2010年-世界发展银行全球_Poverty_Reduction_Support_Credits___Mozambique_Country_Study_91页_1mb

Summary of Poverty Reduction Support Credits: Mozambique Country Study

Core Content

This working paper by the Independent Evaluation Group (IEG) of the World Bank provides an in-depth analysis of the Poverty Reduction Support Credits (PRSCs) in Mozambique. It evaluates the effectiveness of the PRSCs in supporting the country's poverty reduction strategy and its alignment with broader development goals and processes.

Main Objectives and Key Findings

Overview of Mozambique's Context

Mozambique emerged from 17 years of internal conflict in 1992, initiating a period of economic recovery. The country has experienced sustained GDP growth averaging 7.8% since the early 1990s and 7.3% from 2004 to 2007. However, the fiscal deficit increased from 8.9% in 2005 to 13.5% in 2007, primarily financed by external assistance. Exports grew from 10.2% of GDP in 1991 to 38% in 2006, with a flexible exchange rate policy in place. The national poverty rate decreased from 69.4% in 1996-1997 to 54.1% in 2003. Despite some social indicators improving, the prevalence of HIV/AIDS increased from 11% to 16.2% between 2000 and 2004.

Mozambique was included in the first Highly Indebted Poor Country (HIPC) initiative and reached the completion point in June 1999. It later graduated from the Poverty Reduction and Growth Facility (PRGF) in 2007 and has been monitored under the Policy Support Instrument (PSI) since then. The country has received support from the World Bank and other donors since 1984, including the Rehabilitation Credits, Economic Recovery Credits, and the Economic Management and Private Sector Operation (EMPSO).

PRSC Design and Evolution

The PRSC series replaced earlier Adjustment Lending and Development Policy Lending (DPL) programs. The first series included PRSC 1 and 2, while the second series included PRSCs 3-5. PRSCs were designed as a more flexible and coordinated form of budget support, aiming to align with the country's Poverty Reduction Strategy Papers (PRSPs) and national development plans (PARPAs).

The first PRSC series was aimed at supporting policies and reforms to improve living conditions, promote growth and employment, and strengthen governance and public sector management. The second series focused on consolidating reforms in macroeconomic management, governance, public sector, and economic development. PRSCs were intended to be single-tranche operations, with PRSC 2 being the exception.

Alignment with Country Processes

PRSCs were well aligned with Mozambique's public financial management (PFM) and budgeting processes. They were integrated into the general budget support (GBS) system and helped provide predictable resource flows. The PRSC approach supported the government in operationalizing the Poverty Reduction Strategy Paper (PRSP) and aligning its budget with strategic priorities.

The government has made progress in improving procurement processes, including the adoption of a new procurement code in 2005 and the publication of revised regulations based on competition and transparency. The Tribunal Administrativo (TA), the external audit institution, has also seen significant improvements, with the number of audits increasing from 3 in 2003 to 360 in 2007, exceeding targets.

Results and Outcomes

The PRSCs contributed to strengthening the public financial management system, with notable improvements in audit controls and procurement processes. However, their effectiveness in improving access to quality services for the poor, such as in health, education, and water and sanitation, was limited. The main benefits in these sectors were attributed to broader reforms in public financial management and increased sector spending, rather than specific sector interventions.

The PRSCs were instrumental in supporting the government's transition from a government-directed economy to a more market-based one. They contributed to macroeconomic stability, public expenditure management, and the consolidation of structural reforms. Despite this, the economic performance of Mozambique cannot be solely attributed to the PRSCs, as other programs and donor support also played a significant role.

Bank Performance and Recommendations

The World Bank's performance in delivering PRSC support was generally positive. It successfully coordinated with other donors and ensured the timely disbursement of funds into the Treasury. The PRSC approach provided a more predictable and flexible mechanism for budget support, which is crucial for effective budget execution.

However, the PRSCs are not a strategic instrument for policy dialogue or addressing emerging issues. They are more of a coordination tool to support the implementation of existing reforms. While PRSCs have been effective in supporting an ambitious reform program, especially in public financial management, there are still areas for improvement.

Key Information

• Five PRSCs have been approved and disbursed in Mozambique, with the fifth approved in November 2008 and disbursed in December 2008.
• PRSCs 1-2 were part of the first series and focused on improving living conditions, governance, and public sector management.
• PRSCs 3-5 were part of the second series and aimed at consolidating reforms in macroeconomic management, governance, and economic development.
• The PRSC approach has been effective in coordinating budget support with other donors and ensuring predictable resource flows.
• While PRSCs have supported significant reforms, they have not been the sole driver of Mozambique's economic performance.
• The PRSCs have not included sector-specific interventions, which were largely absent in the program.
• The World Bank's performance in PRSC operations has been satisfactory, with notable institutional development and sustainability impacts.

Structure of the Report

Sections

1. Background

   • Country Context
   • Situating the PRSC in the Country Assistance Program

2. PRSC Design

   • Difference between PRSC series and earlier Adjustment Lending/Development Policy Lending

3. Process

   • Effectiveness of PRSCs in operationalizing the poverty reduction strategy
   • Alignment with country policy formulation, budgeting, and planning processes

4. PRSC Results

   • Strengthening public financial management
   • Contribution to poverty reducing growth
   • Impact in sectors delivering services to the poor
   • Overall outcome assessment

5. Bank Performance

   • Evaluation of the Bank's role in PRSC implementation

6. Conclusions and Lessons Learned

   • Summary of the effectiveness and shortcomings of PRSCs
   • Recommendations for future PRSC operations

Tables and Figures

• Tables include details on PRSC disbursements, conditionalities, and alignment with domestic processes.
• Figures show the evolution of social indicators and the relative importance of PRSC disbursements.

Conclusion

The PRSCs have played a significant role in supporting Mozambique's poverty reduction strategy and economic reforms. They have been effective in coordinating budget support with other donors and in improving public financial management. However, they have not been a comprehensive tool for addressing all aspects of poverty reduction, and their impact on service delivery to the poor has been limited. The PRSC approach has proven to be a valuable mechanism for delivering fast-disbursing assistance and supporting the government's reform agenda, but it should not be the only instrument used. Traditional investment projects still have a place in the country's development strategy. The IEG recommends that future PRSC operations should focus more on political economy and participatory approaches to ensure greater effectiveness and sustainability.