2010年-世界发展银行全球_Poverty_Reduction_Support_Credits___Ghana_Country_Study_57页_980kb

报告摘要

Summary of "Poverty Reduction Support Credits: Ghana Country Study"

Core Content

The Poverty Reduction Support Credit (PRSC) was introduced by the World Bank in 2003 as a new financial instrument to support Ghana's poverty reduction strategy. It was designed to provide a more flexible and supportive approach compared to earlier adjustment lending, such as the Structural Adjustment Credits (SACs) and Development Policy Loans (DPLs). The PRSC was a key component of the Multi-Donor Budget Support (MDBS) process, which aimed to align donor resources with the government's poverty reduction goals.

Main Points

1. PRSC Design and Differences from Earlier Lending

The PRSC was closely aligned with the Ghana Poverty Reduction Strategy (GPRS), a country-owned framework.
Unlike earlier adjustment lending, which focused on rigid compliance with specific conditions, the PRSC emphasized flexibility and substantial compliance as acceptable indicators of progress.
The PRSC introduced a rolling process with annual reviews of reforms and triggers, which were more outcome-focused and less tied to strict legal compliance.
The Bank’s role in the PRSC was to provide leverage for donor alignment, rather than strict control over disbursements.

2. PRSC Process and Implementation

The PRSC process was seen as a vehicle for country-driven poverty reduction.
It facilitated donor harmonization and sector coordination, with the establishment of sector coordination groups.
The PRSC was instrumental in increasing resource flows to the Ghanaian budget, improving predictability and stability.
However, the focus on limited triggers led to an expansion of earmarked financing, which reduced the involvement of sector ministries in the PRSC framework.

3. PRSC Results and Impact

The PRSC contributed to improvements in public financial management (PFM), including more timely and accurate financial reporting and better expenditure controls.
It helped increase budget coverage from 50% to over 80% of government expenditures by the end of the second PRSC series.
The PRSC supported priority sectors such as health and education, which received significant resource increases.
Despite these achievements, the PRSC did not fully strengthen the budget’s role in strategic resource allocation and broader expenditure management.

4. Bank Performance and Donor Coordination

The Bank was seen as a key player in the MDBS process, with a flexible and skilled approach to donor coordination.
The PRSC acted as a catalyst for donor alignment around key reform measures, even though it was not the only focus of the MDBS.
The PRSC was a symbol of stable donor commitment and provided a useful, though limited, incentive for maintaining the reform process.

Key Information

PRSC Series: The first series (1-3) and second series (4-6) were implemented under different Country Assistance Strategies (CAS), covering the years 2004-2007 and 2008-2011 respectively.
Donor Harmonization: The PRSC process was a major step in implementing the Paris Declaration Harmonization Agenda (PDHA), promoting better coordination among donors.
Sector Reforms: The PRSC was instrumental in advancing energy and water sector reforms, which were critical for maintaining macroeconomic stability and complementing health and education reforms.
Challenges:
- Trade-offs: The PRSC involved trade-offs between government priorities and donor interests.
- High Transaction Costs: The process placed a heavy burden on the time of senior ministers.
- Limited Ownership: The second GPRS was less government-owned, raising concerns about the sustainability of the reform process.
Future Outlook: As Ghana's economic situation has improved, the relevance of PRSC has diminished. The Bank may need to rethink and refocus the instrument to remain effective.

Conclusions and Lessons Learned

The PRSC has been successful in promoting donor coordination and improving PFM.
It has contributed to more predictable resource flows and enhanced government ownership of reforms.
However, it has not fully achieved its goal of strengthening the budget as a strategic tool.
The flexible approach to triggers and outcomes has been well-received, but donor opinions on its effectiveness vary.
The Multi-Donor Budget Support process has been a successful platform for donor cooperation, but its impact on sector implementation has been mixed.

Recommendations

The Bank should reassess the PRSC instrument to ensure it remains relevant as Ghana moves toward middle-income status.
A greater focus on outcomes could enhance the effectiveness of the PRSC, while maintaining flexibility and donor coordination.
The government’s role in defining triggers and performance indicators should be strengthened to ensure ownership and sustainability of reforms.

References

The study references Ghana’s Poverty Reduction Strategy Papers (PRSPs), HIPC Initiative, IMF-supported PRGF, and various donor alignment initiatives such as the PDHA.
It also draws on data from the Public Expenditure Tracking Systems (PETS), Performance Assessment Framework (PAF), and Public Expenditure Reviews (PERs).

Tables and Figures

Table 1 shows yearly disbursements of development partners (2003-2007).
Table 2 presents gross and net primary enrollment rates and gender parity index (2003-2007).
Table 3 outlines access to safe water (Percent).
Figure 1 illustrates poverty reducing spending (2002-2006).
Figure 2 shows health sector spending by source.
Figure 3 and Figure 4 present expenditure by level of education and composition of education expenditure, respectively.

Appendices

Appendix Table 1: External support to Ghana.
Appendix Table 2: PRSC disbursements as a share of GBS, of government expenditures.
Appendix Table 3: HIPC AAP indicators (2001, 2004).
Appendix Table 4: PEFA as part of 2005 PFMR exercise.
Appendix Table 5: PEFA from 2006 PFMR.
Appendix Table 6 and 7: Alignment of short-term and medium-term PFM plans with PEFA assessments.

Acronyms

PRSC: Poverty Reduction Support Credit
MDBS: Multi-Donor Budget Support
PAF: Performance Assessment Framework
HIPC: Highly Indebted Poor Country
GPRS: Ghana Growth & Poverty Reduction Strategy
BPEMS: Budget and Public Expenditure Management System
PETS: Public Expenditure Tracking Systems
PRSP: Poverty Reduction Strategy Paper
SACs: Structural Adjustment Credits
ERSO: Economic Reform Support Operation
MTEF: Medium-Term Economic Framework
NDPC: National Development and Planning Council
NHI: National Health Insurance
NHIF: National Health Insurance Fund
NHIP: National Health Insurance Project
NYEP: National Youth Employment Program
MDA: Ministries, Departments and Agencies
MDG: Millennium Development Goal
CPI: Corruption Perception Index
IMF: International Monetary Fund
IFMIS: Integrated Financial Management Information System
ODA: Official Development Assistance
TI: Transparency International
DfID: Department for International Development
USAID: U.S. Agency for International Development
EC: European Community
EU: European Union
APR: Annual Performance Review
MPSR: Ministry of Public Sector Reform
MOE: Ministry of Education
MOF: Ministry of Finance (and Economic Planning)
MOA: Ministry of Agriculture
ERSO: Economic Reform Support Operation
CG: Consultative Group
IEG: Independent Evaluation Group
ODI: Overseas Development Institute
OPCS: Operations Policy and Country Services
MDRI: Multilateral Debt Relief Initiative
IDF: Institutional Development Fund
GETF: Ghana Education Trust Fund
GLSS: Ghana Living Standards Survey
GDP: Gross Domestic Product
PREM: Poverty Reduction and Economic Management
PRGF: Poverty Reduction and Growth Facility
PRS: Poverty Reduction Strategy
MTEF: Medium-Term Economic Framework
PEFA: Public Expenditure and Financial Accountability

This summary provides an overview of the PRSC’s design, implementation, and impact in Ghana, highlighting its role in donor coordination and PFM improvements, as well as the challenges and limitations encountered.

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