, and expanding family networks. PROFAM, therefore, generated behavioral changes within the participating families. Given the lack of a baseline and inability to conduct a rigorous impact evaluation, the project's final evaluation included only beneficiary qualitative evaluations. For each of the 213 sub-projects evaluated, 10 to 15 beneficiaries were interviewed using the focus group modality. The evaluation also included a survey of organizations, and this 19 included questions regarding the performance of the implementing agency, the CNM. The sample of beneficiaries included 3,195 beneficiaries. The questions asked in the focus groups were designed to gauge their perceptions of the impact of the sub-projects, specifically on whether they had acquired new skills or had any behavioral changes with regards to their families and communities as a result of participating or benefiting from the same. The table below presents a summary of the main outcomes of the subprojects for selected thematic themes. A socio-economic survey of beneficiaries was also carried out as part of the final evaluation. Table: Subprojects' Outcomes according to the Beneficiaries Activities Selected Outcomes/Women's Quotes Most PROFAM subprojects integrated a gender " ...the dialogue permitted to break our fears." approach using a methodology based on group dynamics. Their objective was to reduce women's Women reported to have become familiar, and isolation and make them more aware of the need to comfortable in a group to share their concerns and day- share their concern with others. to-day issues. As a result some reported to be working in establish in local Women's Associations. The PROFAM subprojects on rights and citizenship "We learned to meet for work; we really needed to get and production oriented activities aimed at helping out of their homes; we now demand respect from our women to enhance their skills, their capacity to partners." generate income and more important their self- - Men and other family members started to accept to esteem. take care of the children so that women could go the meetings. -Some women started dealing themselves with administrative procedures required by public agencies. -Other women individually and as groups started their own productive ventures. The PROFAM subprojects on responsible "The time with the psychologist helped me to parenthood and motherhood and child rearing understand my children's behavior and to modify some pursued to improve families' relations by of my violent conducts" understanding members' roles and position. - Women started to acknowledge their own violent practices when interacting with their children. - Parents' communication with their children improved, particularly on subjects they found initially difficult such as sex and drugs. - Some teenage mothers reported to have returned to school to complete their education. The PROFAM subprojects on reproductive health "Many guys asked a lot about the condom [during the aimed at enhancing beneficiaries' knowledge on workshops.] I was also embarrassed to talk, but later I gender and reproductive health. Many of the got more comfortable....My siblings refused to join me subprojects were targeted to youth population. at the beginning, but later they came." - Women got more information about their rights; possibilities to plan their families; and, to make decisions on their sexual life. --Youngsters have increased their knowledge on reproductive health and are keeping their role as disseminators of this knowledge to their peers. The PROFAM domestic violence subprojects had as "My husband is an alcoholic, but he has to respect me their main objectives to train and sensitize the now and my decisions." population on domestic violence and enhance - Both men and women declared to know now the women's access to all the agencies dealing with it. "violence cycle" so they are able prevent getting into it - Beneficiaries established and maintained a local network including municipalities to advice and act on 20 domestic violence episodes. - There is more knowledge on the services and resources provided by the government to help women to deal with domestic violence. Social capital at the local level has also been enhanced by both the strengthening and expansion of networks and the socializing activities included in the sub-projects. Sixty percent of the 213 organizations evaluated declared that as a result of project activities, they have connected with other NGOs, 51% with local governments and 46% with provincial units. Also, 49% of the NGOs that participated in the project exchanged experiences and consulted with LG, and 61% with other NGOs. According to the beneficiaries, working in groups made them realize the benefits of sharing their problems and frustrations with their peers, enhancing their capacity to understand the roots of their problems and discuss options for addressing them. The realization of these benefits also allowed them to replicate this experience with other members of their community and, thus, introduced an alternative mechanism for social action. In an effort to disseminate and provide a wider access to this type of methodology and its benefits, the CNM produced a set of ten DVDs in which the sub-project beneficiaries shared their problems in the discussions held as part of the project activities. Two of the DVDs were aired in national television; all the DVDs are reportedly being used by non-governmental organizations working on gender and poverty related issues. (iii) Other outcomes: PROFAM's gender and community awareness activities, combined with the systematization of Programa Equidad's experiences also resulted in the formulation or regulation of policies and important laws that foster gender equity in crucial sectors. The role of the CNM in the regulation of the Reproductive Law is the best example. The CNM has filled an important gap in reproductive health issues by providing a unifying framework for addressing the reproductive health needs of individuals, families and communities. Gender equity principles are now present in major policies and programs such as labor regulation, education laws, public employment norms and financial programs for micro enterprise development. Additionally, the CNM has made agreements with other sector agencies to mainstream gender into their operations through technical assistance and training. PROFAM not only tested and monitor a gender mainstreaming and social capital approach, but paved the way for this approach to be systematized and in social protection programs currently being carried out by the Ministry of Social Development. 8.3 Efficiency (Net Present Value/Economic Rate of Return, cost effectiveness, e.g., unit rate norms, least cost, and comparisons; and Financial Rate of Return) An efficiency assessment does not apply to the evaluation of this LIL. No economic or financial analysis was conducted in the design phase, as these were not compulsory in a LIL operation. 21 8.4 Justification of Overall Outcome Rating (combining relevance, achievement of PDOs, and efficiency) Rating: SATISFACTORY PROFAM satisfactorily achieved its overriding objective, and is still relevant in the current country context. First and foremost, it tested and monitored a gender mainstreaming and social capital strengthening approach nationwide that benefited 49,109 individuals. Second, beneficiaries report that this approach enhanced women's and men's knowledge and skills in gender equity, changed their relationship dynamics and expanded their networks; thus, having a positive effect in reducing their vulnerability. By raising awareness of gender equity through communication strategies, the LIL also reinforced the sub-projects' efforts to balance gender roles and responsibilities at the family level. Although the PROFAM's economic benefits could not be estimated, the fact that a five million dollar LIL benefited 38,956 women and 10,053 men and 221 organizations suggests high cost effectiveness. Furthermore, project lessons are being applied in existing social development programs, which look to empower families rather than just providing social assistance. The CNM is also enhancing the methodologies developed under PROFAM to ensure that the policies, laws and regulations that have already integrated gender equity are being enforced. 8.5 Overarching Themes, Other Outcomes and Impacts (if any, where not previously covered or to amplify discussion above) (a) Poverty Impacts, Gender Aspects, and Social Development Poverty reduction was not a principal project goal. However, all the sub-projects targeted poor families; this was measured by unsatisfied basic needs indicators and the poverty line. The beneficiary surveys confirmed that 45% of PROFAM beneficiaries were receiving some type of social assistance from the GOA and 37% of them declared that they could only afford to buy food if they received credits from the GOA. Also, 55% of the beneficiaries belonged to households with five members or more. Thus, by supporting the empowerment of poor families, PROFAM did contribute to an enhancement of opportunities for both women and men to escape poverty. PROFAM provided a new approach to addressing social development issues by providing the GOA with proof of the feasibility and effectiveness of introducing a gender dimension when assisting families and promoting the consolidation and expansion of community networks. Working with a gender and social capital approach allowed the sector to understand the positive effects of reducing gender disparities and how this can help strengthen relationships with the family unit; the benefits of targeting women given their active role in securing their family's well-being; and, the effectiveness of social networks in enhancing family members' opportunities, which can potentially reduce their dependency on social welfare programs. (b) Institutional Change/Strengthening (particularly with reference to impacts on longer-term capacity and institutional development) PROFAM promoted valuable institutional changes and strengthening at various levels. 22 · It was the first experience in Argentina where gender mainstreaming together with strengthening of social capital was tested as a mechanism to reduce the vulnerability of poor families at a local level. Given the project's positive results, the country now counts with validated methodologies to address gender disparities within the family; benefiting poor families in particular. As mentioned above, the Ministry of Social Development is now using the methodologies tested and used by organizations that participated in PROFAM to enhance the effectiveness of its own social development programs. · By having the Council of Social Policy as its most important stakeholder during project implementation, the CNM strengthened its capacity to mainstream the project's findings into sector policies. It also developed knowledge and skills needed to decentralize operations and establish public-private partnerships. · Local governments have also been strengthened and empowered. Before PROFAM, only 40 percent of them had experience in mainstreaming gender issues in their local development programs. Now, not only are they familiar with how to mainstream gender issues and strengthening social capital, but they have established networks with civil society organizations, other local governments and sector agencies. · All the organizations that participated in the project have benefited institutionally, including their functioning, internal cohesion and capacity to implement activities and manage funds. Moreover, the networks established between organizations have helped strengthen the country's social fabric. · PROFAM also helped family members reexamine issues of identity and empowerment while integrating gender equity principles. These elements are crucial for enhancing the family's capacity to manage its problems and seek alternatives to address them. (c) Other Unintended Outcomes and Impacts (positive or negative, if any) · The project provided a holistic approach to mainstreaming gender issues, while working as part of the social development domain ­ the Council of Social Policy ­ rather than being confined in a single institution with the added risk of having an effective but disconnected program. · Although the project was not designed to be part of the Government package of the emergency social policies during the crisis, it was flexible enough to incorporate the needs of those affected by the economic crisis by supporting productive sub-projects. 8.6 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops (optional for Core ICR, required for ILI, details in annexes) A survey of beneficiaries was carried out as part of the final evaluation. For each of the 213 sub-projects evaluated, 10 to 15 beneficiaries were interviewed using the focus group modality. The evaluation also included a survey of organizations, and this included questions 23 regarding the performance of the implementing agency, CNM. The surveys results have been used to document the project outcomes, and the results revealed that technical assistance and supervision of CNM to the CBOs and NGOs were very satisfactory or satisfactory in 78.4% of the cases. The support offered on accounting and financial related issues was considered satisfactory or better only in 45% of the cases. The beneficiaries' accounts of the project's performance are summarized in section 8.2. 9. Assessment of Risk to Development Outcome Rating: Modest The long-term sustainability of the LIL outcomes is evidenced by: · Validation of the methodologies used by multiple stakeholders, including the Ministry of Social Development which is applying them in their social development programs. · Dissemination of the methodologies by CNM through print and audio-visual materials to government agencies, local governments and CBO. · Increased capacity of participating organizations and their continued use of PROFAM's methodologies. · Enhanced knowledge and skills within the Ministry of Social Development's strategy and policies in how to mainstream gender into sub-projects that promote and strengthen the capacity of families to actively function within their communities. · Increased capacity within the CNM to dialogue with sector programs regarding gender mainstreaming. · Increased awareness of project beneficiaries the importance of gender equity and cohesive family practices However, it is not clear that a plan will be in place to guarantee the expansion and consolidation of the activities and the implementation of this approach. Moreover, as expressed by many PROFAM beneficiaries, despite their willingness to continue working with this approach, they require continued technical assistance and financial resources to make this possible. Even though the social protection programs are indeed incorporating many of the organizations that were part of the PROFAM LIL, others have been left out; and this could lead to a missed opportunity to capitalize on the knowledge gained by the PROFAM and the beneficiaries. Other organizations that expressed interest in participating in PROFAM activities, but could not participate due to a range of factors, have been disadvantaged. 10. Assessment of Bank and Borrower Performance (relating to design, implementation and outcome issues) 10.1 Bank (a) Bank Performance in Ensuring Quality at Entry (i.e., performance through lending phase) Rating: Rating: SATISFACTORY 24 The Bank's performance in the identification, preparation, and appraisal of the LIL was satisfactory. It identified the windows of opportunities for a real learning and innovation process by introducing a new social policy approach. PROFAM's consistency with the GOA's development priorities and the Bank's CAS was assured. Technical assistance brought in state- of-the-art expertise into project design, yet at the same time a participatory approach was promoted to ensure the project's relevance and operational feasibility. A PPF also financed studies that enhanced the project design, including the preparation of a comprehensive and participatory M&E system. Project preparation and appraisal, were well managed. Investments in infrastructure and equipment were well focused to proper requirements. The Bank had a consistently good working relationship with the Borrower during preparation and appraisal, which allowed the LIL to be prepared in 3 months. (b) Quality of Supervision (including of fiduciary and safeguards policies) Rating: SATISFACTORY The Bank's performance during project implementation was satisfactory. Throughout the project's implementation, the Bank permanently expressed its commitment to contributing to the project's success, and as such it was co-task managed with both staff in the field and at headquarters; which ensured that adequate resources were allocated for monitoring and supervision. Over the five years of the project's implementation, the Bank conducted 9 supervision missions, an average of 2.25 missions per year, and this included field visits to provinces to obtain first-hand comments and feedback on progress made. This close supervision enabled the Bank to come into agreements with the counterpart on complicated operational issues resulting from the economic crisis and the change of administration. First, the economic crisis caused an increase in number of proposals which main emphasis was providing economic alternatives to the poor, which made gender mainstreaming objective more challenging. Also, the Kirchner administration brought a new approach based on working directly with the grassroots or local-based organizations, rather than delegating the implementation of methodologies to NGOS, which increased the need of the CNM to increase their staffing for what was originally negotiated. Many of these changes, which had to be introduced in the Manual Operations, implied complex negotiations between the CNM and the Bank to find middle ground, while maintaining the covenants in the Legal Agreement. After overcoming the adjustment process of a new administration, the relationship with the Borrower was mostly positive and productive. Most relevant, in its ongoing support relationship with the Borrower, the Bank showed a high willingness and had a hands-on approach for providing solutions to the operational problems arose during project implementation. This was evident in the support given for changes in the Operation Manual and other administrative and financial procedures. Aide memoirs routinely highlighted outstanding issues and agreements on corrective actions. Follow-up was rigorous and credit covenants were effectively enforced. The Project Status Reports realistically rated the project's performance in terms of achievement of development objectives and progress in implementation. For example, during late 2003 and early 2004, an 25 unsatisfactory rating flagged difficulties with the focus on gender equity and counterpart funds that were seriously affecting the implementation progress and threatening the achievement of the development objectives. (c) Justification of Rating for Overall Bank Performance Rating: SATISFACTORY Based on the above mentioned analysis of its role during project preparation and implementation, the overall Bank performance in PROFAM is rated as satisfactory. 10.2 Borrower (a) Government Performance Rating: SATISFACTORY The Borrower's performance during project preparation was satisfactory. The Borrower (represented by the Ministry of Finance and the Council of Social Policy) displayed the required level of commitment to the project objectives and contributed to all major aspects of project design; giving full priority to its preparation and appraisal. In addition, in spite of the crisis, the Government made a significant effort to secure funds for the project, so loan effectiveness conditions were properly fulfilled at the end of 2002. The Borrower's performance during project implementation was also satisfactory. The Government always maintained its confidence in the project, as demonstrated by its support to aide memoir agreements and its agreement to an increase in the number of sub-projects that were financed as a result of a reallocation of funds. After the economic crisis the Government confirmed its support for the project by providing adequate counterpart funds and supporting the CNM with the administrative and legal requirements for the reallocation of funds and an extension of the project closing date. (b) Implementing Agency or Agencies Performance Rating: SATISFACTORY Implementing Consejo Nacional de La Mujer Agency The PIU encountered various challenges during project implementation, the main one being the severe economic, political and social crisis that gripped the country between 2001 and 2003. The crisis caused problems of funding in the early years of project implementation. Although the new administration that came into office in 2003 gave its complete support to the project, the transition process lasted almost a year; generating dissatisfaction among the CBO and LG due to delays in the activation of grants. Also, the PIU's personnel was overwhelmed with the workflow and frequent personnel changes generated problems and delays in implementation, including, for example, the late delivery of the Administrative and Financial Manual. Nevertheless, by early 2004, the CNM effectively had provided timely technical assistance and administrative support, had selected all the projects to be reviewed by the grant selection 26 committee after the second call for proposals and had authorized the approved sub-projects of the first call of proposals. These efforts allowed for all project activities to be completed successfully by the end of 2006; including the final evaluation. Further, the PIU made arrangements to integrate the project's main products ­ methodologies and partnerships with CBO networks ­ into their own work programs or those of other line ministries. (c) Justification of Rating for Overall Borrower Performance Rating: SATISIFACTORY The Borrower had a satisfactory performance, measured not only by the accomplishments made, but also by the efforts devoted to advancing the project, solving emerging problems and finding operational alternatives as needed. Despite the crisis which affected the timely availability of counterpart funds and the new administration's rather long transition process which delayed project implementation, the Government and the CNM were committed to the project objectives and their support during its implementation allowed all project activities to be completed and the development objectives achieved. 11. Lessons Learned (both project-specific and of wide general application) Project-Specific · When this type of LIL is implemented by an agency that does not have previous experience, it is better to start with a pilot operation ­ as a first stage of the project ­ to minimize the implementation costs associated with such an extended learning curve. According to the project evaluation, a quarter of the organizations reported that the CNM was not able to respond to their technical and administrative inquiries or requests for assistance, resulting in that 72% of the organizations had to make changes in their timetables and 54% in their budget during the implementation of the sub-projects. · When working with numerous and heterogeneous organizations in terms of size, experience, and geographical location, an in-depth institutional assessment should be completed in order to evaluate implementation capacity, formulate necessary institutional arrangements and provide ex-ante technical assistance that ensures the smooth implementation of activities. · The level of experience of the organizations, their capacity to formulate sound methodologies for applying the social capital and gender approach as well as their available resources are key factors that ensure a successful integration of this approach. · When working with beneficiaries who are poor, the organizations have to assist them, participate in the sub-projects because often these could not afford basic costs such as transportation, childcare, etc. Organizations that paid for transportation and gave scholarships to the beneficiaries had lower dropout rates. · Sub-projects following PROFAM approach generally required two-years to be 27 effective and needed continuous funding over that period. General Application: · When working with demand-driven grants, many organizations do not have sufficient experience and resources to both implement and systematize this approach without substantial supervision. Given the economic crisis CNM had to respond to many requests from organizations which increased its operational work and reduced the opportunity for learning. A more selective approach based on identifying ex-ante the organizations with more potential to develop and test innovative methodologies, could be more efficient. · Monitoring and evaluation systems should take into account the possibility of delays and other changes in project implementation so as to provide other evaluation options if need be. Due to the crisis, the changes in administration and other institutional and technical problems, the PROFAM impact evaluation component could not be fully developed. Arrangements should be sought between the Bank and the implementing agency for continuing evaluation after the project is finished. · Given the learning nature of a LIL mechanisms should be established for using the lessons learned as a basis for the Bank's policy dialogue both internally and with the government. A second phase of PROFAM would have been optimal to consolidate the lessons learned from the project and to build the necessary institutional capacity to make operational policies and lessons advanced by PROFAM. . 12. Comments on Issues Raised by Borrower/Implementing Agencies/Partners (a) Borrower/implementing agencies (b) Cofinanciers (c) Other partners and stakeholders (e.g. NGOs/private sector/civil society) 28 29 Annex 1. Results Framework Analysis Project Development Objectives (from Project Appraisal Document) The original objective of the PROFAM LIL was to test and monitor a social capital approach to address the vulnerability of the poor by targeting families as comprehensive units and promoting gender equity. This objective would lead the LIL to contribute to reduce poor families' vulnerability by strengthening family cohesion, solidarity between male and female family members, and capacity for conscious socio-economic and reproductive decision-making. To achieve this objective, the LIL followed a decentralized and participatory approach to capitalize the initiatives being carried out by civil society and local governments, and to build capacity at the local with the aim of enhancing LIL's sustainability. Accordingly, the LIL would support, monitor, and learn from: (a) initiatives promoted by local governments (LG) and community- based organizations (CBO) to enhance effective allocation of resources and use of opportunities by vulnerable families through the promotion of gender equity and cohesive family practices (Programa Equidad); (b) actions led by CBO and LG to foster more effective use of community resources by strengthening linkages among neighboring families; (c) actions that capture the potential of community social capital by advancing prospects for the creation and/or strengthening of civil society organization networks; and (d) dissemination of best practices on community interventions supporting family development and equitable gender relations. The LIL identified correctly its key indicators, combining both outcomes variables and output targets. All of them were properly aligned with the LIL's objectives and with its implementation plan. Moreover, CNM in conjunction with the Ministry of Finance ensured that the outcome indicators reflected the effectiveness of the LIL by assessing the impact of the subprojects in reducing families' vulnerability. These outcome/impact indicators were used as the PDO indicators in the PAD, and include the following: (a) improved awareness among beneficiary families about the importance of gender equity and cohesive family practices as a means of reducing their vulnerability; (b) improved awareness among beneficiary families participating in Programa Equidad about children's emotional needs and how to respond to them; (c) decrease in domestic violence episodes among beneficiary families participating in Programa Equidad; (d) improved evidence of responsible parenthood among beneficiary families of Programa Equidad through: (i) increase in father's involvement in childcare and support; and (ii) decrease in teenage pregnancy; and (e) increase in the proportion of CBO and LG connected in civil society networks. See Annex 1.a for the specific information of these indicators. A detailed set of output indicators complemented these PDO indicators and facilitated monitoring and evaluation throughout project implementation (see Annex 1.b.) 30 Revised Project Development Objectives (as approved by original approving authority) (a) PDO Indicator(s) Original Target Formally Actual Value Indicator Baseline Value Values (from Revised Achieved at approval Target Completion or documents) Values Target Years Indicator 1 : At least 100 subprojects are successfully implemented under Equity Fund (Fondo Equidad) Value 250 sub- 218 sub-projects quantitative or No subprojects existed. 100 successfully Qualitative) projects implemented. Date achieved 11/26/2002 11/26/2002 05/19/2006 12/30/2006 Comments Due to the increase of the loan's fund in national currency PROFAM (incl. % implemented 218 sub-projects that benefited 50 thousand people (80% and 20% achievement) men) in all provinces of the country. Indicator 2 : At least three Communication Campaigns carried out by EOP Value At least 3 3 communication quantitative or No campaigns carried out 3 campaigns campaigns campaigns carried Qualitative) carried out out. Date achieved 11/26/2002 11/26/2002 06/30/2005 04/30/2007 Comments Three communication campaigns on women rights and domestic violence were (incl. % conducted using printed, audiovisual and publicity materials, targeted to achievement) different population groups (inc. soccer match attendants) and involved media icons such as soccer players. Indicator 3 : 10 stakeholder meetings organized in different areas of the country to interchange positive experiences 6 regional Value meetings, 12 quantitative or 0 meetings 10 stakeholder 52 meetings training meetings Qualitative) meetings and 52 on-site technical assistance visits. Date achieved 11/26/2002 11/26/2002 10/30/2006 12/30/2006 Comments CNM carried out multiple meetings at the regional and local levels with (incl. % organizations (NGOs, Universities, CBOs, municipalities, local, provincial and achievement) central gov.) to exchange experiences and provide technical assistance. (b) Intermediate Outcome Indicator(s) Original Target Formally Actual Value Indicator Baseline Value Values (from Achieved at approval Revised Completion or documents) Target Values Target Years Indicator 1 : Family ability to function cohesively is strengthened Value Qualitative (incl. not established at Among According to 31 (quantitative consultations, focus appraisal beneficiaries, PROFAM's or Qualitative) groups) baseline showed decrease in evaluation study, substantial degree of teen over 78 % of the gender segregation pregnancy and beneficiaries of the among beneficiaries. at least 70% of sample perceived beneficiaries their capacity to perceive follow cohesive strengthened family practice family ability enhanced. to function cohesively, according to evaluation survey. Date achieved 11/26/2002 11/26/2002 05/19/2006 12/30/2006 Comments In the absence of quantitative base line the evaluation study used a focus group (incl. % methodology; 78.6 % of beneficiaries declared to have their abilities enhanced. achievement) Teenage pregnancy reduction can not be established. Indicator 2 : Community social capital is expanded -60 % of the 213 among organization beneficiaries, evaluated declared Value A sense of community in at least 70% to have connected (quantitative the areas of the project not established at feel sense of with CSOs or Qualitative) did not exist appraisal community, -4,300 promoters according to trained for evaluation articulating CSOs survey with neighbors associations. Date achieved 11/26/2002 11/26/2002 05/19/2006 12/30/2006 Comments Also, the beneficiaries declared that the group dynamic methodologies followed (incl. % by the subprojects allowed them value the benefits of sharing their problems achievement) with their peers and to reproduce this behavior with others. 32 Annex 2. Restructuring (if any) Not Applicable 33 Annex 3. Project Costs and Financing (a) Project Cost by Component (in USD Million equivalent) Components Appraisal Estimate Actual/Latest Estimate Percentage of (USD M) (USD M) Appraisal FAMILY STRENGTHENING 4.06 4.38. 107.9% GENDER AND COMMUNITY 1.15 0.22 19..1% AWARENESS INSTITUTIONAL 1.16 1.13 97.4% DEVELOPMENT Total Baseline Cost 6.38 5.73 85.9% Physical Contingencies 0.28 0.00 Price Contingencies 0.01 0.00 Total Project Costs 6.67 5.73 Front-end fee PPF 0.07 0.05 2.4% Front-end fee IBRD 0.05 Total Financing Required 6.72 5.85 87.1% (b) Financing Appraisal Actual/Latest Source of Funds Type of Percentage of Cofinancing Estimate Estimate (USD (USD M) M) Appraisal Borrower 0.00 0.00 INTERNATIONAL BANK FOR RECONSTRUCTION AND 5.00 4.32 86% DEVELOPMENT LOCAL GOVTS. (PROV., DISTRICT, CITY) OF 1.00 0.16 16% BORROWING COUNTRY NON-GOVERNMENT ORGANIZATION (NGO) OF 0.72 0.81 1.13% BORROWING COUNTRY (c) Disbursement Profile 34 Note: The graph is in currency of the loan/credit/grant. 35 Annex 4. Outputs by Component Component I: Family Strengthening To strengthen families by enhancing their abilities to function cohesively, the Project implemented two demand-driven funds: Programa Equidad and Social Capital Promotion. Working along ten thematic areas ­ domestic violence, reproductive health, responsible fatherhood and motherhood, rights and citizenship, culture and recreation, environment, resilience, rural development, tourism, production- oriented activities including entrepreneurial growth and development ­ these two funds funded sub- projects that provided either training, technical assistance, equipment or support for the construction of small infrastructure. The majority of the sub-projects (81.2%) were targeted to heterogeneous groups made up of both women and men. Over half of the organizations (63.4%) employed multiple methodologies and activities to integrate the gender equity approach. For example, a standard sub- project working in production-oriented activities included several productive activities (i.e. arts and crafts, orchards, animal husbandry) and provided orientation seminars on reproductive health issues, domestic violence, responsible parenthood, nutrition, and alcoholism and drug abuse. The seminars were held once a month and included lectures and theatrical performances, among other techniques. Technical assistance on productive activities was provided on-site with the assistance of professionals in the area that guided the group. The table below summarizes the main characteristics of 3 selected subprojects. Table 1: Examples of Mainstreaming Gender into Social Capital Sub-Projects Subproject Name Objectives/Activities Actions/Tools Subproject 1: Mainstreaming - Provide workshops on key gender - Design and use of education Gender into Farmer themes focusing on women's material Community organizations, empowerment. - Training of Trainers (Promoters) in Artisans organizations, and - Strengthen local organizations ( key gender themes. Indigenous People's both women and mixed) and - Support to productive ventures by organizations in Northwest promote the creation of local providing on-site technical Argentina. networks assistance. - Support micro productive - Coordination, monitoring & ventures. evaluation - Support efforts for improving - Establishment of partnerships with women's health other organizations, public sector agencies and LG (sign work agreements, MOUs, etc.) Subproject 2: Community - Provide a better understanding - Preparation of didactic material. Bakery in Barrio Villa del and revalorization of the family - Training of Promoters in key Rosario ­ Formosa. members' roles, using the families' gender themes. original knowledge and - Provide training workshops in understanding of these roles. reproductive health, responsible - Empower women by making parenthood, domestic violence and them to acquire production skills rights and citizenships. and, thus, to generate income for - Make women responsible in the the household. establishment of the bakery: - Achieve a community infrastructure, equipment, etc. entrepreneurship that can provide - Provide training and technical an example of organization, assistance on bakery production community service and training. activities. 36 -- Encourage cooperation and linking with other organizations. Subproject 3: Social Connection - Reinforce family socio-affective - Preparation of didactic material. & Identity: Gender & Family in skills within family dynamics. - Carrying-out families' needs- Cordoba, Argentina. - Strengthening women's position assessments and a diagnostic of the by addressing gender disparities. public services supply. - Provide stimulant education - Workshop series on masculinity opportunities and integral and parenthood. protection to children as way to - Provide common recreational help parents in child-rearing. activities to enhance cohesiveness. - Promote sociability and - Use of community resources to sensibility of women and families disseminate training events. by developing creative expressions - Association with other local and socio-recreational experiences. organizations. - Dissemination of availability of public services and economic support to families to enhance their access to these services. - Improve infrastructure of organizations' facilities. - Support community initiatives such as child-care centers. The 213 organizations surveyed during the final evaluation reported that they had expanded the beneficiaries' knowledge on certain themes. For example, in domestic violence the main themes that were familiar by the beneficiaries were the topics of violence circuits, batter, and detection of violent situations. At the end of the subprojects, had acquired information and had a clearer sense as to what to do, where to go to acquire information and knowledge about the legal procedures to follow. As reported by the beneficiaries in the focus groups evaluation component, the knowledge transmitted in the subprojects has proved to be effective in reducing the family's vulnerability by empowering women, sensitizing men on their own stakes in gender equity, increasing women's participation and decision-making in their interaction with the labor market and provision of public services (i.e., health, judicial), introducing self-awareness mechanisms for identifying violent attitudes and practices, and expanding family networks. The table below summarizes the evidence reported by the beneficiaries on behavior change as envisioned by the outcome indicators stated in the PAD. Table 2: Perceived Behavior Changes by the Beneficiaries Key Performance Evidence based on beneficiaries' account Indicator Awareness about the Empowerment of Women: importance of gender equity - Self-esteem and autonomy in decision-making increased. and cohesive family practices - Capacity to identify gender inequity through a reflection process increased. - Bargaining power within the household to change the woman's traditional roles increased­ e.g., men performing more childcare chores. - Taking up productive roles and insertion into the market increased. - Capacity to disseminate their new skills and knowledge to the community increased. - Identification of gender disparities at the society level enhanced. Cohesive family practices: - Communication and comprehension skills enhanced. - Capacity to relate with community members enhanced. - Men sensitized in gender, and knowledge of their partner's emotional needs increased. 37 - Men's respect for women increased. Improved awareness about - Knowledge of the benefits of breastfeeding and an increase in the practice. children's emotional needs - More self-awareness of violent attitudes and practices, and enhancement of capacity to and how to respond to these identify when involved in violent dynamics. - Co-responsibility of both parents in childcare understood. - Information on strategies to prevent school dropout increased. Domestic violence episodes Skills and resources to manage domestic violence problems increased. For example: - Knowledge of legal resources to prevent violence increased. - Increased access to shelters by setting them or referring and assisting with paperwork. - Awareness in the psychological effects of domestic violence (e.g., victims' guilt). - Capacity to communicate domestic violence episodes and seek for help increased. Responsible parenthood - Access to information on child alimony increased. through: (I) father's - Women's bargaining power to make men perform more childcare chores increased. involvement in childcare and - Information on the benefits of co-parenting increased. support; and (ii) awareness on - Awareness of the benefits of integrating recommended reproductive health practices teenage pregnancy. increased. For example: · Prevention of acquiring STD and use of condom. · Family planning methods in pregnancy prevention. · Knowledge on female and male bodies. - Parents' more involved in discussing reproductive health issued with their children. CBOs and LGs connected - As a result of the LIL, sixty percent of the 213 organizations evaluated declared to have with civil society networks. connected with NGO, 50.7% with local governments and 46% with provincial units. - Also, 48.8% of NGO exchanged experiences and made consultations with local governments, and 61.2% with other NGO. Half of the LG (51.2%) interacted with CBO. In addition, the Social Capital Fund promoted the creation of networks between civic society organizations and public agencies. As a result, 60% of the 213 organizations evaluated declared to have connected with NGO, 50.7% with local governments and 46% with provincial units. Also, 48.8% of NGO exchanged experiences and made consultations with local governments, and 61.2% with other NGO, while half of the LG (51.2%) interacted with CBO. LG articulated more with the health sector and less with the police station and the judiciary. NGO articulated more with the public agencies at the national level. The chart below detailed all sectors agencies that articulated with these three organizations. Besides, under these subprojects 4,300 promoters were trained to be articulators between organizations and neighborhood associations and to provide information on their work to the communities. 38 Chart 1 Linkage with other Organizations according to NGO and LG 70.0 60.0 50.0 40.0 30.0 NGO 20.0 LG 10.0 0.0 NGO ies es t i icesutionsdm an s ney Org. AgencAgencncyRoomospitalParish None H StationCour cipalvincialEmerge lice OtherAttorroots Po tionalucation AgencInstitOmbus DistricGrass MuniPro Na Ed Source: CNM, 2006 Component II: Gender and Community Awareness The objective of this component was to promote awareness-raising and communication strategies at a micro-level that seek to directly impact the LIL target areas to further enhance government-civil society- community-family relationships, particularly related to reproductive health choices and decision making, parental responsibility, respect for non-traditional gender roles among youth and children, etc. To achieve so CNM carried out three communication campaigns of women's rights and domestic violence using printed, audio-visual and publicity material. These campaigns were targeted to diverse groups and use different venues such as academic conferences or major soccer tournaments. Besides, CNM carried out six regional meetings with the organizations, beneficiaries and national and provincial government officials to exchange experiences among and provide technical assistance to the beneficiaries. Gender awareness was also promoted in the 13 training and technical assistance meetings to the organizations and beneficiaries that encompassed 1,000 women and men. Finally, the CNM produced a set of ten DVDs in the main thematic themes: rights and citizenship, production oriented activities, health, domestic violence, impacts and networks. In these DVDs, the beneficiaries share their experience with the subprojects and their perceived benefits to encourage other potential beneficiaries to go through a similar experience. Under this component, CNM also worked in mainstreaming gender into other sector government agencies such as the Ministry of Development and the Ministry of Interior through providing technical assistance on how to integrate gender principles into their program or training their personnel. CNM also participated in the formulation or regulation of policies and laws for fostering gender equity in crucial sectors. The role of CNM in the regulation of the Reproductive Law is the best example of these results, since CNM has filled an important gap in reproductive health issues by providing a unifying framework for addressing the reproductive health needs of individuals, families and communities. Gender equity principles are now present in major policies and programs such as labor regulation, education laws, public employment norms and financial programs for micro enterprise development. 39 Component III: Institutional Development This component was envisioned to build upon the existing project management capacity of the PIU within CNM as the entity responsible for the coordination and monitoring of the implementation of the project by providing technical assistance and capacity building for PIU staff and consultants. As stated in the PAD, this component supported: (a) consultants to support the technical and administrative implementation of the project; (b) capacity building for PIU staff and consultants; (c) the implementation of a monitoring and evaluation system, including the definition of the baseline and performance indicators; (d) consultants for the project audits; and (e) equipment (computers, printers, software etc) necessary for project implementation. 40 Annex 5. Economic and Financial Analysis (including assumptions in the analysis) Not applicable. 41 Annex 6. Bank Lending and Implementation Support/Supervision Processes (a) Task Team members Names Title Unit Responsibility/Specialty Lending Supervision/ICR María-Valeria Penha Lead Social Scientist ESSD Task Manager (2000-06) Sr. Social Development Josefina Stubbs LCSSO Task Manager (2006-07) Specialist Junior Professional Barbara Brakarz LCSEO Program Assistant Associate Daniela Edith Fernandez Temporary LCC7C Social Specialist Andres Mac Gaul Sr Procurement Spec. LCSPT Procurement Specialist Veronica Salatino Country Officer LCC7C Operation Specialist Alejandro Roger Solanot E T Consultant LCSFM Financial Management Olympia Icochea Consultant ICR Preparation (b) Ratings of Project Performance in ISRs No. Date ISR Archived IP DO Actual Disbursements (USD M) 1 12/10/2001 Satisfactory Satisfactory 0.00 2 06/07/2002 Satisfactory Satisfactory 0.00 3 09/18/2002 Satisfactory Satisfactory 0.00 4 02/25/2003 Satisfactory Satisfactory 0.55 5 05/22/2003 Satisfactory Satisfactory 0.55 6 12/16/2003 Unsatisfactory Unsatisfactory 0.75 7 05/31/2004 Unsatisfactory Unsatisfactory 0.88 8 09/01/2004 Unsatisfactory Unsatisfactory 1.32 9 04/04/2005 Satisfactory Satisfactory 2.08 10 01/04/2006 Satisfactory Satisfactory 3.79 11 06/27/2006 Satisfactory Satisfactory 4.33 (c) Staff Time and Cost Staff Time and Cost (Bank Budget Only) Stage of Project Cycle USD Thousands No. of staff weeks (including travel and consultant costs) Lending FY00 15 64.57 42 FY01 12 84.42 FY02 8 39.77 FY03 6.23 FY04 2.35 FY05 0.00 FY06 0.00 FY07 0.00 Total: 35 197.34 Supervision/ICR FY00 197.34 FY01 0.00 FY02 1 0.00 FY03 15 18.05 FY04 14 56.89 FY05 15 69.25 FY06 17 58.87 FY07 4 82.25 Total: 66 482.65 43 Annex 7. Detailed Ratings of Bank and Borrower Performance Bank Ratings Borrower Ratings Ensuring Quality at Entry: Satisfactory Government: Satisfactory Implementing Quality of Supervision: Satisfactory Satisfactory Agency/Agencies: Overall Bank Overall Borrower Satisfactory Satisfactory Performance: Performance: 44 Annex 8. Beneficiary Survey Results (if any) As mentioned above, the CNM evaluation included focus group to the subproject's beneficiaries for each of the two funds. For each of the 213 sub-projects evaluated, 10 to 15 beneficiaries were interviewed, which defined a sample of between 2,130 to 3,195 beneficiaries. The questions asked in the focus groups were designed to gauge their perceptions of the impact of the sub-projects, specifically on whether they had acquired new skills or had any behavioral changes with regards to their families and communities as a result of participating or benefiting from the same. The table below presents a summary of the main outcomes of the subprojects for selected thematic themes. Activities Selected Outcomes/Women's Quotes Most PROFAM subprojects integrated a gender " ...the dialogue permitted to break our fears." approach using a methodology based on group Many women became familiar and comfortable in dynamics. Their objective was to reduce women's having a group to share their concerns and day-to-day isolation and made them more aware of the need to issues and are currently promoting the establishment of share their concern with others. Women's Associations. The PROFAM subprojects on rights and citizenship "We learned to meet for work; we really needed to get and production oriented activities aimed at helping out of their homes; we now demand respect from our women to enhance their skills, their capacity to partners." generate income and more important their self- - Men and other family members accept taking care for esteem. women to go their meetings. -Some women started dealing themselves with administrative procedures required by public agencies. -Other women individually and as groups have started their own productive ventures. - Women that were participating in other state-funded programs are willing to take advantage of their other benefits such as continuing education. The PROFAM subprojects on responsible "The time with the psychologist helped me to parenthood and motherhood and child rearing understand my children's behavior and to modify some pursued to improve families' relations by of my violent conducts" understanding members' roles and position. - Women started to acknowledge their own violent practices when interacting with their children. - Parents' communication with their children improved, particularly on those subjects difficult to address such as sex and drugs. - Teenage mothers returned to school to complete their education. The PROFAM subprojects on reproductive health "Many guys asked a lot about the condom [during the aimed at enhancing beneficiaries' knowledge on workshops.] I was also embarrassed to talk, but later I reproductive health by using a gender approach. got more comfortable....My siblings refused to join me Many of the subprojects were targeted to youth at the beginning, but later they came." population. - Women got more aware of their rights and possibilities to plan their families and to make decisions on their sexual life. - The promoters are crucial in facilitating women access to health care by just going along with them to the health center or hospital. -Youngsters have increased their knowledge on reproductive health and are keeping their role as disseminators of this knowledge to their peers. The PROFAM domestic violence subprojects had as "My husband is an alcoholic, but he has to respect me their main objectives to train and sensitize the now and my decisions." population on domestic violence and enhance - Both men and women declared to know now the 45 women's access to all the agencies dealing with it. "violence cycle" so they are able prevent getting into it - Beneficiaries established and maintained a local network including municipalities to advice and act on domestic violence episodes. - There is more knowledge on the services and resources provided by the government to help women to deal with domestic violence. The evaluation also included a survey of organizations to evaluate the performance of the implementing agency, the CNM. The results revealed that technical assistance and supervision of CNM to the CBOs and NGOs were very satisfactory or satisfactory in 78.4% of the cases. In turn, the support offered on accounting and financial related issues were considered satisfactory or better only in 45% of the cases. These results vary among the first and second call of proposals and regions. For example, twenty percent of the organizations declared to be very dissatisfied or dissatisfied with the technical assistance. For the accounting support these percentages become 21% and 13% respectively. In the northeast and northwest and metropolitan regions of the country the degree of satisfaction with the CNM performance is high, whereas in the Cuyo region 40% of the responses were of dissatisfaction. This could be explained that those organizations that belong to this region were selected during the first call of proposals, which presented more problems to provide timely and relevant support to the organizations. 46 Annex 9. Stakeholder Workshop Report and Results (if any) Not Applicable 47 Annex 10. Summary of Borrower's ICR and/or Comments on Draft ICR Estimada señora En mi carácter de Presidenta del Consejo Nacional de la Mujer, tengo el agrado de dirigirme a Ud. a fin de hacerle llegar los comentarios al informe final sobre el programa Profam. Para el CNM, el Profam significó una experiencia importante en el sentido de operar en forma directa el apoyo a la tarea de gobiernos locales y de organizaciones sociales con su comunidad, que complementa la desarrollada a través del Plan Federal y de otros programas. Hemos leído con detenimiento el informe final realizado sobre el desarrollo del Programa de Fortalecimiento a la Familia y el Capital Social, llevado a cabo por nuestro Consejo y finalizado el 31 de diciembre del año 2006. Al respecto queremos acordar en términos generales con el contenido de dicho informe, que refleja el enorme esfuerzo de nuestro gobierno para lograr su máximo aprovechamiento dentro de sus políticas sociales integrales y en el contexto del proceso de recuperación de nuestro país luego de la crisis de los años 2001 y 2002. Antes de entrar a ese detalle, un par de comentarios generales sobre el Programa como ya le adelantáramos verbalmente: primero, la concepción del mismo ignoró el rol de las Áreas Mujer de las provincias; segundo, la inflexibilidad del banco para el fortalecimiento de la unidad ejecutora así como la demora en aceptar nuestra propuesta de aumentar la cantidad de subproyectos a ser financiados. En anexo detallamos los comentarios puntuales al informe final, con el propósito de que estas consideraciones y esos comentarios sean incluidos en el informe final. Quedamos a su disposición para ampliar y desarrollar esos conceptos. Atte. María Lucila Colombo Presidenta Sra. Josefina Stubbs Social Development Specialist ESSD, Latin America and the Caribbean Region World Bank Comentarios al informe final del Banco Mundial sobre el Programa de Fortalecimiento a la Familia y el Capital Social Para el CNM, el Profam significó una experiencia importante en el sentido de operar en forma directa el apoyo a la tarea de gobiernos locales y de organizaciones sociales con su comunidad, que complementa la desarrollada a través del Plan Federal y de otros programas. Hemos leído con detenimiento el informe final realizado sobre el desarrollo del Programa de Fortalecimiento a la Familia y el Capital Social, llevado a cabo por nuestro Consejo y finalizado el 31 de diciembre del año 2006. 48 Al respecto queremos acordar en términos generales con el contenido de dicho informe, que refleja el enorme esfuerzo de nuestro gobierno para lograr su máximo aprovechamiento dentro de sus políticas sociales integrales y en el contexto del proceso de recuperación de nuestro país luego de la crisis de los años 2001 y 2002. Sin embargo, queremos puntualizar algunos aspectos que desarrollamos con detalle a continuación y que están referidos a: son las políticas nacionales integrales las que han orientado el desarrollo del programa y no al revés ya que ha sido el encuadre dentro de éstas lo que facilitó el éxito del Profam; dentro de la política de Derechos Humanos, el gobierno impulsó la normativa destinada a promover el efectivo ejercicio de la ciudadanía por parte de las mujeres en materia de salud sexual y reproductiva, de educación, trabajo, violencia, etc., como parte de su concepción global de construcción de justicia social y finalmente el CNM es un organismo que viene trabajando los programas de igualdad de oportunidades y la transversalizacion de la equidad de género a las distintas áreas de gobierno y el Profam ha significado una herramienta más para ese objetivo. Antes de entrar a ese detalle, un par de comentarios generales sobre el Programa como ya le adelantáramos verbalmente: primero, la concepción del mismo ignoró -en un país federal como el nuestro- el rol de las Áreas Mujer de las provincias en la posibilidad de desarrollar una política de equidad conjunta entre el Estado Nacional, los gobiernos locales y la sociedad civil; esto constituyó un obstáculo para la articulación permanente y la continuidad de los logros del programa; segundo, la inflexibilidad del banco para valorar la importancia del fortalecimiento de la unidad ejecutora en las tareas de asistencia técnica y apoyo a los subproyectos así como la demora en aceptar nuestra propuesta de reasignación de fondos para aumentar sensiblemente la cantidad de subproyectos a ser financiados, significó, también un obstáculo que debimos sortear. Respecto del punto 6.5 Original Components (as approved) Component 1: Family Strengthening Se refiere a 30 mil dólares no pesos argentinos (aunque inicialmente existía la paridad uno a uno). Respecto del párrafo 7 Key Factors Affecting Implementation and Outcomes La tarea desarrollada durante el año 2002 con el Progen sirvió al CNM para relevar las organizaciones no gubernamentales que trabajaban en la comunidad por los derechos de las mujeres en las diferentes provincias. La experiencia del Plan Federal de la Mujer sirvió también para el armado del Profam. Respecto del 7.5 El sentido que se le da a este punto está errado políticamente. Nuestro gobierno puso en marcha, con recursos propios de su presupuesto y a través de diversos programas una batería de acciones de políticas públicas destinadas a revertir las décadas de exclusión y disgregación social. Tanto en lo que hace a la ley de salud sexual y procreación responsable y el programa correspondiente que instaló consejerías y provisión gratuita de insumos en todos los centros estatales de atención primaria de la salud, como en la ley de educación sexual, la ley de educación nacional con equidad de género, la promoción de la equidad en la ley de educación técnica, el programa Nacer, el programa de Seguridad Alimentaria, la jubilación anticipada, así como la inclusión de mujeres en la Corte Suprema de Justicia de la Nación y en los Ministerios de Desarrollo Social, Defensa y Economía del PEN. Todas ellas expresiones de 49 políticas públicas destinadas a recuperar los derechos con una mirada de equidad entre mujeres y varones. Por lo tanto, cabe aclarar que el Profam fue una de las herramientas utilizadas por el gobierno argentino en su política activa de defensa de los Derechos Humanos de las personas y las familias, en especial aquellas que fueron excluidas durante el auge de las políticas neoliberales, privatizadoras que destruyeron el trabajo y la producción nacional. La orientación de las políticas sociales del gobierno argentino ­expresadas en palabras de la Presidenta del Consejo Nacional de Coordinación de Políticas Sociales- es seguida por las políticas del CNM, por lo tanto, no es el Ministerio de Desarrollo Social quien aprende de un programa, sino que el CNM ­y dentro de él el Profam- quien sigue los lineamientos de la política nacional. Por lo demás el CNM en su rol articulador trabaja para incluir las problemáticas de género y su mejor abordaje con los grandes planes nacionales que orientan la política social. La promoción de las actividades y la aprobación de la legislación de equidad de género han sido y son logros del gobierno en su conjunto ­y dentro de ello, de sus programas- y son el resultado de una fuerte decisión política de la Presidencia de la Nación. Para estos logros el Consejo Nacional de la Mujer, a través de todos sus programas, trabaja fuertemente. El CNM tiene una tradición histórica en el trabajo por la igualdad de oportunidades entre mujeres y varones y en la transversalización de la equidad de género a través del Directorio que integran representantes de los diferentes ministerios, de convenios con cada uno de ellos y del Consejo Federal de la Mujer que integran las representantes de las provincias. En todo caso el PROFAM le permitió al CNM tomar contacto directo con mujeres y varones de los sectores sociales más postergados, recoger experiencias y puntualizar mejor la multiplicidad de formas que toma la discriminación que sufren las mujeres en los distintos ámbitos y en todas las regiones del país. Respecto del punto 8.5 Overarching Themes, Other Outcomes and Impacts (b) Institutional Change/Strengthening Si bien los resultados han sido altamente positivos y las metodologías desarrolladas por el programa siguen siendo utilizadas por las ONGS y los gobiernos locales que fueron beneficiados con los proyectos PROFAM, no es posible afirmar que el PROFAM haya impuesto metodologías en la formulación de políticas sociales. La afirmación referida al 40% de los gobiernos locales debe entenderse en el contexto de que con el Profam, el CNM ha accedido a menos del 5% de los gobiernos locales, solamente. 9. Assessment of Risk to Development Outcome Si bien los resultados han sido altamente positivos el PROFAM no ha impuesto metodologías en la formulación de políticas sociales. Las metodologías desarrolladas por el programa siguen siendo utilizadas por las ONGS y los gobiernos locales que fueron beneficiados con los proyectos PROFAM Es necesario destacar que las palabras de la Dra. Kirchner tienen que ver con la orientación de la política social que traza el GOA. Por lo tanto, no debe entenderse que es el Ministerio de Desarrollo Social quien aprende del PROFAM, sino que el PROFAM sigue los lineamientos de la política nacional. El CNM a través de sus actividades permanentes tanto a nivel central como en las provincias mantiene un vínculo estrecho con ongs y gobiernos locales. De modo, que se sigue con la política en materia de genero, con financiamiento del presupuesto nacional. Actualmente, el CNM ha duplicado su presupuesto y obtenido, por primera vez presupuesto para la transferencia de recursos a Areas Mujer Provinciales y Universidades, que permitirá el fortalecimiento a través del Plan de Acción Nacional para Erradicar la Violencia de Género, la Promoción del Microcrédito, y la 50 campaña nacional de difusión de la CEDAW, una incorporación de las organizaciones participantes del Profam en las políticas de equidad que pone en marcha el gobierno nacional. (b) Quality of Supervision (including of fiduciary and safeguards policies) La relación con el banco atravesó momentos de dificultades a pesar de que en el informe aparece como óptima. En primer lugar, tuvimos serias dificultades para que la task manager de oficina nacional entendiera que el GOA quisiera revisar algunos procedimientos que trababan la ejecución del mismo en año 2004 y alinear el desarrollo del proegrama a las políticas nacionales de promoción universal de derechos. En segundo lugar, fue muy difícil que el banco a través de sus task manager comprendiera que la crisis del 2001 había cambiado el contexto. En tercer lugar, las modificaciones introducidas en el manual operativo y la modificación de la matriz que se propicio desde el GOA en 2004, fueron el resultado de negociaciones con el banco de alta complejidad y muy extensas, que pusieron en riesgo el éxito de la segunda convocatoria por la demora del banco en autorizar la reasignación de fondos para aumentar aquellos destinados a financiar subproyectos. Finalmente hasta el 2005 ­el momento más critico- en cuanto a la composición de la UEN el banco se mantuvo inflexible y autorizó que la misma funcionara con 13 personas para manejar 242 sub-proyectos en todo el país. No siempre la comunicación fue fluida, recién luego de una misión realizada en agosto del 2004, en la que se fijaron acuerdos de funcionamiento entre el GOA y el Banco. Por otro lado, no es real que haya habido muchos interlocutores. Los cambios de gestión desde la firma del préstamo fueron los que se produjeron con los cambios de gobierno. En referencia al punto 10.2 b) Implementing Agency or Agencies Performance Es a partir del 2004 y no del 2005 que el CNM proporcionó asistencia técnica y ayuda administrativa para el desempeño de los subproyectos. Esto, a pesar la inflexibilidad del banco para autorizar ampliar la unidad ejecutora. 51 Annex 11. Comments of Cofinanciers and Other Partners/Stakeholders Not applicable. 52 Annex 12. List of Supporting Documents Bonder, G. and Rosenfeld, M. (2004): Equidad de Género en Argentina. Datos, Problemáticas y Orientaciones para la Acción. PNUD-Argentina. Consejo Nacional de la Mujer (2006): Evaluación del Proyecto PROFAM. Mimeo. Correia, María (1999) Las Relaciones de Género en la Argentina. Un Panorama Sectorial. Región de América Latina y el Caribe. Banco Mundial, World Bank (2000) Argentina: Poor People in a Rich Country, (In Two Volumes) Volume 1: A Poverty Report for Argentina. Report No 19992-AR. Washington DC World Bank (2002) Argentina: Together We Stand, Divided We Fall. Levels and Determinants of Social Capital in Argentina. Report N0 2481-AR. Washington DC CNM Project Files: Subprojects Reports, Technical Reports and SubProject Evaluation Documents, 2003-2006. Supervision and MTR Aid Memoirs and PSR/ISR 2002-2006. Project Audit Reports, 2003-2006. Project Files: Annual Reports. 53