49220 GUIDANCENOTE ONBANK MULTI-STAKEHOLDER ENGAGEMENT June 2009 FOREWORD With the adoption of the Bank's Governance and Anti-Corruption Strategy in 2007, Management in discussion with the Board of Executive Directors sent a clear signal for the Bank to scale-up its engagement with actors outside of the executive. This commitment flows from an increasing recognition that engagement with a broad range of stakeholders is essential both to ensuring improvedgovernance and anti-corruption and to achieving the Bank's broader mission of sustainable and inclusive development. The Bank's work on multi-stakeholder engagement has increasingly become a matter of regular practice and, in various cases, has been a source of innovative solutions to country needs and development challenges. In this light, the guidance in this Note taps into the growing body of good practice and lessons learned in relation to multi- stakeholder engagement. A specific focus is placed on areas of engagement which might be less familiar to staff, such as for instance with the media sector, parliaments and civil society organizations. We hope that this Guidance Note will encourage staff to build on existing experiences and continue, as inthe past, to engage in a productive and balanced manner with a broad range of stakeholders, while ensuring the flexibility needed to address different country circumstances. Anne-Marie Leroy Senior VicePresident & General Counsel,Legal Marwan Muasher Senior VicePresident, External Afsairs Sanjay Pradhan VicePresident, World Bank Institute Katherine Sierra VicePresident & Head of Network, SustainableDevelopmentNetwork June 2009 i ACKNOWLEDGEMENTS This Note was developed by a Working Group led by LEG, involving members from EXT, LEG, SDN, and WBI. The Working Group comprised: Hassane Cisse, Frank Fariello, Adrian Di Giovanni (LEGOP), EdithWilson, Jeff Thindwa, Adesinola Michael Odugbemi (EXT), Robert Chase, Serdar Yilmaz (SDV), Kreszentia Duer, Mark Nelson, Marcos Mendiburu, Maria Gonzalez de Asis (WBI), Sahr Kpundeh (AFTPR), Gareth Locksley (CITPO), Brian Levy and Anupama Dokeniya (PRMPR), with LEGOP coordinatingthe drafting. The Note draws on the work of staff from across the Bank who have contributed to the Bank's work on multi-stakeholder engagement over the past several years. The following staff provided ideas and/or commented on drafts: John Garrison (EXT), Craig Hammer, Mary McNeil, Mitchell O'Brien, Rick Stapenhurst (WBI), Zoe Kolovou, Charles di Leva, Siobhan McInerney-Lankford (LEG), Stephen Ndgewa (AFTPR), and Doris Voorbraak (PRMPR). .. 11 ABBREVIATIONSAND ACRONYMS CAS Country Assistance Strategy CDD Community-DrivenDevelopment cso Civil Society Organization GAC Governance and Anti-Corruption GAC Strategy World Bank Group's 2007 Strategy on Governance and Anti-Corruption IBRD International Bank of Reconstruction and Development IDA International DevelopmentAssociation IFC International Finance Corporation LICUS Low-Income Countries Under Stress MICA Multilateral Investment Guarantee Agency NGO Non-Governmental Organization OPS OperationalPolicies PRS PovertyReduction Strategy PRSP Poverty Reduction Strategy Paper WBG World Bank Group WBI World Bank Institute ... 111 GUIDANCENOTEONBANKMULTI-STAKEHOLDER ENGAGEMENT TABLEOFCONTENTS IINTRODUCTION . ................................................................................................................ 1 II.MANDATE ISSUES INRELATION TO MULTI-STAKEHOLDERENGAGEMENT3 ................ A. 3 B. Multi-stakeholder Engagementandthe GAC Strategy .......................................... Legal and Policy Considerations andMulti-stakeholder Engagement...................4 111 GOODPRACTICE INMULTI-STAKEHOLDER ENGAGEMENT . .................................... 11 A. Media Sector......................................................................................................... 11 B. Civil Society Organizations.................................................................................. 15 C. Parliaments............................................................................................................ 20 ANNEXI .......................................................................................................................... 22 ANNEX I1 ........................................................................................................................ 23 BOXES Box 2.World Bank Group Global Policy Consultations................................................. Box 1.Three Country Assistance Strategieswith a Strong GovernanceFocus..............4 6 Box 3. Helping Ghana to Diversify Its BroadcastingSector to Promote Civic Engagement........................................................................................................ 13 Box 5. Involving CSOs inCASs and DevelopmentPolicy Loans ................................ Box 4. Developing Community Radio within Community Driven Development ........ 15 17 Box 6. CSO Participationinthe Project Cycle.............................................................. 18 Box 7.Bank CSO Capacity Building Programs............................................................ 19 Box 8. Examples of Bank Engagementwith ParliamentsandDevelopment Results ...20 iv I.INTRODUCTION 1. This note provides guidance to staff on good practice and mandate issues in relation to the Bank's' work on multi-stakeholder engagement. The note was prepared in ` support of the Implementation Planfor Strengthening WorldBank Group Engagement on Governance and Anticorruption, which calls for "guidance to staff on demand-side good practice and mandate issues vis-8-vis civil society engagement."2 2. The Bank's 2007 Report on Governance and Anticorruption ("GAC Strateg~")~ envisages building on existing experience and systematically scaling-up multi- stakeholder engagement inthe Bank's operational work, in a manner consistent with the Bank's legal framework and in consultation with governments. In particular, the GAC Strategy provides that: [i]nkeeping with existing practice, as part of the overall framework of cooperationwith its members, in undertaking multi-stakeholder engagement, the WBG will, in consultation with government, make sure to work within the country's constitutional and legislative framework, seek the approval of government where it is required by its operational policies and procedures, and avoid engagements that are not consistent with the Articles framework. Working with the government as its principal counterpart in accordance with these parameters, the WBG will scale up existing good practice in working with a broadrangeof stakeholders inclose collaborationwith other development partners, respectinga division of labor among donors basedon expertiseand mandate.4 The stakeholders in question include a broad range of actors, such as community members, the private sector, parliaments, the media, and civil ~ociety.~Activities would 1 Inthis paper, unless expressly indicated to the contrary or the context requires otherwise, referencesto "the Bank" or the "World Bank" include bothIBRD and IDA; the "Board" denotes the Executive Directors of IDA and IBRD; "borrower" includes a borrower under an IBRDloan and a recipient of an IDA credit or grant; "Articles" means both IDA and IBRD's Articles of Agreement; "lending" includes making an IBRD loan, an IDA credit, or an IDA grant; "loans" include IBRD loans and IDA credits and grants; "loan agreement" includes an agreement between the Bank and the borrower providing for an IBRDloan as well as an agreement for IDA financing (through a credit or grant); "trust fund" means a financing arrangement set up with contributions from one or more donors and, in some cases, from the World Bank Group. Note, further, although the GAC Strategy, infra note 3 refers to the World Bank Group (which encompasses e.g. IFC and MIGA), the discussion here, unless otherwise expressly indicated, is restricted to IDA and IBRD. Further, the discussion applies, unless expressly indicated otherwise, to the use of Bank trust funds. Implementation Plan for Strengthening World Bank Group Engagement on Governance and Anticorruption, Operations Policy and Country Services, September 28, 2007 ("GAC Implementation Plan") at p. 15. See Report on Strengthening Bank Group Engagement in Governance and Anticorruption (R2007- 0036/2; March21, 2007) ("GAC Strategy"). Rid.at paragraph34. Civil Society is a broad-based sector which includes NGOs, labor unions, community groups, faith- basedorganizations, professional associations, and foundations. For more detail see, Issues and Optionsfor Improving Engagement Between the World Bank and Civil Society Organizations (World Bank: Washington, DC, 2005) ("Issues and Options Paper") at paragraph6. 1 target participatory prioritization of development policies and public spending; strengthening transparency and oversight over the use of budgetary resources; user participation and oversight in service provision; strengthening participatory local governance; strengthening other formal oversight and check and balance institutions; and strengthening the enabling environment for civil society and media to operate effectively. 3. The Bank has developed a body of existing experience in engaging with a broad range of stakeholders. This work has increasingly become a matter of regular practice and, in various cases, has been a source of innovative solutions to country needs and development challenges. This Note is intendedto provide guidance to staff to help them build on existing experiences and continue, as in the past, to engage in a productive and balanced manner with a broad range of stakeholders, and with the flexibility needed to address different country circumstances. 4. The Bank's legal and policy framework already outlines modalities for multi- stakeholder engagement in a manner consistent with the Bank's Articles of Agreement. These modalities seek to balance, on the one hand, the value of multi-stakeholder engagement in improving both development outcomes and the Bank's work, with the need, on the other hand, to respect the various limits set-out inthe Articles6 and the role ascribed to member countries, by the operational structure of the Bank, as the Bank's principal working counterparts. The multi-stakeholder engagement proposed under the GAC Strategy for the Bank strikes this same balance and is ingeneral consistent with the Bank's Articles of Agreement and other relevant policy requirements. 5. Part I1 of this Note discusses the applicable legal and policy considerations in more detail. Part I11provides guidance on good practice for ensuring the effectiveness of Bank interventions and that they are performed in a manner consistent with the Bank's mandate, with a particular focus on working with media, parliament and civil society. These include the limitationon interference on a member's political affairs and on basing decisions on a member's political character or on non-economic considerations. See paragraph 12 below for more detail. 2 II.MANDATE INRELATIONTOMULTI-STAKEHOLDER ISSUES ENGAGEMENT A. Multi-stakeholderEngagementand the GAC Strategy 6. GAC Strategy Proposed Scaling-up of Multi-stakeholder Engagement. The GAC Strategy argues that gains can be made in the Bank's work through multi- stakeholder engagement, in particular, with actors outside o f the executive branch o f g~vernment.~Multi-stakeholder initiatives cover a broad spectrum o f activities, in which the Bank i s already involved to varying degrees. As the GAC Strategy notes, the Bank has become increasingly involved with civil society groups over the past decade, and "Bank capacity and sophistication in this work have expanded dramatically."' The Strategy envisages building on this experience and systematically scaling up multi- stakeholder engagement in the Bank's operational work, in a manner consistent with the Bank's legal framework and in consultation with government^.^ The existing areas highlighted by the GAC Strategy for scaling-up, where the Bank i s already engaged with a broad range o f stakeholders, are as follows: (i) Participatory prioritization of policies and public spending, which would include facilitation of PRS consultative processes and participatory national and local budgeting, which would include development policy lending operations; (ii)would Strengthening transparency and oversight over the use of budgetary resources, which include supporting initiatives involving Supreme Audit Institution capacity, parliamentary committees, civil society monitoring of procurement, participatory public expenditure reviews and expenditure tracking studies; (iii)User participation and oversight in service provision, which would include supporting initiatives aimed at strengthening capacity of user groups and service delivery scorecards; 7 See e.g. GAC Strategy, supra note 3 at paragraphs 32 and 33 on the importance of multi-stakeholder engagement and at Annex H: Summary of Feedback From Global Consultations, paragraph 8: "8. There was widespread support from both developing and donor country audiences for the Bank Group to step up its engagement in support of the good governance and anticorruption efforts by major actors outside the executive branch of government, including civil society, parliamentarians, judiciary, the media, and the private sector, and to do so incoordination with other donors. The Bank was strongly urged to engage with countries in ways that would promote greater public participation in policymaking and oversight and participatory local governance, and to strengthen the enabling environment for civil society and media to operate effectively, including efforts to promote greater access to information and institutional capacity; parliamentary oversight and judicial performance. Many stakeholders suggested that the Bank expand its existing work inCDD, participatory budgeting and other social accountability programs." (Note that the language here refers to the World Bank Group as a whole, but for the purposes of this discussion i s cited only with referenceto IBRDand IDA.) * Ibid., at paragraph 33. More recently, the Accra Agenda for Action (3rd High Level Forum on Aid Effectiveness, 4 September 2008) includes a commitment for donors to increase support for multi- stakeholder engagement, at paragraph 13(b): "Donors will support efforts to increase the capacity of all development actors-parliaments, central and local governments, CSOs, research institutes, media and the private sector-to take an active role in dialogue on development policy and on the role of aid in contributing to countries' development objectives." ' GAC Strategy, supra note 3, at paragraph 34. 3 Strengthening participatory local governance, which would include supporting initiatives involving local government capacity, including in participatory processes and the facilitation of community-based decision-making on local public infrastructure priorities; Strengthening other formal oversight institutions, which would cover judicial & public defenders capacity, ombudsmen, regulatory bodies, and parliamentary capacity development; and Other actions, including media capacity development and other civil society capacity development.lo The GAC Strategy also highlights a number o f cases where multi-stakeholder engagement has featured inthe preparation and implementation of CASs. (See box 1.) Box 1.Three Country Assistance Strategies with a Strong Governance Focus" ia (9'03) is an early example of a CAS that featured to reducingpoverty; ais e response to the damage d ' s reputation in the 1990s by to a government that was highly corrupt. Two other n governance-but in a di Indonesia-are Bangladesh e all three CASs address gove entral challenge for poverty roaches underscore that "no one size when it comes to governance a strong emphasis on en local governments and countability, and better y-reducing services, and ership for Governance Reform that involves civil society, donors, and ighlights the use of business environment surveys as a way of ation. The Bangladesh CAS suggests interventions ranging from of information. egy (Report No. 271OX-IND),Bangladesh CountryAssistance Stratqg oi~ntiyAssistance Strategy (ReportNo 34329-AL) for more details. B. Legal and Policy Considerations and Multi-stakeholder Engagement 7. Bank's Purposes. All of the decisions of the Bank must be guided by its purposes.l2 contribution of multi-stakeholder engagement to improving development The outcomes across a range of development objectives i s increasingly recognized. There i s increasingly strong evidence of the importance of engaging with and strengthening a lo Adapted from GAC Strategy, supra note 3 at pp. 19-20. For more detail, please see Annex 11, which provides past examplesof Bank multi-stakeholder engagement. Adapted from GAC Strategy, supra note 3, p. 14,Box 5. l2Article Iof IDA'SArticles declares that the Association's purposes are to promote economic development, increase productivity, and raise standards of living in less developed areas within the Association's membership. According to Article Iof B R D ' s Articles, those purposes are, among other things, to: assist in the reconstruction and development of territories of members by facilitating the investment of capital for productive purposes, including the restoration of economies destroyed or disrupted by war, the reconversion of productive facilities to peacetimeneeds and the encouragement of the development of productive facilities and resources in less developed countries. See also, Memorandum from the Vice President and General Counsel, Authorized Purposes of Loans Made or Guaranteed by the Bank,SecM-88-517 (May 10, 1988). 4 broad array of stakeholders and improving principles such as participation, empowerment, transparency and accountability. l3 Inrelationto the GAC Strategy, multi- stakeholder engagement can be situated within the larger context of GAC-related activities. As a general matter, the links between issues of governance and anti-corruption and the Bank's purposes have become increasingly apparent as a result of the Bank's growing engagement and body of work on GAC issues. 8. Inthe Bank's experience with projects and policy dialogue, poor governance and corruption have been shown to undermine efforts to reduce poverty and achieve sustainable and inclusive development. There is a growing consensus within the Bank, and the development community as a whole, that increased work on GAC issues can significantly improve development effectiveness. As the GAC Strategy states: Poverty reduction is the main mission of the Bank's work. With much evidence demonstrating the link between governance and poverty reduction, and between corruption, governance, andaid effectiveness, [...] strengtheninggovernance and fighting corruption are key to achievingthis mission.14 As a general matter, therefore, the GAC Strategy has been found to fall clearly within the Bank's mandate.15 Indeed, the Bank, with the concurrence of its governing bodies, has pursued work on issues of governance and anti-corruptionfor over ten years. 9. The added value of multi-stakeholder engagement as part of the overall efforts to improve governance and fight corruption i s also increasingly recognized. As the GAC Strategy further states: Gains in transparency, participation, and accountability support the objective of poverty reduction. Engagedlocal communities, a vibrant civil society, and a transparent flow of information (including well-functioning, capable and open media) support poverty reduction by helping to hold governments accountable for delivering better services, creatingjobs, and improving livingstandards.16 To be clear, the contributions of multi-stakeholder engagement extend beyond the GAC context, and the benefits apply to the Bank's work more generally. The Bank's own earlier good practice has recognized that civil society organizations "can make important l3 See e.g. World Development Report 2000/1: Attacking Poverty (OW: New York, 2001) at Chapter 5 "Expanding Poor People`s Assets and Attacking Inequalities." For more recent views see e.g., World Development Report 2004: Making Services Workfor Poor People (New York: Oxford University Press, ~ 2005) and World Development Report 2006: Equity and Development (New York: Oxford University Press, 2005). Daniel Kaufmann, "Human Rights, Governance and DevelopmentAn empirical perspective," Development Outreach (World Bank: October 2002). l4 GAC Strategy, supra note 3 at paragraph 6. l5 Furthermore, a number of proposals in the GAC Strategy are aimed at strengthening the Bank's fiduciary and other arrangements for the purpose of avoiding corruption inBank financed projects. See e.g., Part I11 of the GAC Strategy ("Addressing Corruption in Bank Group Operations") and Annex C ("Addressing Corruption in Bank Group Projects"). Such proposals further find specific support in the Articles, which oblige the Bank to make adequate arrangementsto ensurethe proper use of Bank financing. Article 111, Section 5(b). See also, paragraph 4 of the GAC Strategy, supra note 3. l6 Ibid., at paragraph 32. 5 contributions toward ensuring that the views of local people are taken into account, promoting community participation, extending project reach to the poorest, and introducing flexible and innovative appro ache^."'^ 10. More recently, the Accra Agenda for Action of the Third High Level Forum on Aid Effectiveness affirmed a commitment to deepen engagement with CSOs "as independent development actors in their own right whose efforts complement those of governments and the private sector."'* The Bank also recognizes in its Policy on Disclosure of Information that "timely dissemination of information to local groups affected by the projects and programs supported by the Bank, including nongovernmental organizations i s essential for the effective implementation and sustainability of projects". l9At the global level, the Bank frequently undertakes public consultations with a broad range of external stakeholders to garner feedback on, and prior in the process of developing, proposed Bank strategies and policies on existing and emerging development issues. (Box 2 provides a number of examples.) Box2. World BankGroup GlobalPolicy Consultations years, the WAG has condu , a series of multi-stakeholder gl tegies. The goal has b key stakeholders aro staff inhow to carry out high quality, customized global consultations, and how to sequence such processes. Attention is being given to how to manage such dialogues efficiently but also effectively given the limited time and resourcesof both staff andexternal stakeholders. 11. The bases under the Bank's mandate for multi-stakeholder engagement are thus generally strong. The goal of scaling-up of such engagement, as outlined in the GAC Strategy and Implementation Plan, i s to increase development effectiveness. This goal reflects the growing presumption that the involvement of a wide-range of stakeholders can enhance the Bank's work at all stages and, inturn, that individual interventions will serve the Bank's mandate. 12. Avoidance of Political Interference. All decisions and activities undertaken in furtherance of the Bank's purposes and its development mandate must be consistent with the other provisions in the Articles. Prominent among these provisions is the "political l7 GP 14.70, Involving Nongovernmental Organizations in Bank-Supported Activities (July 1998) at paragraph 1. While such statements are not regarded as reflecting official Bank policy, they contain informationthat is usefulto Bank staff incarrying out policies and procedures. '' Accra Agendafor Action, supra note 8 at paragraph 20 l9 The WorldBank Policy on Disclosure of Information, (World Bank: January 1,2002), at paragraph 3. 6 prohibition" which means that the Bank must avoid becoming entangled in partisan or ideological disputes, whether real or perceived, and must not be influenced in its decisions by the "political character" of a member country.20 The existing requirements in the Bank's OPs and policy framework balance the importance of multi-stakeholder engagement in improving both development outcomes and the Bank's work in a number of contexts, against the need to avoid political interference, including through consultation with the borrower, as the Bank's principal counterpart. OP 2.30 on Development Cooperation and Conflict requires the approval of a member for Bank involvement inthe territory of the member.21Incertain contexts, the Bank requires, under its safeguard policies, that the borrower consult with actors outside of the executive, particularly with project-affected groups.22 13. OP 8.60 on DevelopmentPolicy Lending calls uponthe Bank to advise borrowing countries to consult with, and engage the participation of, key stakeholders inthe country informulating the country's development strategies. Inaddition, OP 8.60 recognizes that it falls on the country in question to determine "in the context of its constitutional and legislative framework" the form and extent of consultations and participation in preparing, implementing, and monitoring and evaluating" a development policy operation.23 This language is relevant to the GAC Strategy because it states in a similar manner that, in undertaking multi-stakeholder engagement, the Bank will work within a 2o The prohibition encompasses two separate, but inter-related, requirements. First, the Bank and its officers must not interfere in the "political affairs" of a member country and, second, they must not be influenced in their decisions by the "political character" of a member country or non-economic considerations. See IBRD, Articles of Agreement, Article IV, Section 10 and IDA Articles of Agreement, Article V, Section 6. 21 OP 2.30, Development Cooperation and Conflict (January 2001) at paragraph 3(a). 22 For instance, OP 4.01 on Environmental Assessment requires, for Category A and B projects, that the borrower consult project-affected groups and local nongovernmental organizations. Similarly under OP 4.10 on Zndigenous Peoples the Bank requires the borrower to engage in a process of, "free, prior and informed consultation." The Bank only provides project financing where free, prior and informed consultation results inbroad community support to the project by the affected Indigenous Peoples. OP 4.12 on Involuntary Resettlement states that displaced persons should be "meaningfully consulted" and should have opportunities to participate in planning and implementing resettlement programs. Other safeguard policies provide for consultation or participation including: OP 4.04 Natural Habitats, 4.09 Pest Management, OP 4.11Physical Cultural Resources, and OP4.36 Forests. With respect to participation and consultation requirements in the preparation of environmental assessments, former General Counsel IbrahimShihata previously noted the following: "Such participation and consultation, to be useful at all, require a reasonable measure of free expression and assembly. The Bank would, in m y view, be acting within proper limits if it asked that this freedom be insured when needed for the above purposes. Its denial of lending for a given project in the absence o f this requirement where it applies cannot be reasonably described as an illegitimate interference in the political affairs of the country concerned, just because the rights to free expression and assembly in general are normally listed among political rights." I.Shihata, Prohibition of Political Activities in the Bank's Work (July 12, 1995) at 12-3. Reference can also be made to the Bank's Procedures (BPs), e.g. BP 2.11 at paragraph 7 which requires the Bank to seek "the government's prior agreement to hold consultations (through workshops, roundtables, etc.) on the proposed CAS with nongovernmental stakeholders, such as community-based organizations and the private sector." 23 OP 8.60 at paragraph 6. According to OP 8.60, key stakeholders include social groups directly affected by policy-based operations, as well as public sector, private sector, and donor organizations relevant to those operations. See OP 8.60 at footnote 5. 7 member's constitutional and legislative framework. In this sense, the existing good practice on this point for OP 8.60 is applicable to multi-stakeholder engagement, namely, that "[iln all cases, it i s desirable to conduct some analytic work and, if necessary, focused consultation to assess the conditions for participation in a particular country. A sound stakeholder analysis is the key instrument to assess the capacity and the potential of different actors to contribute to the effectiveness and sustainability of policy design and implernentati~n."~~ 14. Accordingly, to avoid the risk of political interference risk, when working with a broad range of stakeholders outside of the executive, Bank staff should take appropriate measures inproject design and implementation, which may include the following: 1. As with all Bank interventions, the audience, focus and boundary of the activity need to be clearly demarcated and tied to a development objective from the outset. 2. Broadly, Bank staff should ensure that the activities it supports enjoy country ownership. Ideally, Bank supported activities would be supported and/or implemented by coalitions including government, the private sector and civil society, and enjoy a consensus among political actors inthe relevant country.25 3. The Bank should assess the risk of political entanglement real or perceived and take measures to avoid this risk through appropriate design, including appropriate mechanisms to ensure that the project is implemented in a neutral, non-partisan fashion. (Additional guidance on mechanisms for ensuring neutral, non-partisan implementation is provided Part I11 below.) In presenting proposed country strategies and interventions to Executive Directors, staff may consider providin this assessmentanddetailingthe design features aimed at mitigatingthese risks. 2 4. Inthe same vein, the Bank needs to take care where it attempts to harmonize its activities with other donors. In particular, consistent with the recent legal guidance provided on the Bank's involvement in peace and security matters, to avoid political interference, "the Bank must exercise care to ensure that it does not endorse, nor i s seen as endorsing, controversial program components or activities, those that pose a reputational risk, or those that are inconsistent with the political prohibition. Moreover, the Bank should clearly specify that its focus is on those areas that are within its legal authority to address. [...] Care should also be taken 24 Participation in Development Policy Operations: Good Practice Note for Development Policy Lending, Operations Policy and Country Services (World Bank: October 2004) at p. 8. This note further outlines different scenarios illustrating the relationship between enabling factors and possible forms o f participation, notably, where: the country has a culture of public debate and legal and other institutional arrangements for representation; the country has no culture o f public debate and no legal and other institutional arrangements for representation; fragile channels o f representation do not fully represent the views o f different stakeholders; and deep conflict and political stress prevail. 25 The GAC Strategy, supra note 3 at paragraph 16 lists lessons learned which verify such an approach. 26 Also relevant are Bank procedures on communications between the Bank's Executive Directors and staff. See e.g. BP 17.30- Communications with Individual ExecutiveDirectors (October 1999). 8 by Bank staff to avoid the perception that it is encouraging other donors to take particular positions on matters that are outside the Bank's mandate."27 5. Dialogue with government on engagement in this area should be guided by the Country Director and anchored inthe existing country program. 15. More generally, in assessing the degree of risk, the Bank should examine all relevant factors, including the overall country context, the nature of the particular activities to be supported, and the nature of the actors with which it proposes to engage, including their relationship with the government.28Inthis regard, the Bank should avoid activities that are inherently linked to partisan politics, such as support for the electoral process, and engagement with entities or groups with partisan associations. 16. Application of Legal Considerations in Specific Situations. It is possible to identify three broadcategories of activities where these legal considerations would apply: A. The first category would include well-established activities such as the practice of including civil society and other stakeholders by the Bank in the design of CASs and by the government in the design of PRS exercises; consultations in the context of developing environmental assessments, resettlement instruments and indigenous peoples' plans; consultations on sector strategies; global public consultations and policy dialogues on existing and emerging development issues; and participation, oversight and transparency processes built into Bank financed projects, such as community driven development projects and financing of service delivery. For these types of activities, a sensitivity to the political prohibitions and normal due diligence in line with the relevant OPs would be sufficient in most cases to steer the Bank clear of political interference. B. The second category would include activities which, because of the high inherent risk of political interference, are likely to raise Articles issues. These activities include political governance, for instance, support of efforts to help organize political parties, or to the organization, running and monitoring of A. Palacio, Legal Opinion on Peace-Building, Security, and Relief Issues under the Bank's Policy Framework for Rapid Response to Crises and Emergencies (March 22, 2007) at paragraph 19; available as an Annex to Toward a New Framework for Rapid Bank Response to Crises and Emergencies, Operations Policy and Country Services (World Bank: January 12,2007 (revised March 2007)). 28 Indeed, the Articles implicitly require the Bank to have a good understanding o f the political governance and of the political economy o f the country in which it provides support. This requirement is derived from the Bank's affirmative obligations under the Articles to study the merits of each operation carefully (IBRDArticles o f Agreement, Article 111,Section 4(iii)), to act prudently, when making a loan, in the best interests o f the country and the members of the Bank as a whole (id., Article 111,Section 4 (v)), and to make arrangements to ensure that the proceeds o f its loans are used for the purposes for which the loan was granted (id., Article 111,Section 5(b)). 9 elections. We note that the GAC Strategy specifically excludes Bank support for such activitie~.~' C. The third category would include areas where the GAC Strategy envisages scaling-up Bank involvement and where the legal and other risks can be managed with the appropriate care. These include support for media sector development, strengthening the institutional capacity of civil society groups and work with parliaments. Part I11of this Note provides detailed advice on good practice, to assist the Bank's efforts in scaling-up involvement in those areas, in a manner consistent with the Bank's Articles' framework. 29GAC Strategy, supra note 3 at paragraph 51 and Annex B ("Country Efforts: Entry Points for Governanceand Anticorruption Reform"), paragraph 2. 10 III.GOODPRACTICEINMULTI-STAKEHOLDER ENGAGEMENT 17. The Bank has developed a body of existing experience in working with civil society organizations, parliaments and media. For instance, the Bank's capacity-building programs for parliament, media and CSOs have provided advice and training of a non- partisan and technical nature, involving a broadrange of actors, in internationalfora. The Bank has also provided support to CSOs, parliaments and media inthe context of projects aimed at promoting public sector and institutional reform, water and sanitation, gender, and the delivery of basic service^.^' 18. The following guidance on good practice is provided to help Bank staff as the Bank scales up and broadens the scope of its work in areas such as media, civil society and parliaments, as called for in the GAC Strategy. The guidance reflects past practices which have enabled Bank staff to engage with a range of stakeholders in a balanced and productivemanner and which, invarious cases, has been a source of innovative solutions to country needs and development challenges. Inthis vein, the guidance reflects the need for flexibility to address different country circumstances. It should be noted further that this guidance is not restricted simply to GAC work, and seeks to enhance the Bank's support for media sector development, civil society engagement, and parliamentary effectiveness, to improve governance and broader development effectiveness, in a range of situations. Since this guidance cannot anticipate every case of possible intervention, in cases not foreseen here, or if there is doubt, staff should refer to Annex Iand consult with the contacts listedthere. A. Media Sector 19. Introduction. In calling for scaling-up efforts to promote transparency and accountability, the GAC Strategy highlightsthe importance of enabling "the development of independent and competitive media that can investigate, monitor and provide feedback on government performance, including ~orruption."~~ As a sector, the media comprises 30 Examples of past Bank interventions inrelation to media, parliaments and civil society can be found in Annex I1below. In addition to those examples, there is also in Timor-Leste a 12-week training program funded by the World Bank-administered Norwegian Trust Fund for Mainstreaming Gender ( G E m D ) between January - April 2007, targeted at women journalists working with community radios in 10 different districts and the WBI's Afiliated Networks for Social Accountability in Africa and Asia, which build capacity among CSOs for holding governments accountable. 31 GAC Strategy, supra note 3 at pp. 20-1, paragraph 32. See also Annex B, at pp. 52-3. The importance of media to efforts to promote governance and anti-corruption are further stated in these terms at p. 18, paragraph 31: "A key cross-cutting priority that has increasingly been emphasized in Bank work over the past decade.. . is to enhance development effectiveness by helping states become more transparent, including by facilitating greater participation and oversight by civic organizations and the media. Citizens and media that have broad access to information on the operation of state institutions are crucial for fostering accountability. Such access may include publication of budget and procurement data, access to state records and reports, and the state's active dissemination o f information on its operations and performance including through e-government. Citizens and media can also promote accountability and 11 different types of media or subsectors, such as print-media, radio and television broadcasting and newer technologies such as internet-based media. Inaddition, a general typology of ownership of media can be distinguished, which i s particularly salient inthe broadcasting sector, and includes government-owned media, commercial private media, public service media and community nonprofit media such as community-based radio.32 20. Inthis context, goodpractice indealing with mediacanbebrokeninto two stages. The first involves diagnostic work to assess country conditions and, in particular, to determine whether in light of the country context and country relationship it would be productive to engage insupporting development of the media sector. This assessment in turnwill have abearing on the second stage, which involves managingpotential political and reputational risks of media work and promoting good practice inmedia development, through specific types of activities the Bank may choose to support or undertake in a given country context. 21. Assessing the Context for Potential Support. Whether and how the Bank can effectively support media policy and sector development in a particular country depends on the Bank's country relationship and must be tailored to the country setting. Support that contributes to the functioning of media should be considered as a part of broader efforts in the country assistance program to improve governance, transparency, accountability and inclusivity of development. As a practical matter, the prognosis for a productive engagement depends on the government's interest in improving sustainable means for people to access information from diverse sources and without government control, to communicate and articulate issues of concern, and engage with each other and with public officials intransparent fora. 22. Managing Political and Reputational Risks and Promoting Good Practice. This section provides guidance on the specific types of activities that the Bank may choose to undertake or support and that should be considered prominently in media assistance efforts. Guidance i s not provided specifically for internet-based media, as this is an emerging area where practices are rapidly evolving and internationally accepted good practices are less stable. Good practice for the various types of Bank activities are as follows: Analytic Activities: Regular due diligence practices apply, for dealing with government and various stakeholders, but a particular sensitivity is called for when handling dialogue with government and various stakeholders on the results and recommendations arising from analytic studies and for any public greater corporate responsibility in the private sector. In addition, greater transparency can help to enhance the credibility of decision-makers through the public disclosure of their income and assets and promote more ethical behavior by government, private sector, and civil society actors." 32These broad characteristics are discussed in more depth regarding the media sector as a whole and as they exist in broadcasting, in S. Buckley, K. Duer, T. Mendel, S. 0 Siochrb, Broadcasting, Voice and Accountability: A Public Interest Approach to Policy, Law and Regulation, (World Bank: 2008) (Broadcasting, Voice and Accountability). 12 dissemination of such results. Such dialogue should be undertaken by experienced staff. Technical AssistanceKapacity Development of Members of the Media: When dealing with specific members of the media, e.g., through capacity building and training seminars, attention should be paid to ensuring that support i s provided on a non-partisan basis, is open to members of the sector or a sub-sector as a whole, and does not favor particular political forces or groups within the sector, either by design or in practice. Again, when dealing with higher risk contexts, contacts should be made by experienced staff. Insuch cases, additional measures may also be required, which should be clearly identified and reported, to overcome any obstacles that members of the targeted sector or subsector may face inbeing able to participate inthe activities. Lendingmon-Lending Assistance to Improve Media Sector or Enabling Environment: Support to improve the media and its enabling environment will generally promote the legal and regulatory environment for media and the development of diverse ownership models including independent public service and community non-profit media as well as privately owned media. (An example appears inbox 3.) Box 3. Helping Ghana to Diversify Its Broadcasting Sector to Promote Civic Engagement consensus-building, g sector, to enhance office and project e and supported consultations and bridge- level government officials. These efforts io Policy, incorporated into the National tur and Enabling Environment which was widely disseminated by Government (2006); and (c) participatory dcidupment of a draff Broadcasting Bill and steps toward n refurmed regulatory pamework (2006-8). In Februar 2009, the President of Ghana announced in his State of the Nation Address that the ne would s of a broadcasting law "to regulate the parameters of broadc country, t's office stated that the new law would open the way for com stations Support to the enabling environment for media should follow similar approaches to those taken by the Bank in supporting Government's efforts in other public sector or institutional reforms. Namely, the assistance should be tied to a clear development objective. As noted inthe GAC strategy, working for a more diverse and independent media sector can be a way to increase government accountability and to benefit the poor by enhancing their participation and dialogue.33Possible 33 "Citizens and media that have broad access to information... are crucial for holding the state to account." GAC Strategy, supra note 3 at Annex A, paragraph 12. "A free media, vibrant civil society, 13 activities reflecting good practice from around the world could include, for instance: Assisting in developing a legal and regulatory framework for broadcasting, which is implemented at arms-length from the government through an independent and transparent regulatory body,34 and which promotes diversity in forms of ownership and purposes (includin public service, commercial private and non-profit community broadcasting);4 5 Assisting in framing of content restrictions to enable media to share information, articulate views and, as the GAC strategy notes, contribute to holding both government officials and private sector actors acco~mtable;~~ Facilitating entry into the vocation of journalism and strengthening media associations and institutions of media training and self-regulation; and Financing the growth and capacity of the non-profit community broadcasting sector, which has particular benefits for poor population^.^^ (Examples appear inbox 4.) engaged local communities and independent citizenry are crucial components for good governance: they have a unique place for holding governments accountable for delivering better services, creating jobs, and improving living standards. Therefore it is important to expand work beyond the state to increase opportunities for participation and oversight by these groups. Ibid., p. 14, paragraph 27. "Entry Points for " GovernanceReform - Civil Society and Media: freedom of press, freedom of information.. ." Ibid., Annex A, p. 26, Figure A2. "More proactive engagementof society is also vital. Countries can achieve this by: ... [elnabling the development of independent and competitive media that can investigate and report on government performance including corruption." Ibid., pp. 20-1, paragraph 32. 34 Additional features o f such a regulatory body would include provisions to ensure that the powers and duties of regulatory officials are clearly set out in law, and that their decisions are based on clear criteria and subject to some form of independent administrative review or appeal, for instance, when making appointments, establishing licensing requirements and awarding licenses to commercial outlets or permission to operate to community non-profit media, or awarding funding. See Broadcasting, Voice and Accountability, supra note 32. 35 For instance, by ensuring that licensing fees for non-profits do not impose barriers to entry; that community non-profit media are owned by and accountable to the community that they seek to serve, and operate for the purpose of delivering social benefit and not for commercial profit; or, in the case of commercial media, that there is diversity inthe provision of broadcasting services. See Broadcasting, Voice andAccountability, ibid. 36 GAC Strategy, supra note 3 at p. 18, paragraph 31. 37 For additional information, as part of the Bank's economic and sector work, S. Buckley, K. Duer, T. Mendel, S. 0 Siochrli have synthesized and documented a broad range of good practices in the policies, laws and regulatory frameworks from diverse countries around the world that enable independent media development, and promote plural and independentbroadcasting, with examples from all regions, as a guide for development practitioners and policy-makers. See, Broadcasting, Voice and Accountability, supra note 32. 14 Box 4. Developing Community Radio within Community DrivenDevelopment ed establish a of nation-buildin community radio stations with support from two CDD Projects. FadamaI1 and III. s Bank Fadama I1 and Panos Ghana Community Radio Network, and particip cing establishment of the community radio stations inseveral states. In all of the above activities, sharing of international good practice^'^ and South-South learning are important tools which Bank staff should use to inform and facilitate country- focused analysis, dialogue and lendinghon-lending assistance. Such sharing of good practices also helps inmanagingpotentialreputational and political risks. B. Civil Society Organizations 23. Existing Guidance on Engaging with CSOs. The Bank has, for some time now, engaged with CSOs in its work and, since as far back has 1998, has had a good practice note GP 14.70 on involving non-governmental organizations and other organizations of civil ~ociety.~'That Note underscored the important contributions that those organizations can make "toward ensuring that the views of local people are taken into account, promoting community participation, extending project reach to the poorest, and introducing flexible and innovative appro ache^."^^ The Bank further outlined the importance of engaging with civil society organizations in its 2005 paper entitled Issues and Options for Improving Engagement Between the World Bank and Civil Society Organizations ("Issues and Options Paper"). This paper was discussed and supported by the Bank's Board of Executive Directors. Building on that paper, the Bank is currently ~ ~~~ 38 Ibid. See also, e.g. RoumeenIslam, Information and Public Choice, From Media Markets to Policy Making (WorldBank: Washington, DC, 2008). 39 GP 14.70, Involving Nongovernmental Organizations in Bank-Supported Activities (July 1998).While such statements are not regarded as reflecting official Bank policy, they contain information that i s useful to Bank staff incarrying out policies and procedures. 40 Ibid. at paragraph 1. Most recently, the Accra Agenda for Action affirmed a commitment to deepen engagement with CSOs "as independent development actors in their own right whose efforts complement those of governments and the private sector." Accra Agendafor Action, supra note 8 at paragraph20. 15 developing a strategic priorities framework for engaging with CSOs. The conclusions and guidance in that strategy will be of broader application than those outlined here. Reference thus should be made to the strategy, for additional guidance on the scope and parameters of the Bank's engagement with civil society. 24. Inthe meantime, the guidance outlined inthe Issues and Options Paper and GP 14.70 remains relevant. Both documents provide a strong presumption for the Bank to engage with civil society organizations, and underscore the contributions of CSOs to poverty reduction and development efforts. These include, for instance, promoting public consensus and local ownership for reforms and for national poverty reduction and development strategies; giving voice to the concerns of primary and secondary stakeholders, particularly poor and marginalized populations; strengthening and leveraging impact of development programs; bringing innovative ideas and solutions to development challenges; providing professional expertise and increasing capacity for effective service delivery; and improving public transparency and accountability of development activitie~.~~ 25. Involving CSOs in Bank Activities. The Issues and Options Paper describes three broad types of interactions for Bank-CSO relations, namely, facilitation, which is where the Bank "provides guidance, or technical or financial assistance to client governments to engage with CSOs in Bank-supported activities"; dialogue and consultation by the Bank "bilaterally with CSOs, with the knowledge and support of member governments"; and partnership with C S O S .GP 14.70, further, encourages Bank engagement with CSOs ~ ~ through information sharing;43 the formulation of policies, strategies, procedures, and major reports; and operational collaboration, in particular throughout the course of the project cycle including design, implementation, and monitoring and e v a l ~ a t i o n(Boxes . ~ ~ 5 and 6 provide examples.) 41 Issues and Options Paper, supra note 5 at paragraph 11; see also GP 14.70 at paragraph 2. 42 Respectively, see Issuesand Options Paper, supra note 5 at paragraphs22-24; 25-27; and 27. 43 See GP 14.70 at paragraph 9. E.g. by encouraging Bank staff to respond to CSO questions andrequests for information in accordance with the disclosure policy (GP 14.70, para. 9); investigate concerns voiced by CSOs regarding projects and applicationof policies, provide timely and substantive responses, and meet with CSOs and affected parties when possible (paragraph 10) and encourage borrower governments to be responsive to local CSO requests and concerns that relate to development policies and programs (para. 19). 44 When CSOs participate in Bank-financed projects, Bank staff should describe anticipated and actual CSO involvement inthe project documentation and set out inthe legal documents any arrangements agreed with the borrower. See GP 14.70 at paragraph 20. 16 Box 5. Involving CSOs inCASs andDevelopment Policy Loans45 ults-Based CAS Consulta nsultations especially in ated statistical indicators and tarians and gender outh Africa office has esotho incollaboration Policy L0uFi.s. Parti olicy loans geared t toring and evaluation of s 1 parts of the Second the Programmatic Social conomic Governance an independent oversight co 26. The Issues and Options Paper and GP 14.70 further both recognize the need to balance the value of dealing with CSOs as actors in the development process, with government ownership in Bank a~tivities.~~this sense, in the context of promoting In good governance, Bank efforts to encourage engagement between government and CSOs can contribute to public accountability and development effectiveness. At the same time, it is important for Bank staff to have an understanding of the nature of the relations between CSOs and the g~vernment.~~On this point, the following guidance from the Issues and Options Paper is relevant: Classification of CSOs is often difficult, given the heterogeneity of institutional interests, organizational dynamics and philosophical perspectives. While an individual CSO may be classified as local, national or transnational, it may operate at more than one of these levels simultaneously. Some CSOs may be involved strictly in service delivery, some incapacity building, and others only inpolicy advocacy or research, but increasingly groups are involved in more than one of these activities at the same time. [...] CSOs also form alliances and coalitions with one another at local, national, and/or transnational levels, both formal and informal. These alliances may shift depending on a specific task, issue or political context. [...] Inaddition, CSOs vary widely with respect to their philosophical and ideological orientations, which may be influenced by faith, historical commitment to public service, politics, the nature of their membership, or by their individual leader^.^' Given the size and diversity of civil society, it may thus not be possible for the Bank to engage with CSOs in every context, for instance, where the risk of political interference i s too high, or where the collaboration envisaged would be inconsistent with the country's 45 Examples selectedand adapted from the WorldBank-Civil Society Engagement: Review of Fiscal Years 2005 and 2006 (World Bank: Washington, DC, 2006). 46 Issues and Options Paper, supra note 5 at paragraph 17. 47 GP 14.70 at paragraph 3. For a more detailed history of GP 14.70 and Bank involvement with NGOs see, I. Shihata, "The World Bank and Non-Governmental Organizations," 25 Cornel1Znt'l L.J. 623 (1992). 48 Issues and Options Paper, supra note 5 at paragraph7 [emphasis inthe original]. 17 constitutional and legislative framework. However, as the Issues and Options Paper notes "these stipulations do not generally pose a constraint on Bank-CSO engagement."49 Box 6. CSO Particbation inthe Project Cvcle?' Involvement of CSOs is increasingly supported thr ces related in such area%as rural ion, access tu information, and In Cameroon, CS eived funding to create entation. This enabled early n and reduced d controversies. hi Croatia, ic social needs of vulnerable 27. GP 14.70provides further guidance for selecting CSO partners, which is intended to ensure that selection is done "according to the specific skills and expertise required for the task at hand as it relates to the development goal being pursued." To that end, GP 14.70lists the following qualities to consider inselecting CSO partners: (a) credibility: acceptability to both stakeholders and government; (b) competence: relevant skills andexperience, proventrack record; (c) local knowledge; (d) representation:community ties, accountabilityto membersheneficiaries, gender sensitivity; (e) governance: sound internalmanagement, transparency, financial accountability, efficiency (f) legalstatus; and (g) institutional capacity: sufficient scale of operations,facilities, and eq~ipment.~~ 28. Promoting Capacity and Enabling Environment for CSOs. In addition to the above guidance on involving selecting CSOs in Bank activities, there i s also existing practice in promoting both the capacity of and an appropriate enabling environment for civil society. When providing capacity-building and training or technical assistance to CSOs, the existing good practice remains applicable. Notable in this context are the Bank's efforts to build capacity within CSOs for implementing specific tools and methodologies that measure government performance (e.g. participatory public expenditure tracking surveys, citizen report cards, social audits and so on), which are 49 Ibid.at paragraph 17. 50 Examplesselectedand adaptedfrom the WorldBank-Civil Society Engagement: Review of Fiscal Years 2005 and 2006 (WorldBank: Washington, DC, 2006). 51 GP 14.70, at paragraph15. 18 increasingly integral to the Bank's lending operations. (Box 7 provides examples.) On the topic of promoting the enabling environment for civil society, the 2005 Issues and Options Paper notes that: An appropriate enabling environment for civic engagement is also key. In addition to a conducive political and economic environment, countries need legal frameworks that build up civil society and create opportunities for CSOs to engage in national development efforts, whether in service delivery, monitoring of public services, advocacy or public education. They should provide for free access to information and facilitate CSO fundraising among other p r i ~ r i t i e s . ~ ~ Good practice in this context would include helping to remove barriers for CSOs to operate and contribute to national development efforts and recommending, for instance, that government regulations regarding CSOs are transparent, clearly prescribed in law and, in their design or application, do not favor any partisan political interest or impose undue barriers to entry. Box 7. Bank CSO Capacity BuildingPrograms r 2007 with the were later implemented inthei m on Governance in HlV/AIDS response at District and Coinmunit), level in Tanzania,and ood GovernanceProgram on the Radio Waves in Burkina Faso,Benin A recent example of a oject aimed at promoting CSO capacity is the cia1 management, and 52 Issues and Options Paper, supra note 5 at paragraph 44. 53 WBI organized and delivered this program incoordination with the Bank's Water and Sanitation Program. More can be learned here http://no.worldbank.ord/0088FRM4IO. 54 A video of the HIV/AIDS program canbe at seen: http://www.voutube.com/watch?v=OHqeEao3tBo. 19 C. Parliaments 29. Introduction. Among the elements required for strengthening accountability, the GAC Strategy highlights capacity in Parliaments as well as fostering an enabling environment in which they can operate responsibly and effectively. Parliaments form a co-equal branch of government and through their legislative, oversight, constituency services and representative functions, are central to service delivery and efforts to reduce poverty inmember countries, as well as efforts to promote transparency and participation, government accountability and public policy development. Parliaments should thus be approached with deference. 30. The Bank has worked with parliaments in the past, for instance, in helping to strengthen response to the PRS process or to understand better the Bank's policies and practices (especially as they relate to projects and programs the government pursues with the Bank). Engagement with parliaments on the PRS process has also helped to promote greater country ownership in the development of PRSPs and programs implemented in connection with them. The Bank has also provided non-partisan, technical capacity- building and training to parliamentarians and parliamentary staff to help fulfill their responsibilities, for instance, with regard to public accountability committees, their oversight role over government policy implementation, the budgetary process, and ensuring greater transparency indecision-making. (Box 8 provides examples.) Box 8. Examples of Bank Engagement with Parliaments and Development Results hanaian Public Accounts Corn blic hearings for the first time, In2008 the Kiri lernentation and tiveness of the 3 1. Minimizing Political and Reputational Risks and Promoting Good Practice. Support to parliaments carries various sensitivities because parliaments and legislatures are political by nature. Contacts with parliamentarians thus require careful attention, as such contacts could more easily be perceived as interference inthe political processes of the country and lead to potential reputational risks for the Bank. Careful attention should be paid to ensuring that support is provided on a non-partisan basis to the parliament as an institution, and does not, either by design or in practice, alter the existing division of 20 power or favor particular political members or forces within the institution. Good practice, to that end, consists of the following: 1. Staff should have a firm understanding of, and respect, the political character of the member country, inparticular, the relationshipbetween the country's different branches of government, how this is circumscribed inthe constitution and reflects the division of power in the country, and its country's political and historical context. 2. The focus of any activities should be on parliament as an institution. 3. Contacts with parliamentarians should be undertaken by experienced staff, with the appropriate tact and sensitivity. 4. Care should be taken to ensure that when contacts are made, they are made with a broad spectrum of the parties and groups represented in parliament, so as not to give the appearance that the Bank favors one group or the other or tries to strengthen or weaken the position of a particular group inparliament. 5. There should be support for any activity from both the executive and parliamentary leadership. 6. Parliamentary capacity building and training activities are most effective when linked to broader complementary governance or public sector reforms, and activities enjoy the ownership of, and are conducted in partnership between both the executive and parliamentary leadership (e.g. through a Memorandum of Understanding). 7. Analytic activities need to identify clearly, as early as at the concept note stage, the study's intended audience or audiences and, accordingly, how the research activities have been tailored to ensure that they do not invite any perceptions of political or partisan interference. Research results, advice and recommendations should be confined as much as possible to the specific development questions relevant to the work. Advice and recommendations, while they may be targeted to the legislature, need nonetheless to be discussed with the executive, which requires appropriate care, so that Bank staff avoid unwittingly straying into the middle of possible or pre-existingpolitical disputes between the two. Finally, as with work on the media, the sharing of internationalgood practices and South- South learning are important tools which Bank staff should use to inform and facilitate country-focused analysis, dialogue and lendinghon-lending assistance. Such sharing of good practices also helps in managing potential reputational and political risks from the Bank's involvement. 21 ANNEX I Contactsfor AdditionalGuidanceon Multi-stakeholderEngagement SDV Jeff Thindwa ~81112 jthindwa@,wor-ldbank.org Serdar Yilmaz ~39350 svilmaz@worldbank.org WBI Kreszentia Duer ~39307 kduer@worldbank.orq MarkNelson ~88041 mnelson'l@worldbank.org Mary McNeil ~ 3 7 816 mmcneil@worldbank.org Frederick Stapenhurst x33210 fstaDenhurst@worldbank.org I PREM II Anuparna I ~37488 I I BrianLevv I I blevy@worldbank.org Dokeniya I ~84082 adokeniva@woddbank.org I 22 ANNEX I1 "How Ongoing Operations of the World Bank Currently Engage a Broad Range of stakeholder^"^^ Participatory Investment Operations prioritization of reduction strategies processes Rural Poverty ReductionProject -Rio policiesand (PRSP) as basis for - Participatorynat'l andlocal Grande do Norte (Brazil); Third Social public spending Bankprograms in budgeting Action Fund(Malawi); Northern IDAcountries Mountains Poverty ReductionProject - Noticeandcomment (Vietnam) on draft policy Development Policy Lending legislation Armenia SAC IV;Laos PRSC1; Timor-Leste Consolidation Support Program Policy Grant, Vietnam PRSC (I to IV) Strengthening - E-procurement - SupremeAuditInstitution Investment Operations transparency and - Improving quality and capacity Public Procurement ReformProject oversight over transparency of - Parliamentary Accounts (Bangladesh); Public Financial the use of national budget Committees Management and Accountability budgetary systems - Civilsociety monitoring of Project (Cambodia) ;Government resources procurement - Participatory Public Financial Management and Revenue Expenditure Reviews Administration Project (Indonesia); - ExpenditureTracking Governance and Institutional Studies Development Project (Madagascar); Financial Reporting and Auditing I and I1(Pakistan); FiscalFederalism andRegional Fiscal ReformProject (Russia) Development Policy Lending HaitiEconomic Governance Reform Operation Iand 11;Honduras PRSC; Uganda PRSC (I to V); Tanzania PRSC (I to 111);Turkey Programmatic Public Sector Development Policy Loan 1(SAI) ~ 55 Excerpted from GAC Strategy, supra note 3 at pp. 19-20. 23 User - Reformsto empower - Strengtheningcapacity of Investment Operations participation and users (parental user groups Andhra Pradesh District Poverty oversight in participation in - Servicedelivery scorecards Initiatives Project (India); Initiative for service provision schools, water users associations, HumanDevelopment Support Project community (Morocco); Social Risk Mitigation conservation groups) Project (Turkey), Poor Rural Communities Development Project (China); Sustainable Forestry Pilot Project (Russia); Development Policy Lending Brazil PHDSRL I; Georgia PRSC; Peru PSRL I11 Ethiopia, Protection of Basic Services Strengthening - Intergovernmental - Localgovernmentcapacity, Investment Operations participatory reforms to realign including inparticipatory Community Works 2 Project local governance assignment of processes (Albania); Local Governance Support resources and - Facilitationofcommunity- Project (Bangladesh) ;Capacity responsibilities; baseddecision-making on Buildingfor DecentralizedService - Resourcesfor local public infrastructure community based Delivery (Ethiopia); Kecamatan priorities infrastructure Development Project (Indonesia); Municipal Development inRural Areas (Mexico); Support to the Social Development Agency (Morocco); Institutional Reform and Capacity BuildingProject (Sierra Leone); Local Government Support Project (Tanzania); Second Local DevelopmentProject (Uganda) Development Policy Lending Sierra Leone ERRC I11 Strengthening - Administrative - Judicial&publicdefenders Investment Operations other formal appeals capacity Judicial ReformProject (Guatemala); oversight - Participatory - Ombudsmen Institutional Reform and Capacity institutions regulatory impact - Parliamentary capacity Building Project (Kenya); Legal & assessment development Judicial Implementation& Institutional - Publishingincome& Support Project (Macedonia); Judicial asset declarations Reform Support Project Accountability (Philippines), Transparency, and Integrity Project (Tanzania), Other WBIParliamentary Strengthening Program Other actions - Rightto information - Mediacapacity DevelopmentPolicy Lending (RTI) development Bangladesh DSC I11 - Legalframework for - Othercivil society capacity Other civil society development W B I Media Program; Community Radio Initiatives; Water and Sanitation Program Strategic Communication and Disseminationfor South Asia; Partnershiu for Transuarencv Fund 24